Dornier SystemConsult
Restructuring of the Ministry of Transport and Communications,
Georgia
Technical Report (I): MOTC organisation, functions,
staffing plan and job descriptions July, 2001
Table of Contents
1. INTRODUCTION 7
1.1. Purpose of the Report 7
1.2. Structure of the Report 7
1.3. Time Frame 7
1.4. Report Objectives 8
2. International transport reform Experience 8
2.1. Introduction 8
2.2. Finland 8
2.2.1 General 8
2.2.2 The Ministry/regulatory body relationships 8
2.2.3 The Ministry/State Enterprises and company relationships 9
2.3. New Zealand 10
2.3.1 General 10
2.3.2 The Ministry 10
2.3.3 The Regulatory Bodies 10
2.4. International Institutional Patterns 12
3. Background 12
3.1. Existing MOTC Organisational Structure 12
3.1.1 Transport functions 13
3.1.2 Communications functions 14
4. basis of restructuring 16
4.1. Functional Analysis 16
4.1.1 Transport Sector 16
4.1.2 Communications Sector 19
4.2. Recommended MOTC Organisation Structure 22
5. The Minister 24
5.1. Mission Statement 24
5.2. Key Issues 24
5.2.1 Integration of Transport and Communications 24
5.2.2 Making the Regulatory Agencies and Sector Businesses Self-funding 24
5.2.3 Expansion of Transport Modes 25
5.2.4 International Agreements 25
5.2.5 Promotion of Private Sector Participation 25
5.2.6 Establishing working relationship with independent regulator 25
5.2.7 Reforming relationships with State Enterprises 25
5.3. Main Functions 25
5.3.1 Appointment and Removal of Officials 26
5.3.2 Approval of Reports and Submissions 26
5.3.3 Report and Monitoring 27
5.3.4 Enterprise Annual Reports 27
5.3.5 Communications Co-ordination 27
5.3.6 Transport Co-ordination 27
5.4. Organisation Structure 28
5.4.1 Minister’s Office 28
5.5. Staff Profiles of Key Professional Members 28
5.5.1 Ministry of Transport and Communications 28
5.5.2 Deputy Minister (transitional period) 28
5.5.3 Division Heads 28
5.6. Staff Levels 29
5.7. Funding Basis 29
6. Ministry of Transport and Communications 29
6.1. Communications Division 29
6.1.1 Mission Statement 29
6.1.2 Division Functions 29
6.1.3 Subsidiary functions 34
6.1.4 Organisational Structure 35
6.1.5 Staff Profiles of Key Professional Members 37
6.1.6 Head of Division and/or Units 37
6.1.7 Staff Levels 37
6.1.8 Funding Basis 37
6.2. MOTC - Transport Policy and Inter-modal Co-ordination Division 37
6.2.1 Mission Statement 37
6.2.2 Main Functions 38
6.2.3 Sub-Functions 38
6.2.4 Organisation Structure 41
6.2.5 Staff Profiles of Key Professional Members 42
6.2.6 Staff Levels 42
6.2.7 Funding Basis 42
6.3. MOTC – Legal Affairs Division 42
6.3.1 Mission Statement 42
6.3.2 Key Issues 42
6.3.3 Main Functions 43
6.3.4 Organisation Structure 43
6.3.5 Staff Profiles of Key Professional Members 44
6.3.6 Staff Levels 44
6.3.7 Funding Basis 44
6.4. MOTC – International Affairs Division 44
6.4.1 Mission Statement 44
6.4.2 Key Issues 44
6.4.3 Main Functions 45
6.4.4 Organisation Structure 45
6.4.5 Staff Profiles of Key Professional Members 45
6.4.6 Staff Levels 45
6.4.7 Funding Basis 45
6.5. MOTC – Administrative Services Unit 46
6.5.1 Mission Statement 46
6.5.2 Key Issues 46
6.5.3 Main Functions 46
6.5.4 Organisation Structure 46
6.5.5 Staff Profiles of Key Professional Members 46
6.5.6 Staff Levels 46
7. Transport administrations 46
7.1. Mission Statement 46
7.2. Key Issues 47
7.2.1 Quality of Services 47
7.2.2 Judicial Powers & Approvals 47
7.2.3 Permitting, Inspection and Certification 47
7.2.4 Self-Sustainable Enterprises 47
7.3. Main Functions 48
7.3.1 General Duties of Transport Administrations 48
7.4. Organisation structures 50
7.4.1 Civil Aviation Administration 50
7.4.2 Maritime Administration 51
7.4.3 Auto-motor Transport Administration 52
7.4.4 Railway Administration 53
7.5. Staff Profiles of Key Professional Members 54
7.5.1 Head of Modal Administration 54
7.6. Staff Levels 54
7.7. Funding Basis 54
8. Transport safety Agency (future) 54
8.1. Mission Statement 54
8.2. Key Issues 55
8.2.1 Safety Management 55
8.2.2 Accident Investigation 55
8.2.3 Safety Monitoring 55
8.2.4 International Agreements 55
8.3. Main Functions 55
8.4. Organisation Structure 56
8.5. Staff of Key Professional Members 56
8.5.1 Safety Body Agency Chairman 56
8.5.2 Secretariat Director 56
8.6. Staff Levels 56
8.7. Funding Basis 56
9. Independent State Enterprises 57
9.1. General 57
9.2. Main Functions 57
9.3. Documentation 57
9.4. Current Scope For Re-structuring 57
9.4.1 Air Transport 57
9.4.2 Maritime 58
9.4.3 Georgia State Railways 58
9.4.4 State Department of Roads 58
9.4.5 Traffic Police 58
