Coordination
#30Key Findings
Slovakia is the SGI 2024’s worst performer (rank 30) in the category of coordination.
The government office has limited capacity to evaluate policy proposals from line ministries and ensure they are aligned with the government’s overall priorities. The Legislative Council of the Government assesses draft laws, but has minimal influence the process of preparing policy proposals.
Ministries have substantial autonomy, with coordination typically occurring during the formal review process, after the legislation is developed. Government councils serve a largely sectoral advisory role, with some having cross-sectoral focus. Informal coalition council meetings involving the leaders of coalition parties sometimes serve a coordinating role.
Public service provision standards for decentralized functions in areas such as social assistance, land use, waste management and public transport are poorly defined. Compliance monitoring is fragmented.
The government office has limited capacity to evaluate policy proposals from line ministries and ensure they are aligned with the government’s overall priorities. The Legislative Council of the Government assesses draft laws, but has minimal influence the process of preparing policy proposals.
Ministries have substantial autonomy, with coordination typically occurring during the formal review process, after the legislation is developed. Government councils serve a largely sectoral advisory role, with some having cross-sectoral focus. Informal coalition council meetings involving the leaders of coalition parties sometimes serve a coordinating role.
Public service provision standards for decentralized functions in areas such as social assistance, land use, waste management and public transport are poorly defined. Compliance monitoring is fragmented.
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Graph View
To what extent do established coordination mechanisms between the government’s office and line ministries effectively enhance policy coherence?
10
9
9
Functional coordination mechanisms between line ministries and the GO/PMO, aimed at enhancing policy coherence, are in place.
8
7
6
7
6
Largely functional coordination mechanisms between line ministries and the GO/PMO, aimed at enhancing policy coherence, are in place.
5
4
3
4
3
Coordination mechanisms between line ministries and the GO/PMO, aimed at enhancing policy coherence, are only somewhat functional.
2
1
1
Coordination mechanisms between line ministries and the GO/PMO, aimed at enhancing policy coherence, are not at all functional.
The European Semester 2022 country report on Slovakia is critical of horizontal coordination (European Commission, 2022: 9): “The low capacity of the public administration is a serious bottleneck for investments and reforms. The lack of human resource management, effective governance, and coordination across areas such as administration, justice, services to people and businesses, and research and innovation often results in delayed or only partial implementation of reforms. The limited capacity of the Government Office to evaluate policy proposals from line ministries and to ensure they are aligned with the government’s overall priorities is one of the reasons for such evaluation.”
The specialized body within the Government Office regularly involved in assessing government-sponsored draft bills is the Legislative Council of the Government of the Slovak Republic. The statute of this council defines its main responsibilities as follows:
- Coordinating and directing the activities of ministries and other central state bodies; reporting on the preparation of draft laws and government regulations.
- Discussing and assessing drafts of constitutional laws, laws, government regulations, proposals, legislative intentions, and parliamentary bills when the chairman of the Slovak National Council requests the government’s opinion on these proposals and international treaties, which take precedence over laws;
- Preparing opinions for government deliberations on draft constitutional laws, laws, and regulations of the government, as well as on legislative proposals and parliamentary bills if the chairman of the National Council of the Slovak Republic requests the government’s opinion on these proposals, and by drafting international agreements that take precedence over law.
However, since assessing draft laws and regulations is the main function of this body, its opportunity to coordinate government policies and influence policy proposal preparations is minimal.
Citations:
European Commission. 2022. Country Report – Slovakia. Brussels: European Commission.
https://commission.europa.eu/system/files/2022-05/2022-european-semester-country-report-slovakia_en.pdf
https://www.vlada.gov.sk/legislativna-rada-vlady-sr/
The specialized body within the Government Office regularly involved in assessing government-sponsored draft bills is the Legislative Council of the Government of the Slovak Republic. The statute of this council defines its main responsibilities as follows:
- Coordinating and directing the activities of ministries and other central state bodies; reporting on the preparation of draft laws and government regulations.
- Discussing and assessing drafts of constitutional laws, laws, government regulations, proposals, legislative intentions, and parliamentary bills when the chairman of the Slovak National Council requests the government’s opinion on these proposals and international treaties, which take precedence over laws;
- Preparing opinions for government deliberations on draft constitutional laws, laws, and regulations of the government, as well as on legislative proposals and parliamentary bills if the chairman of the National Council of the Slovak Republic requests the government’s opinion on these proposals, and by drafting international agreements that take precedence over law.
However, since assessing draft laws and regulations is the main function of this body, its opportunity to coordinate government policies and influence policy proposal preparations is minimal.
Citations:
European Commission. 2022. Country Report – Slovakia. Brussels: European Commission.
https://commission.europa.eu/system/files/2022-05/2022-european-semester-country-report-slovakia_en.pdf
https://www.vlada.gov.sk/legislativna-rada-vlady-sr/
To what extent are there positive (formalized) forms of coordination across ministries that aim to enhance policy coherence?
10
9
9
Interministerial coordination mechanisms targeting policy coherence provide incentives for identifying synergies and opportunities.
8
7
6
7
6
Interministerial coordination mechanisms targeting policy coherence sometimes provide incentives for identifying synergies and opportunities.
5
4
3
4
3
Interministerial coordination mechanisms targeting policy coherence rarely provide incentives for identifying synergies and opportunities.
2
1
1
There are no interministerial coordination mechanisms targeting policy coherence that provide incentives for identifying synergies and opportunities.
The only formal bodies visible through the online search responsible for interministerial coordination are the Councils of the Government. These councils (23 in total) have an advisory role, with most having sectoral responsibilities. A few exhibit cross-sectoral characteristics, such as the Council of Government of the Recovery and Resilience Plan. No specific digital technologies facilitate interministerial coordination. Work-related incentives are formally available but rarely used. RIA and other formal pre-consultation procedures do not provide sufficient incentives for identifying synergies and opportunities. The Government Office
focuses on draft bills’ legal and technical coherence but lacks the capacity and sectoral expertise to evaluate their policy content. The legislative process encourages negative coordination by providing comments on draft laws. The current situation is not evaluated by any academic or other official online text, but the relatively old evaluation by Staroňová (2007) remains valid. Staroňová (2007, 120) states, “Coordination takes place only after the legislation is developed during the formal review process in the adoption phase of legislation (the so-called ‘commenting period’) and follows a very formal sequencing as stipulated in the Legislative Rules…. In general, there is a strong sense that ministries are autonomous organizations.”
Citations:
Staroňová, K. 2007. “Executive Leadership and Policy Management System: The Case of Slovakia.” In Strategic Policy Making in Central and Eastern Europe, eds. M. Brusis, K. Staroňová, and R. Zubek. Bratislava: NISPAcee, 117-134.
focuses on draft bills’ legal and technical coherence but lacks the capacity and sectoral expertise to evaluate their policy content. The legislative process encourages negative coordination by providing comments on draft laws. The current situation is not evaluated by any academic or other official online text, but the relatively old evaluation by Staroňová (2007) remains valid. Staroňová (2007, 120) states, “Coordination takes place only after the legislation is developed during the formal review process in the adoption phase of legislation (the so-called ‘commenting period’) and follows a very formal sequencing as stipulated in the Legislative Rules…. In general, there is a strong sense that ministries are autonomous organizations.”
Citations:
Staroňová, K. 2007. “Executive Leadership and Policy Management System: The Case of Slovakia.” In Strategic Policy Making in Central and Eastern Europe, eds. M. Brusis, K. Staroňová, and R. Zubek. Bratislava: NISPAcee, 117-134.
How effectively do informal coordination mechanisms complement formal mechanisms of interministerial coordination?
10
9
9
Informal coordination mechanisms complement formal mechanisms of interministerial coordination.
8
7
6
7
6
In most cases, informal coordination mechanisms complement formal mechanisms of interministerial coordination.
5
4
3
4
3
In some cases, informal coordination mechanisms undermine formal mechanisms of interministerial coordination.
2
1
1
Informal coordination mechanisms undermine formal mechanisms of interministerial coordination.
There is no publicly available information about the organization or contents of any informal meetings among high-ranking government officials or party groups in Slovakia. There are informal Coalition Council meetings, but only leaders of coalition parties can participate. For example, the OĽaNO-led government experienced several coordination crises – due to personal animosities between OĽaNO and SaS leaders – that undermined official efforts to enhance formal interministerial coordination mechanisms through regular meetings of coalition party leaders.
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To what extent does central government ensure that subnational self-governments meet national (minimum) standards in delivering public services?
10
9
9
The central government effectively ensures that subnational self-governments successfully meet national standards for public service delivery.
8
7
6
7
6
Most of the time, the central government ensures that subnational self-governments successfully meet national standards for public service delivery.
5
4
3
4
3
The central government rarely ensures that subnational self-governments successfully meet national minimum standards for public service delivery.
2
1
1
The central government does nothing to ensure that subnational self-governments successfully meet national standards for public service delivery.
Clearly defined nationwide minimum standards to guide the decentralized provision of public services in critical areas such as environmental services, social assistance, land use, waste management, public transport, and housing are poorly defined, especially concerning the independent functions of subnational governments. Moreover, compliance monitoring with these standards is often fragmented. If the service is the original responsibility of a self-government, like waste management, the state does not set any standards related to its delivery (however, requirements defined by the EU directives automatically apply).
In healthcare, the Healthcare Surveillance Authority supervises the delivery of health services; however, standard diagnostic and treatment procedures are still not codified. Regional self-governments are responsible for the minimum network of primary care facilities, and central authorities monitor the achievement of the centrally defined minimum standard (Government decree from 12 January 2022).
