Mikołaj A. Cholewicz
19th Year Class KSAP
18th Annual NISPAcee Conference
III. Working Group on Civil Service
Krajowa Szkoła Administracji Publicznej
(National School of Public Administration)
in the process of creating modern civil service
in the Republic of Poland
I.
Introduction
Following the main goal of the 18th Annual Conference organised by the Network and
Schools of Public Administration in Central and Eastern Europe "Public Administration in
Times of Crisis", which is to find solutions, introduce best practices and generally to review the
position of the public administration in crisis, the author is convinced, that there should be
a wide-ranging discussion about scientific, conceptual and organisational structures in the
relevant geographic area, which would be able to pursue reforms if needed. Unstable and
worrying social and economic situations, unpleasant changes to political climate and especially
failures in managing and monitoring funds and resources, should bring about profound analysis
of the current state affairs in particular a role of public administration. In this regard,
NISPAcee can play a significant role in sharing the knowledge between institution and people
of this part of the world. Through communication and exchanging good practices the possible
problems can be identified and solved. Every initiative, which can be helpful to states of the
Central and Eastern Europe – having often very similar problems and irregularities – is worth
developing.
The Polish administration is, one could say, on the verge of changes. After successful
accession to the European Union there is no general purpose and task for civil service. The
only goal for now, is Polish presidency of the EU Council. Apart from this, after five years “in
the European family” public administration is rather idle. Therefore, the author wishes to
describe the whole situation in which Krajowa Szkoła Administracji Publicznej (National
School of Public Administration) has found itself. In May, this year celebration of the 20th
Anniversary is being scheduled.
The author combines, generally speaking, two approaches to the proposed theme: one,
from educational perspective as an active student of the KSAP, having political science and
academic background, and also from the professional point of view as the former civil servant
at the regional level and future nominated civil servant in central administration (after
1
graduating from the School). This combination of these views will hopefully allow for
describing the complexity, potential and significance of the KSAP as the Polish public
administration is being restructured and improved. Moreover, KSAP as the first such an
institution out of Socialist Block has the right to show the path to other countries of the region
particularly if the total number of its students exceeded 1000 in the newest year class in March
this year.
II.
Polish administration – main features
To better understand the placement of the KSAP in the system of Polish civil service, it
is advisable to present some basic information to have full scope. Basic rule is as follows:
graduates from the School supply only governmental administration; in order to work in nongovernmental, but still public administration, they need to obtain the agreement from the
Chancellery of the Prime Minister.
Polish civil service has a long tradition rooted in the beginning of independence after
I world war. Unfortunately, after II world war, what is perfectly known, socialist system
subordinated and politicized it to the nomenclature. Only after transition in 1989 did civil
service start to become responsible and main element of state management. Polish
administration can be divided into1:
 self-government organization (three levels: commune, county and voivodeship);
 government administration (central and territorial);
 state administration (President of Poland, Supreme Chamber of Control, National Bank
of Poland, Organs of Upper Chamber of Parliament – Sejm, a. o.).
Shortly, Polish civil service is a mixed system of the so called: career system (closed)2
and position system (open)3 with superiority to the first one. It is reflected by: Preparatory
service, employment stabilization for nominated state officials, automatic indexation of wages
and strong relations between period of service and the height of salary. These principles refer
mainly to nominated officials, rather than to ordinary officials. To the position career belong:
open and competitive selection recruitment and procedure, paying a premium for competences
needed on specific posts and selecting for high-ranked posts.
The newest act on Polish civil service guarantees professional, reliable, accountable,
impartial and politically neutral civil servants to fulfill state tasks. Its role is to ensure the
efficient execution of the state administration, independently of political situation and
government changes. Such efficacy can be assured by appropriate cadres – competent officials
and professionals; and KSAP has a strong asset in this field preparing newcomers to
administration as well conducting qualification procedure in civil service. Building modern
1
Their status is regulated by three separate acts: of 21th Nov. 2008 about self-government officials, of 21th Nov.
2008 about civil service and 16th Sep 1982 about officials of state offices.
2
Mainly represented in: France; remaining European states: Austria, Belgium, Bulgaria, Cyprus, Germany,
Greece, Ireland, Luxemburg, Portugal, Romania, Spain, Slovakia and Slovenia.