9.4.6 Road Freight 58
9.4.7 Municipal Transport 58
9.4.8 Private Companies 58
ANNEX A – PROPOSED TRANSPORT SECTOR FUNCTION RESPONSIBILITIES
ANNEX B – Proposed MOTC Staff Lists
ANNEX C – Job Descriptions
LIST OF TABLES
Table 1 Ministry Functions in Transport Sector
Table 2 Functions of the Regulatory Transport Administrations
Table 3 Communications Functions and Main Objectives
LIST OF FIGURES
Figure 1 Finland Ministry and Regulatory Bodies
Figure 2 New Zealand Ministry and Regulatory Bodies
Figure 3 Current Structure of the MOTC
Figure 4 Current Structure of the Communications Department
Figure 5 Proposed Overall MOTC Structure
Figure 6 Summary of the Communications Policy Development Process
Figure 7 Proposed Structure of Communications Division
Figure 8 Proposed Structure of Civil Aviation Administration
Figure 9 Proposed Structure of Maritime Transport Administration
Figure 10 Proposed Structure of Auto-motor Transport Administration
Figure 11 Proposed Structure of Railway Administration
LIST OF ABBREVIATIONS
ICAO International Civil Aviation Authority
MOTC Ministry of Transport & Communications
TACIS Technical Assistance to the Commonwealth of Independent States
TRRC Transport Rehabilitation & Reform Centre
GNPTRC Georgian National Post and Telecommunications Regulatory Commission
1. INTRODUCTION
1.1. Purpose of the Report
This report serves as a manual of functions and is designed to be the organisational basis for restructuring of the Ministry of Transport and Communications (MOTC) of Georgia. The report sets out the main responsibilities of the transport and communications segments of the Ministry and the Modal Transport Administrations and defines the functions and activities associated with the management, regulation and administration of the transport and communications sectors in Georgia.
The functions and activities are described in sufficient detail to permit work plans for MOTC units and transitional staffing plans to be prepared.
1.2. Structure of the Report
Section 2 outlines international experience of structuring the transport sector. Background information about transport and communications sectors of Georgia is given in Section 3. Main transport and communications functions and the proposed organisational structure are described in Section 3.
The Mission statements and main responsibilities are given in Sections 4 to 7 for the following:
q The Minister
q The Ministry and its Divisions
q Transport Modal Administrations
q Transport Safety Agency
q State Enterprises
Annex A proposes the allocation of function responsibilities in the transport sector
Annex B presents staff lists for all divisions and units
Annex C contains job descriptions for all professional staff
1.3. Time Frame
The manual is not a static document; it is a working tool to help the Ministry evolve into an efficient business-like organisation. The manual describes both the ultimate stage of re-organisation and a transitional stage. Many but not all features of the new organisation structure can be implemented soon. Other changes required to complete the reform process might take time and additional resources. The manual will have to be updated often as the MOTC and its sub-divisions take shape and begin to undertake new duties.
1.4. Report Objectives
This report covers the process of agreeing functions, which will be used to define the future organisational structure of the Ministry of Transport and Communications (MOTC). The functional analysis of the transport and communications sectors and the assignment of duties to the MOTC and its various component parts are the primary basis for the recommended organisation structure. A secondary basis is the organisation structures found in other state transport ministries in countries of a similar size and complexity. The experience in other countries that have recently re-organised their transport ministries is useful, as it helps define the reasons for the separation of functions. This is an important feature of the proposed organisation structure.
The report is designed to be a working tool for guiding the MOTC and staff as they undertake their primary activities. It is a fully developed description of the new organisational structure for the Ministry.
The manual does not discuss the legal requirements for reform, define retrenchment methods, set out pay scales or outline training requirements. These are set out in separate technical reports (II) - Statutes, (III) - Retrenchment and Pay scale Reform and (V) - Training.
