Public Service Ethics in Estonia

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Public Service Ethicsin Estonia
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Public Service Ethics in Estonia

• The presentation
• System of public service and public service
  ethics in Estonia (organization and coordination,
  current issues)
• Estonian Public Service Code of Ethics
• Survey Ethical Values in Estonian Public Service
  (2005)

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System of public service and public service
ethicsin Estonia
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Public Service System and Ethics Chronology

• 1991 Beginning of reorganisation, political
  changes
• 1996 Public Service Act (PSA)? open,
  position-based system with a few elements of
  career system
• 1999 Public Service Code of Ethics (appendix to
  the PSA)
• 2002 drafting of a new PSA (not adopted)
• 2004 The Framework Document for Public Service
  Development (flexibility in management, competent
  public servants, performance-related remuneration
  system, deregulation)
• 2004 Anti-Corruption Strategy Honest State

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Coordination of Public Service Development

• Decentralised system
• Division of responsibilities
• State Chancellery (HR management and training,
  leadership development, ethics, statistics)
• Ministry of Finance (strategic planning, quality
  management, remuneration)
• Ministry of Justice (public service legislation)
• Ministry of Interior (development of regional and
  local administration)

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Coordination of Public Service Ethics

• Decentralised ethics coordination system, with
  development and training devolved to individual
  organisations
• The role of the State Chancellery
• Central coordination of activities
• Organising training courses and elaborating
  central training materials in ethics
• Organising the exchange of information
• If necessary, initiating draft regulations and
  amendments to laws
• In the near future supporting the Council of
  Civil Service Ethics)
• State Chancellery is also responsible for setting
  annual training priorities for the public
  service. In 2005 ethics is one of the priorities.

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Principles of Central Co-Ordination in PSE
(draft)

• Purpose of the document
• to design the way of central coordination in the
  sphere of ethics at public offices, aiming to
  promote and develop a consistent system of civil
  service
• to describe the aims and responsibilities in the
  field of ethics at different levels of public
  service
• The document is of an advisory character

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Principles of Central Co-Ordination in PSE
(draft)

• Elements of ethics infrastructure
• Codes of conduct
• Process of professional socialisation
• Conditions of PS supporting integrity (HRM)
• Responsibility and control

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Current HRM Issues in Public Service Development

• Agreement on the future public service
  development framework, adoption of amendments to
  the Public Service Act
• Reorganisation of public service pay system,
  greater transparency in remuneration
• Improved coordination and strategic approach in
  HR policy across the public service

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Current Issues in the Development of PSE

• Mobility of civil servants between public and
  private sector requires common values in PS
• Proactive role of training in PSE
• Enhancement of professional, e.g. ethical
  competencies of public servants 
• Reinforcement of public service ethics and
  values, implementation of Code of Ethics
• Seeking support from top managers

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Estonian Public Service Code of Ethics
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Estonian Public Service Code of Ethics

• Composed and adopted by Riigikogu (Estonian
  Parliament) in 1999
• Annex to the Public Service Act
• Contains all important (core) values recommended
  by EU and OECD

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Estonian Public Service Code of Ethics

• Mentioned in the oath of office
• I swear to be faithful to the constitutional
  order of Estonia and to perform in a
  conscientious and accurate manner the functions
  which the office entrusted to me requires. I am
  aware that the law prescribes liability for a
  breach of duties or the public service code of
  ethics.

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Code of EthicsPosition of PS in the State

• An official is a citizen in the service of
  people.
• The activities of an official shall be based on
  respect for the Constitution of the Republic of
  Estonia provided for in the oath of office.
• An official shall adhere, in his or her
  activities, to the legally expressed will of
  politicians who have received a mandate from the
  citizens.

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Code of EthicsPrinciples of Public Life

• 4. Public authority shall be exercised solely in
  the public interest.
• 5. Public authority shall always be exercised
  pursuant to law.
• 6. The exercise of public authority shall always
  involve liability.
• 7. The exercise of public authority is, as a
  rule, a public activity.
• 8. An official shall be prepared to make
  unpopular decisions in the public interest.
• 9. A person exercising public authority shall
  endeavour to achieve as broad participation of
  citizens in the exercise of authority as
  possible.
• 10. An official shall always, in his or her
  activities, subject departmental interests to
  public interest.

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Code of EthicsProfessional Qualities

• 11. An official shall be politically impartial in
  his or her activities.
• 12. An official shall make decisions based on
  public and generally understandable criteria.
• 13. An official shall avoid creating a situation,
  which arouses or may arouse suspicion with regard
  to his or her impartiality or objectivity in
  considering matters under suspicion.
• 14. An official shall treat property entrusted to
  him or her economically, expediently and
  prudently.
• 15. An official shall use information, which
  becomes known to him or her through official
  duties solely in the public interest.

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Code of EthicsPersonal Qualities

• 16. A person exercising public authority is
  characterised by honesty and respect for the
  public and co-employees.
• 17. An official shall be polite and helpful when
  communicating with people.
• 18. An official shall be respectable, responsible
  and conscientious.
• 19. An official shall do his or her best in the
  public service by constant individual
  development.
• 20. An official shall facilitate the spread of
  the above principles in every way.

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Codes of Ethics
Estonian Public Service Code of Ethics
Core values, codes of conduct of governmental
institutions according to specific needs
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Survey Ethical values in Estonian Public
Service(2005)
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Questions

• What kind of values are espoused in public
  service?
• (comparsion with international community)
• What does PS ethics implementation and
  development depend on?
• Survey Values, attitudes and
  roles in the public service

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Survey

• Initiated by State Chancellery
• Conducted by Estonian Institute of Humanities and
  Faktum
• 960 civil servants at all levels
• Approximately 3,3 of all civil servants
• Started in June 2005
• Final report in March 2006

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Moral Demands in Public, Private and Business
Sector
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Values in Public Service
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Awareness of Codes of Ethics
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Higher Moral Demands to Public Servants
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Values in PS Organisations
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Need for Training in Ethics
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Conclusions

• All important values for democratic countries are
  accepted
• Awareness of codes of ethics is low
• Codes are not widely used for creating
  professional PS body
• Level of HRM and acceptance of professional
  values are not interdependent
• The role of professional socialisation in
  creating common values is greater
• Longer tenure
• Creating organisational culture
• Adopting and recognising important values

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• Additional information
• Aive Pevkur
• aive.pevkur_at_riigikantselei.ee
• Department of Public Service
• State Chancellery of Estonia