3
Mainly represented in: Great Britain; remaining European states: Denmark, Estonia, Finland, Holland, Italy,
Sweden and out of Europe: Canada, New Zealand.
2
state, increase of the efficiency and its organs and above all satisfaction of the society – are the
main aims, which members of the civil service corps need to fulfill.
III.
Krajowa Szkoła Administracji Publicznej – role and perspectives
The issue of the efficient, professional and impartial civil service should be one of the
crucial interests of any head of state who is aware of the necessity of good governance and
administration. One of the examples of institution in Poland which is well-performing, is the
Krajowa Szkoła Administracji Publicznej responsible for training and thorough education – the
only governmental body, which prepares post-graduate students for senior posts in central
administration by means of a very intensive course, it also examines all officials who wish to
become nominated civil servants and organizes a lot of seminars, conferences and meetings.
Thanks to full-time learning system, interdisciplinary education and participation in workshops
and seminars, as well as internships in domestic and foreign institutions, graduates are wellequipped with knowledge and skills allowing them to charge their duties in public
administration. KSAP is perceived as a strong, capable and supportive tool in governing the
state.
The author wishes to present his evaluation of the recent and past impact of the KSAP
on public administration as such, and assess its possible directions of development. There is an
additional question, whether the KSAP has to be only the deliverer of well-educated state
official, or can become a real center assisting the government in administration matters –
become a genuine think tank. The aim of the paper is to make the decision-makers aware that
the KSAP can have a capacity to help in shaping a new, accountable public administration –
ready to work in post-crisis environment.
1. Historical background and legal status
1)
Legal status
The main goal of KSAP, obliged by the Polish state, is to train and prepare members of
Poland’s Civil Service Corps and cadre of senior-officials to enable them to work, act and
fulfill their obligation with neutrality, accountability and professionalism. It has been achieved
by in-depth full-time 1,5-year training of the School’s own students, continuing training of
already employed in Polish administration and devising of various programs.
KSAP is the governmental School the mission of which is to teach and prepare
comprehensively to work in civil service. Its activities are being realized by full-time and
continuing education and also by conducting language exams. KSAP functions at Prime
Minister, outside university system. He or she exercises supervision over the School of its
legality i.e. compliance its activities with acts and statute. The supervision does not embrace
possibility of a direct shaping educational program. Nevertheless, Chancellery of Prime
Minister can influence general functioning and didactic process through Council of the School
and occasional controls.
KSAP was the first institution of such administrative-oriented profile in the countries of
former Socialist Block. The decision of establishing the School was taken by the first
democratically-elected government after transition, in May 1990 and it started its activity from
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2nd September of 1990. What must be mentioned is that KSAP came into existence as bearer of
changes – the main idea of its creators was to establish completely new institutions, which
could, through ambitious plan of educating highly-educated, motivated and with patriotic
attitude students, expel the wastes of the former system and lead Polish administration to new
dimensions, free of socialistic background.
KSAP was created upon resolution of the Council Ministers of 30th June 19904 as the
research-development unit and thereafter changed into state’s organizational unit with legal
personality. It acts on the basis of its own act adopted by the Polish Lower Chamber, Sejm on
14th June 19915 and the internal statute conferred by the Prime Minister Regulation of 7th
October 19996. Additional Resolution of 29th October 1999 refers to financial and scholarship
matters7.
The main organs of the KSAP are: Director and Council of the School. The first,
nominated by the Prime Minister, representing and managing the School (by means of internal
administration), the latter – as advisory board. The council consists of three types of members:
a) stipulated by the law: Minister of Internal Affairs, Minister of Foreign Affairs,
Minister of Finance, Minister of National Education, Chief of the Chancellery of the
Prime Minister, Head of the Civil Service;
b) invited by the PM (facultative participation): Chief of Chancellery of the President
of Poland, Head of the Supreme Chamber of Control and Head of the High
Administrative Court;
c) appointed by the PM on the request of Director of KSAP: heads and general
directors from public offices and ministers, prominent representatives of science or
with special social recognition.
KSAP internal structure consists of two main levels, three divisions and permanent
commissions. To the first level belong: director, deputy director and Council of the School, to
the second: all remaining bureaus and employees. First division – of education – consists of:
Administration and Public Management Block, Economy and Public Finances Block, EU and
Polish Foreign Policy Block, Language Center, Full-time education bureau, Continuing
education center. To the organizational-administration division belongs: Investment,
Administration and Public Procurements Bureau, Hotel, Library and IT Bureau. The third
division – advisory-management consist of: International Exchange and Promotion Bureau,
Economic Bureau, Personnel, Recruitment Bureau and Legal Adviser. The permanent
commissions – very important bodies, strictly linked to goals of the KSAP – are: ProgramDidactic Commission, Verification-Linguistic Commission and Recruitment Commission.
The range of present School’s activity differs from the original idea. Primarily, its
mission was to gain experience from various education institutions to educate high officials
and develop new mechanisms and tools to be implemented in reformed, post-socialistic
administration. After the modification, the objectives of the School have been expanded, in
accordance with Statute, to: serving the country by preparing staff for public service, educating
4
Polish Monitor No. 74 of the Council of Minister of 30th of June 1990; Polish Monitor No. 21, pos. 167
Act on National School of Public Administration of 14 th June 1991 r. Official Journal No. 63, pos. 266 i No 104,
pos. 450, from 1996 No. 106, pos. 496, from 1997 r. No. 28, pos. 153, from 1999 No 49, pos. 483, from 2000 r.
No. 120, pos. 1268.
6
Resolution of the Prime Minister of 7th October 1999, Official Journal No. 82 pos. 920.
7
Official Journal No. 90, pos. 1004 with later amendments.
5
4
candidates to work on high-grade positions, drawing up programs and organizing trainings for
public administration and cooperating with various national and foreign institutions. The
parliament resigned from scientific profile of the KSAP and confined it only to educating
present or future officials – the rest of the activities was limited. Utilization the School to
develop formula of think tank will require act amendment, because current law frames does not
allow for such a wide interpretation of its role and tasks. The issue of enhancing KSAP’s
abilities to become a genuine central advisory board will be analyzed in another chapter of this
paper.
The statute stresses impartiality and neutrality of the KSAP – it can not become a tool
in particular (political) interests. The students, then graduates and finally nominated officials
may not behave in manner favoring parties or groups. It is advisable to put such crucial
statement into act, because it could better guarantee permanence included in it, in contrast to
resolution, which can be easily replaced.
KSAP students are chosen through competitive, multilevel8 and open procedure of
recruitment with regard to obligatory conditions: age limit of 32, possession of a Master’s
degree or equivalent and ability to speak at least one foreign western language on the B2 level,
Polish citizenship and full enjoyment civil and citizens’ rights. The training period lasts
minimum eighteen months. Graduates from KSAP are obliged to take up the proposed
especially for them posts in the governmental (mostly cases: central) administration for
minimum five years on the level of senior or main specialist9.
During the education students become scholarship which is permanently signed in
resolution and is 2400 PLN pro month. It is really unfortunate, because it is constant – the
same level like in 2006 when it was introduced – without revaluation, even to with inflation
rate. For ten years, up to 2004 the system of direct linking the scholarship with current
economic situation was used giving possibility to adjust scholarship on yearly basis 10. Present
specified quotations of the scholarship without mechanism of updating to overall conditions
should be, as soon as possible, changed. The system now is not only unfair to previous years of
KSAP-students, but also in comparison to the whole payment manner in public sector. Change
should also cover the students’ health insurance – now any health problems result in
diminishing the scholarship.
History – three periods
The KSAP activity can be easily divided into three parts – each representing another
director of the School. Below are the short characteristics of each period, describing the main
differences between these three types of management.
a)
Prof. Maria Gintowt-Jankowicz11 – was the first director of the School, leading it for
over 15 years, now is one of the members of the Constitutional Court. In 1995 she was given
2)
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I stage: test of general knowledge and written foreign language test (English, German or French); II stage:
written task and intelligence-competence test and finally qualification conversation (also short oral exam in
foreign language).
9
Guaranteed by the aforementioned act.
10
First resolution set scholarship to 3 time of minimal salary in Poland, later amendments fixed the rate of
scholarship.
11
http://www.trybunal.gov.pl/Trybunal/Sklad/maria_gintowt_jankowicz.htm,
http://pl.wikipedia.org/wiki/Maria_Gintowt-Jankowicz
5
the international award “Alexis de Tocqueville” for substantial input in developing public
administration in Europe. Prof. Gintowt-Jankowicz received award for establishing KSAP and
efforts to build Polish civil service. And it was the first prize for a representative of EastCentral Europe. She was famous for maintaining good relations with every prime minister in
view of continuous development of the School
b)
Prof. Hrynkiewicz12 – her main success was providing KSAP consultations relating to
two crucial acts on: National Cadre Resources and high posts in public administrations. She
also managed to organize the personnel and conducting recruitments procedure for NCR in
very short time.
c) Prof. dr hab. Jacek Czaputowicz13 – introduced plenty of changes. The main substantial
innovation, having a great impact on functioning the KSAP, was introducing another scheme
of recruitment. Up to 2008 the selection was conducted once a year and education commenced
every autumn. Starting from 19th year class (year 2009), recruitment is organized twice a year
– in winter and summer. At the same time, particular year classes are half as numerous14. One
of the final decisions of the prof. Czaputowicz lied with the renovation of building and facility
including installing the lift. Lastly, he also introduced a “dress code” – similarity to Ministry of
Foreign Affairs.
2. Three dimensions
To fully understand KSAP’s position and capabilities there is a need to present the three
levels of its present and possible activity. The first two “layers” are obvious – School does
really provide intensive 18-month training for candidates to work in civil service and conducts
series of trainings for already employed in administration. The open question remains whether
KSAP has ability to simultaneously act (without potential loss in other sector) in three
dimensions: full-time education – ambitious and adjusted to the needs of modern state,
program of competent professional education for civil servant of different positions and, last
but not least, having status of important advisory body to the government on state management
and governance to strengthen Polish geopolitical potential – playing a role of think tank.
1)
Full-time education
As stated earlier, the full-time training is the cornerstone of KSAP’s existence. All
elements and steps have the aim in shaping generalists – pro state officials, which have
knowledge, skills and are aware of wide-scope of administrative and state terms as well as
current politico-civilization issues.
The education in KSAP is organized in full-time way without division into semesters
and may not be combined with professional job in another institutions or companies. The
didactic program has interdisciplinary, application and open character – with systematic
modifications in response to changing legal environment or new tasks and needs of the public
administration. Nowadays classes are divided into three thematic blocs: Administration and
12
http://pl.wikipedia.org/wiki/J%C3%B3zefa_Hrynkiewicz
http://www.ksap.gov.pl/ksap/content/view/293/165/ , http://pl.wikipedia.org/wiki/Jacek_Czaputowicz,
14
For example XIXth Promotion “Królowa Jadwiga” (Queen Yadvigah) number only 29 people, where previous
had 50-60 students.
13
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Public Management15, Economy and Public Finances16 and EU plus Polish Foreign Policy17.
The greatest stress is laid on interdisciplinary character of the education, which is oriented on
obtaining practical skills by students. Moreover, students are taught obligatory two foreign
languages, informatics and participate in various workshops. The education program
encompasses a set of main subjects compulsory for all students, as well as supplementary
specialist subjects that may be selected. There is also a possibility to participate in wide range
of conferences, seminars and other meetings devoted to public policy issues with prominent
guests such as ministers, diplomats, high-ranked officials, researchers and specialists. Every
student is obliged to participate in physical exercises organized by the School. Almost at the
end of the education students need to pursue a foreign and domestic traineeship, which
familiarize students with functioning of the public administration in Poland and abroad.
2)
Continuing education
In accordance with regulations of the new act on civil service, direct superiors
determine individual program of professional development for each member of the civil service
corps (except from general directors), which is the reason for sending them to specific training.
The program must take into consideration motions included in periodic opinion of the post
holder, planned position and financial promotion path.
Raising professional qualifications and developing skills are the guarantee of better job,
grater effectiveness and efficiency of the public administration. And efficient administration
and competent officials let function the whole state in a more professional manner and
strengthen its perception by citizens and foreigners. The second important, statutory pillar of
KSAP is enhancing qualifications of officials already employed in public administration. After
many years it has a great experience – not comparable with any other private or public
institution on public administration matters.