2. International transport reform Experience
2.1. Introduction
Transport sector reforms involving deregulation, competition and commercialisation are being implemented not only in former Soviet Union countries. Many western countries started these reforms a decade or more ago as a result of changes in the perception of how to provide transport services The transport sector structures in Finland and New Zealand are presented below as two successful examples of sector reform. These illustrate the best international practices now being used in the transport sector, although no one structure is directly exportable to another country without careful consideration of the National social and political conditions.
2.2. Finland
2.2.1 General
There are seven Government departments and agencies, one state-owned enterprise and seven state-owned companies operating under the general supervision of the Ministry of Transport and Communications. The sector structure is given in Figure 1.
2.2.2 The Ministry/regulatory body relationships
The Government departments and budget-approved agencies, which regulate the sector, are independent organisations operating according to individual business plans. They use part of their revenues to finance direct operational expenses. The task of the Ministry is to monitor and supervise their work. The means of monitoring include annual service goals and follow-up of their implementation and monitoring of the use of funds.
2.2.3 The Ministry/State Enterprises and company relationships
The Ministry of Transport and Communications acts as the owner of state-owned joint stock companies and enterprises within the field of transport and communications. The Ministry monitors their overall performance requiring them to be profitable, productive and providers of good service. This ensures the ability to maintain dividends and promote the growth in the value of the companies and the development of services. The Ministry of Transport and Communications is responsible for expansion and privatisation processes. The Ministry of Transport and Communications also approves for the state-owned enterprises the business plans, which carry out the strategic goals, set by the Cabinet of Ministers.
Figure 1
Finland Ministry and Regulatory Bodies
2.3. New Zealand
2.3.1 General
The Government role in overseeing the transport sector has been focused on ensuring that the transport system contributes the maximum benefit to New Zealand at the minimum cost, consistent with sustainable development. The Minister of Transport receives strategic policy advice from the Ministry of Transport. The Ministry also has a role in co-ordinating the activities of the Crown entities, which administer various aspects of the Government’s role in the transport sector. The sector structure is illustrated on Figure 2.
2.3.2 The Ministry
The Ministry of Transport's core functions are largely policy oriented - ensuring that the Government receives high quality advice and information relating to the promotion of safe, sustainable transport at reasonable cost.
As the Minister of Transport's agent, the Ministry plays an important role in negotiating and monitoring contracts with the stand-alone crown bodies. These are the Civil Aviation, Maritime Safety and Land Transport Safety Authorities, the Aviation Security Service, Transit New Zealand, Trans-fund New Zealand and the Transport Accident Investigation Commission. The Ministry also manages the Motor Vehicle Registry and Revenue Management business. The development of any legislation for the transport sector is also the Ministry's responsibility.
The Ministry also formulates and implements policy relating to the development of New Zealand's international air transport links.
2.3.3 The Regulatory Bodies
The transport Crown entities were set up as part of a fundamental exercise to refocus the Government’s role in transport. These roles had previously been scattered across a number of Government departments and agencies; were highly diffused; and suffered from poor (or almost non-existent) accountability.
Each of the transport entities is controlled by a Board of Directors or Authority appointed by and accountable to the Minister of Transport. The make-up of each board is specified in the legislation setting up the entity.
In addition to annual negotiated “Performance Agreements” with the transport entities, the relationships between the Minister, the Ministry and each entity are set out in the ‘Protocols and Guidelines’, which are distributed to all Board and Authority members and entity senior management. These agreements are negotiated by the Minister, through the Ministry, prior to the commencement of each financial year and they are signed by the Chairperson of the Board of each entity and by the Minister. The purpose of the “Performance Agreements” is to:
q define the nature of the relationships between the Minister, Ministry and entities;
q agree on the budget for each entity for the coming year. This includes expenditures funded from government sources and third party revenues;
q agree on performance measures and levels, for the coming year; and
q enable effective monitoring of performance and compliance with regulations for each entity.
The Minister also has a “Performance Agreement” with the New Zealand Police (signed jointly with Minister of Police). The New Zealand Police delivers road safety. This is funded through income from the National Road Fund.
The Minister of Transport also has a number of other direct agreements/contractual arrangements, the main one being with the Land Transport Safety Authority for the management and administration of Motor Vehicle Registration/Revenue Management. This contract is commercially based.
The Minister receives regular reports on entity performance under these agreements and, in the light of these reports, writes to the Chairs of the entities suggesting new directions and/or improvements. In addition, regular audits and performance reviews of these entities are conducted.
Figure 2
New Zealand Ministry and Regulatory Bodies
2.4. International Institutional Patterns
The patterns prevailing in the above examples are characterised by the following: