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Executive Reform in Serbia. A Comparative Perspective

Executive Reform in Serbia. A Comparative Perspective. Martin Brusis Center for Applied Policy Research University of Munich. Challenges to executive governance. Building political government rather than office-seeking or technocracy

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Executive Reform in Serbia. A Comparative Perspective

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  1. Executive Reform in Serbia. A Comparative Perspective Martin Brusis Center for Applied Policy Research University of Munich

  2. Challenges to executive governance • Building political government rather than office-seeking or technocracy • Overcoming authoritarian legacies of politicization, segmentation and clientelism • Preparing for EU membership • Establishing an accountable, effective and reliable public administration

  3. Determinants of executive reform • Parties and parliament: multipolar vs. bipolar • Formative configurations of government, state administration and society • Institutional culture: patrimonial - bureaucratic • EU expectations and requirements: incentives for domestic policy entrepreneurs

  4. Milestones of executive reform in Serbia • 2001 New decree on the government office and new standing order of the government • May 2002 Ministry of State Administration and Local Self-Government established • October 2002 „Elements of a strategy of administrative reform“ • 2002-03 Functional reviews of line ministries • October 2004 Public administration reform strategy • 22 June 2005: Law on government • 25 August 2005: Decrees on (deputy) PM‘s advisory cabinets • 16 September 2005: Laws on state administration and civil servants • A new constitution towards the end of 2005?

  5. Locating the executive in the political system • Premier-presidential system: alternating cohabitation • Parliamentary accountability: minority rule • State Union and subnational government • Constitutional court

  6. Executive terrain • „Ministries are independent in exercising their competences“ (Art. 94 Constitution) • Parliamentary prerogative of defining task areas and internal organization of ministries • five levels of hierarchy; „a preoccupation with control and a philosophy of command“

  7. Prime minister – cabinet - ministers • general secretariat as a government registrar • personal advisory cabinets of PM and deputy PM attached to general secretariat • cabinet and committee meetings to formally approve decisions rather than to discuss them • informal coordination prevails • PM may now establish councils to comment on proposals by other cabinet members

  8. Comparing government offices

  9. Comparing prime ministerial powers

  10. Politics and administration • Political appointees: state secretary; personal advisors to ministers • „Should-be“ civil servants: assistant ministers; secretary of the ministry

  11. Determinants of executive reform and emerging models of government

  12. Conclusion From ministerial to cabinet government? • collective parliamentary accountability • cabinet discretion over ministerial organization • regular horizontal coordination among top-level civil servants to filter cabinet agenda

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