Taking into account the fact of exclusiveness of the KSAP in conducting qualification
procedure in civil service (obligatory step to obtain nomination), continuing education can be
for aspiring for high-rank posts in administration a good occasion to systemize their knowledge
and gain new qualifications.
Trainings are done mostly by domestic practitioners, experts and professionals, but
foreign advisors are also available. The KSAP’s offer consists of subjects like: Administration
and public law, EU and international affairs, EU’s structural funds, Management, Public
finances, Communication and social issues, Informatics and foreign languages. KSAP
organizes also plenty of workshops and courses. The whole education proposal is addressed to
carefully-defined interests groups working in: human resources, internal audit or coping with
EU’s funds. KSAP also organizes a long-term Structural Funds Management Study Course
provided to enhance Poland’s administrative ability to the efficient utilization of European
funds.
15
E.g.: Public policies, Introduction to public administration, Social communication, Civil service system, Public
Procurements, Civil law, Administrative procedures, Quality Management, Public and Strategic Management,
Legislation and others.
16
E.g.: Microeconomics, Public Finances, Investments, Public Sector Economy and Macroeconomics.
17
E.g.: History and institutions of the European Union, Law of the EU, Geopolitics, Diplomatic Protocol and
Correspondence, Poland and EU, Polish foreign policy, International law.
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The language courses as a part of continuing education are highly estimated. It is
caused by very good level represented by lectors, very often native speakers, which have in
many cases experience in teaching abroad. It lets deliver knowledge in attractive and
innovative way. By the occasion they take many interesting actions towards promotion of the
culture and language of their home countries – a good example is Francophone Club. Language
classes focus on politico-administrative language with great emphasis on law, economic issues
and international affairs including “eurojargon” – everything with basis of grammar and lexis.
The most popular language courses – taught at all levels – are: English, French and German;
KSAP provides also some courses in Russian and Spanish.
Up to 2009 around 35 thousand officials were trained.
3)
Idea of think tank
The concept of enhancing KSAP’s capabilities to create from it also a governmental
advisory center in terms of state management – think tank – emerged some years ago, but it has
never been finalized18. Already statute of the School enables such activity; however it does not
give any details, allowing only cooperation with various institutions and organizations.
Nevertheless, decision-makers usually perceive KSAP as certification-educational institution
rather than advisory-research. The most important step to change character of the School is
creating resources consisting of scientific cadre which could identify with KSAP, as well as
further usage of various types of papers and analysis made by students on economic-social
problems of state. The combined effort of full-professionalism and new students’ approach and
attitude too many issue, could become a real foundation of think tank.
If KSAP wants to evolve to institution beyond its educational and training activity, it
should take measures19 as follows:
1) It is a great need to organize regular (e.g. every half a year) or temporary (in case of
dramatic changes in law or circumstances) conferences or meetings of the general directors
and management-HR cadre of ministers and offices to debate, discuss problems and share
good practices. KSAP participates in preparing various conferences conservatories and
panel of experts on state’s policy, some reforms, statement of the concrete ministry in
certain issues, but it is never focused on general management of public offices sensu
stricto. Ministries, central offices and organs and also voivodships are being managed by
above 60 general directors, so it would be much desirable. Such crucial high-ranked
officials and their subordinates responsible for efficient functioning offices from HRadministrative and financial side, does not have, at own disposal any platform of exchange
of views and experiences. The meetings are possible by the occasion of above mentioned
professional (sector) conferences organized by KSAP, but in most cases these are ad hoc
meetings without broader context of cooperation.
2) KSAP could start publishing periodicals also connected with civil service and public
management. Good example is edited by Chancellery of PM “Review of the Civil Service”
or “State Control” edited by Superior Audit Chamber. Common efforts could be joined
under auspices of KSAP – central, specified organ for such tasks. The articles could be, as
18
It would be the first and only one national center responsible for wide-ranging administration and public
management.
19
According to M. Koprowski [in:] Strategic concept for KSAP, 2009 under supervision of M. Cholewicz.
8
usually are, written by middle-rank officials and specialists, but also by a pack of students
– on the basis of case analysis.