The Ministry of Education approves applications from primary and secondary schools to join the “school network” (law 245/2008 Z. z. on education). However, the minimum network is not defined. The Ministry also issues the national curricula for primary and secondary education. Compliance with the national curricula is monitored by the State School Inspection.
Citations:
Nariadenie vlády Slovenskej republiky z 12. januára 2022, ktorým sa ustanovujú podrobnosti o spôsobe ustanovenia minimálnej siete poskytovateľov všeobecnej ambulantnej starostlivosti. 2022. https://www.slov-lex.sk/pravne-predpisy/SK/ZZ/2022/11/20220201
Zákon 245/2008 o výchove a vzdelávaní (školský zákon). https://www.slov-lex.sk/pravne-predpisy/SK/ZZ/2008/245/
https://www.ssi.sk/
In healthcare, the Healthcare Surveillance Authority supervises the delivery of health services; however, standard diagnostic and treatment procedures are still not codified. Regional self-governments are responsible for the minimum network of primary care facilities, and central authorities monitor the achievement of the centrally defined minimum standard (Government decree from 12 January 2022).
The Ministry of Education approves applications from primary and secondary schools to join the “school network” (law 245/2008 Z. z. on education). However, the minimum network is not defined. The Ministry also issues the national curricula for primary and secondary education. Compliance with the national curricula is monitored by the State School Inspection.
Citations:
Nariadenie vlády Slovenskej republiky z 12. januára 2022, ktorým sa ustanovujú podrobnosti o spôsobe ustanovenia minimálnej siete poskytovateľov všeobecnej ambulantnej starostlivosti. 2022. https://www.slov-lex.sk/pravne-predpisy/SK/ZZ/2022/11/20220201
Zákon 245/2008 o výchove a vzdelávaní (školský zákon). https://www.slov-lex.sk/pravne-predpisy/SK/ZZ/2008/245/
https://www.ssi.sk/
To what extent do national policymakers effectively collaborate with regional and local governments to improve the delivery of public services?
10
9
9
National policymakers work effectively with regional and local governments to improve the delivery of public services.
8
7
6
7
6
In general, national policymakers work effectively with regional and local governments to improve the delivery of public services.
5
4
3
4
3
National policymakers rarely work effectively with regional and local governments to improve the delivery of public services.
2
1
1
There is no effective multilevel cooperation between the central and subnational governments.
Overall, Slovakia’s legislative framework requires subnational self-governments (regional and local) to actively discuss central government policy initiatives that directly affect them. Many formal and informal forums operate mostly on a hierarchical basis; however, it is difficult to establish any regular pattern regarding binding decisions or informal recommendations. Typically, the central government cooperates with self-governments and their organizations.
Previous Fico-led governments organized meetings in various locations across Slovakia to consult with respective self-governing bodies. However, the quality of these discussions and the relationship between the central state and self-governments significantly depend on the different administrations. During the 2022 Matovič and Heger governments, relations between the central state and representative organizations of self-governments (ZMOS – Association of all municipalities; SK8 – Association of Regional Self-Governments; and Únia miest Slovenska – Union of Cities) were visibly antagonistic.
For example, in September 2022, ZMOS organized protests in front of the Government Office, criticizing the government for its lack of action in dealing with inflation and the energy crisis (increasing costs). The self-government associations frequently criticized draft laws, but their comments were often ignored (see Správy RTVS, 30 June 2022). In 2023, under the caretaker government, the situation improved. With the start of the new Fico government, future relations remain uncertain.
Citations:
Obce budú mať viac peňazí, tvrdí Matovič. ZMOS však oponuje. Správy RTVS 30 June 2022. https://spravy.rtvs.sk/2022/06/obce-budu-mat-viac-penazi-tvrdi-matovic-zmos-vsak-oponuje/
www.zmos.sk
https://samospravnekraje.sk/
https://www.uniamiest.sk/
Previous Fico-led governments organized meetings in various locations across Slovakia to consult with respective self-governing bodies. However, the quality of these discussions and the relationship between the central state and self-governments significantly depend on the different administrations. During the 2022 Matovič and Heger governments, relations between the central state and representative organizations of self-governments (ZMOS – Association of all municipalities; SK8 – Association of Regional Self-Governments; and Únia miest Slovenska – Union of Cities) were visibly antagonistic.
For example, in September 2022, ZMOS organized protests in front of the Government Office, criticizing the government for its lack of action in dealing with inflation and the energy crisis (increasing costs). The self-government associations frequently criticized draft laws, but their comments were often ignored (see Správy RTVS, 30 June 2022). In 2023, under the caretaker government, the situation improved. With the start of the new Fico government, future relations remain uncertain.
Citations:
Obce budú mať viac peňazí, tvrdí Matovič. ZMOS však oponuje. Správy RTVS 30 June 2022. https://spravy.rtvs.sk/2022/06/obce-budu-mat-viac-penazi-tvrdi-matovic-zmos-vsak-oponuje/
www.zmos.sk
https://samospravnekraje.sk/
https://www.uniamiest.sk/