3) Another enhancement of KSAP’s abilities would be organizing workshops on certain
sector’s project of law act. The students could analyze it and further notify opinions in
frames of social consultations. KSAP could act as a “mediator” and collector of best ideas
and solutions. Expansion of this proposal could be passed by various resorts to the KSAP
and later the students, the projects, which could be subjects of legislative workshops. The
outcome might be used by relevant institutions in law creating process.
4) The next proposition lies with critic and estimation function of the public administration.
KSAP could draw up effectiveness ranking of offices based on synthetic indicators
grounded on such data as: volume of funds under management, size of the payroll, cost of
activity, amount of used paper, number of training pro person, special expenditures of the
office, environmental friendliness etc. Effectiveness can be examined by e.g. length of
built motorways or serious installations, but it can be screened from the basic things. The
KSAP should be able to analyze such data, compare them to benchmarks (estimated for
example by Chancellery of PM) and to make conclusions and recommendations.
Some of the above mentioned propositions and solutions can be introduced with no
cost, but some require serious change in legal provisions. Decision-makers, as well as steering
authorities of KSAP need to think over if there is a real need to widen School’s capabilities to
new form, new responsibilities. For author of this, forecast would be obviously positive.
3. Propositions, challenges and achievements
Herewith, the author wishes to present his views to increase abilities of the KSAP.
There is also description of some achievements of each of the School’s activity pillars
connected with these problems and challenges.
1) Full-time education
It is advisable to introduce in selection process requirement of minimum 2 years of
general experience with obligatory 1-year experience in public administration on any level
(central, regional or municipal) and institution. Such clause would let to recruit persons who
already touched problems of state from organisational, political or socio-economical point of
view. Very valuable should be practical knowledge about public finances and selected
elements of managements. This movement could avoid uncertainty of KSAP’s graduates
entering to their first job in administration.
In education process, there should be a greater impact of applicatory attitude to the
classes. In more practical way the students ought to be made aware of certain mechanisms, it
should be greater share of the group tasks in view to achieve various results and proposals.
There should be also direct link and reference of majority of lectures to every day’s
administration practice. It would be also a good idea to invite to cooperation some foreign
specialists and officials – although KSAP teaches Polish look, but experience from other
countries would be also valuable (at least in EU matters). There is also great sense in
organizing extra general-development courses (auto presentation, efficient communication,
negotiation and public marketing; politics and administration; culture studies; crises
management and security; organization of work and motivation; budget by task; regional
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development and town planning; transposition of EU law), which would let gain additional
skills and knowledge needed particularly on posts requiring contact with media and/or
representatives of other states or organisations, political relations with superiors, but also better
orientation exceeding official duty frames.
KSAP’s authorities should take into consideration cultural sphere of the future state
officials. It is not a question in forming eminent music, theatre or fine arts connoisseurs, but to
raise sensibility on something above administration management and participating in solving
socio-economic problems – music masterpieces, artworks or another manifestation of artistic
creation. To reach this goal, KSAP could guarantee tickets on interesting performances in
Grand Theatre or other places.
There should be serious debate how to adjust needs of specific offices and government
agencies with concrete promotions of KSAP. It means also such driving and managing the
education process in 18-month training period to mostly fill work gaps (vacates) declared by
various institutions. In the same pattern, domestic internship should to a greater degree
guarantee the students obtaining job (by of course meeting requirements) in this place.
Statistically, only below 10 per cent of interns get desired job in office of such internship
appointment. It should be dramatically improved to avoid unnecessary stress for graduates in
applying and trying to win exact job. It is rather unplanned process and KSAP does not have
full control of selection process, therefore students-candidates should have been more prepared
by KSAP’s authority.
Last, but not least thing to mention, very crucial for Chancellery of PM and KSAP, is
shaping pro-state attitudes, what explicitly does not play a significant role for KSAP right now.
Thinking about home country should be in minds of those linked with School: students, coursebeneficiaries, administration staff and lecturers. The state ethics should stay on solid
fundament, according to Nolan’s Commission: Polish official must care not only about his
personal dignity, but also the place where he works. Patriotic attitude can be manifested not
only in celebrating national holiday, but also in daily, well-provided work. Exactly this aspect
should be adequately articulated during 1,5-year preparation for KSAP students.
Education through KSAP, offers excellent start in their personal development and
professional career in public administration. The School enables easy enter into its structures
and chance to build one’s career. Thanks to position of nominated official, they obtain strong
and stabile employment. Graduates start from position of senior specialist or main specialist.
Due to promotions, some of them got positions of directors of departments or even general
directors in ministers and a part has served or serves as undersecretary of states, secretary of
state or even ministers. Graduates are currently working in administration in country and
abroad – employed in central and self-governmental administration, in diplomacy and
international organizations. Usually 90 per cent of them begin their adventure with central
administration and most popular are ministers of: finance, economy, foreign affairs, national
education and regional development.
Among prominent KSAP can be listed: Elżbieta Bieńkowska – Minister of Regional
Development; Władysław Stasiak – deputy director of Chancellery of President, ex head of
National Security Bureau; Dr Robert Kupiecki – ambassador RP in Washington; Agnieszka
Kaźmierczak – director in DG Internal Audit in European Commission; and many directorate
generals in ministries.
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After completing the 1,5-year training, majority of graduates remains in contact with
the School participating in its various activities and actions. Very crucial in this regard is
KSAP’s Graduates’ Society – which helps not only to organize them in new conditions, but is
also an exchange-of views-forum. It happens that graduates come back to School to teach new
year classes… Bonds created in “KSAP-environment” are very precious in (the future)
professional relations by facilitating finding solutions to many problems requiring cooperation.
Nevertheless Schools authorities should consider more integrating activities within its
environment – permanent discussion on civil service exchange of thoughts, non-formal
meetings, common seminars, trainings etc.
2) Continuity training
It is obvious that because of the legal reasons, in the area of training KSAP cannot
compete in all aspects with private companies. It would be precious, when School could make
its training offer more flexible, because it could be additional argument for choosing this
training institution. KSAP should take more definite initiatives in the aim of reaching to
potential customers. The School should exist closer to administration – there is a great need to
take measures resulting in raising awareness about KSAP (reaching persons directly involved
in training in certain entities), its activities and achievements. Most desirable should be
increasing promotion by sending information or surveys and publishing data about itself and
public administration as a whole.
KSAP could also play a significant role as the internal educator/trainer. It means, it
could help in preparing of the newcomers to their duties in offices thanks to great experience of
the School’s employees and its co-workers. Every department of the public administration has
the obligation to make vocational training for every new job-holder (preparatory service) and
on the pace of acquaintance process depends the effectiveness of the activity. Every director is
interested in maximally limiting these adjustments. KSAP could assist concrete offices in
passing theoretical and practical knowledge to fresh employees. Offering such service would
let the office from the necessity of delegation of its own official to help new person to adapt to
new conditions.
In the view of market competition, of a great importance for KSAP may become
specialization in these areas, which undoubtedly are the strongest points. Among them, one can
include: general administration issues (functioning of the public administration, creating public
policies, public management, internal audit, administration procedures code, public finances,
budget and many more). In these themes, KSAP has huge advantage over external training
companies due to specific portfolio, placement near highest organs of the state, qualification of
scientific cadre – guarantying better understanding of this issue. Role of the School is also
strengthened by exclusivity of conducting Linguistic Certification Proceedings – necessary for
every member of the civil service wanting to prove his/her linguistic competences and
mandatory to become a nominated civil servant.
In 2008, some 3950 employees in public administration took part in the training courses
offered by KSAP. The greatest challenge for School up to now is participation in organization
of well-developed training for Polish Corps of 1200 civil servants from selected offices to have
been prepared for Polish Presidency of the Council of the European Union.
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3) Overall/think tank
The Chancellery of PM could support financially and organizationally KSAP to let it
become a think tank. Prime Minister should commission analyses, opinions, evaluation of law
projects or drafting public policies of the KSAP and not various external, private companies.
To achieve this goal, the School should prove that is able, especially from scientificsubstantive point of view. Poland is in such a stage of its development that it should to
establish such a specialized centre. There is a great need for extensive research on
administration issues to be conducted by academics for practical purposes. The role of a think
tank would be not only to analyze best scenarios possible, advise the PM, but also to propose
specific measures and of course support their implementation. Only by doing so could KSAP
become a full-fledged education-advisory body which could serve both theoretical and
organizational-practical purposes.
Very important element of the KSAP activities is international cooperation with plenty
of institutions, offices and international organizations. The school actively and regularly
participates in duties of IASIA (International Association of Schools and Institutions of
Administration), NISPAcee (Network of Institutions and Schools of Public Administration in
Central and Eastern Europe) and particularly ENA (École Nationale d’Administration), which
links with KSAP are very strong. Many seminars and meetings are conducted by KSAP with
great participation of foreign guests.
KSAP engages in the process of administration reforms in states of our region, what is
reflected by Educational Program for Students from Central and Eastern Europe, which main
task is to prepare officials to work on high-ranked posts. There are also organized study trips
and workshops for representatives of these countries. KSAP also takes many delegations from
such distant countries like People’s Republic of China or Georgia. Since 1998 in cooperation
with French ENA, European Integration Study was established, which aim is acquaintance
with European issues. In 2009 director J. Czaputowicz was hosted at the UN in New York – it
was connected with UN Award for KSAP for “Advancing Management in Government”.
It must be underlined, that presently KSAP has no strong competition. It is caused by
different factors: firstly, it acts above university system on the basis of separate legal act.
Secondly, on “the market” there is no similar institution, which could have such program.
Truly, they educate specialists in very narrow areas, but none of them like KSAP. Even
European Institute of Public Administration, which trains officials from around the Europe in
public finances and makes analyses and researches commissioned by EU’s institutions.
IV.
Conclusions
Krajowa Szkoła Administracji Publicznej (NSPA) is very significant actor on the public
administration stage. Throughout the 20-year history it showed that it is able to “produce”
capable, open-minded, reliable with state-attitude graduates who generally wish to make their
careers in civil service for overall prosperity. In most cases, KSAP-ers are perceived as a hardworking, well-prepared and permanently raising their qualifications. They constitute a valuable
contribution to the work in public institutions.
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KSAP should consider increasing promotion and advertising activities, care about its
image, improve public relations sector and return to previous, proven practices consisting in
maintaining good relations with the media. It means inviting journalists and giving interviews
to the radio and television stations. KSAP needs to renew its contacts with various information
circles to make other institutions and potential candidates awake of its assets and activities.
This short paper was to present possessing a true potential of KSAP reflecting in
intellectual achievement, experience of one thousand of “KSAP men”, technical infrastructure
and facility, as well as know how and recognized brand. Thanks to the features mentioned
above, if well managed, the School plays a significant role in modern system of preparing to
work and serve in public administration for School’s students and to raise qualifications for
officials already employed. Creating from KSAP a genuine advisory institution is serious
challenge, but with good political will, it can be managed. Postulate of strengthening KSAP’s
role as a central center for educating Polish administration and popularizing knowledge in
society about its goals and successes still remains relevant.
As for the leading theme of the conference, “Public Administration in Times of Crisis”,
the author is convinced that there should be a constant debate and discussion (in various forms
and on different levels) on how to improve effectiveness and reliability of the state and deliver
administrative services to the public. This postulate should be addressed at decision-makers so
that they could take KSAP into consideration as a institutional-substantive complex (centre)
which could efficiently create added value for Poland. Financial crisis, should not in any way,
hinder actions to develop country’s capabilities further. The only limitations should pertain to
expenditures and purchases. There is no reason to cut the spendings of the administration,
because even in difficult times its goals remain the same. Meanwhile the cost of making
redundancies in the times of crisis can be much higher than previously expected in the long run
due to the need for reemployment of the workforce when the crisis is over. The worst action to
be taken in the times of economic instability is to reduce the workforce. Such a step may result
in overloading the remaining employees with responsibilities of those who have been laid off.
This in turn is likely to affect the workflow and cause frustration among the workforce.
All that has been mentioned above applies to KSAP as well: any significant redundancy
made today could slow down the process of improving administration’s abilities in the future.
Therefore it is necessary to avoid any disturbances of the activities of the School so that it can
fulfill its obligation stipulated in legal acts as it has been doing over the last twenty years.
Investing in KSAP, is in the same time investment in the future of Poland, in efficient and
experienced administration, then constant improvement of Polish international position and
internal stability by effective state management by means of competent official corps.
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