VPA Nr. 31

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1 ISSN (print) ISSN (online) KAUNO TECHNOLOGIJOS UNIVERSITETAS MYKOLO ROMERIO UNIVERSITETAS VIEŠOJI POLITIKA IR ADMINISTRAVIMAS Nr. 31 TECHNOLOGIJA KAUNAS 2010

2 Vyriausieji redaktoriai: Prof. habil. dr. Vladislavas Domarkas, Kauno technologijos universitetas Doc. dr. Tadas Sudnickas, Mykolo Romerio universitetas Redaktorių kolegija: Prof. PhD Erik Aalbek, Aalborgo universitetas, Danija Prof. dr.maria Aristiqueta, Pietų Floridos Universitetas, JAV Prof. PhD Larry Bakken, Hamlino universitetas, JAV Prof. PhD Howard Balanoff, Teksaso valstybinis universitetas, JAV Prof. dr. Viktorija Baršauskien, Kauno technologijos universitetas Prof. dr. Eugenijus Chlivickas, Lietuvos viešojo administravimo lavintojų asociacija Prof. habil. dr. Eduardas Jančauskas, Generolo Jono Žemaičio Lietuvos karo akademija Prof. dr. Algis Krupavičius, Kauno technologijos universitetas Prof. dr. Alan Lawton, Hull universitetas, Jungtin Karalyst Prof. habil. dr. Borisas Melnikas, Vilniaus Gedimino technikos universitetas Prof. habil. dr. Vladimiras Obrazcovas, Mykolo Romerio universitetas Prof. dr. Jolanta Palidauskait, Kauno technologijos universitetas Prof. dr. Rimantas Petrauskas, Mykolo Romerio universitetas Prof. dr. Alvydas Pumputis, Mykolo Romerio universitetas Prof. habil. dr. Stasys Puškorius, Mykolo Romerio universitetas Prof. dr. Alvydas Raipa, Kauno technologijos universitetas Doc. dr. Vainius Smalskys, Mykolo Romerio universitetas Doc. dr. Jurgita Šiugždinien, Kauno technologijos universitetas Doc. dr. Rasa Šnapštien, Kauno technologijos universitetas Prof. dr. Norbert Thom, Berno universitetas, Šveicarija Prof. dr. Theo Toonen, Leideno Universitetas, Olandija Prof. habil. dr. Edvins Vanags, Latvijos universitetas, Latvija Prof. dr. Michiel S. de Vries, Nijmegen universitetas, Olandija Šio numerio vyriausiasis redaktorius Prof. habil. dr. Vladislavas Domarkas Atsakingasis redaktorius Doc. dr. Aleksandras Patapas Interneto svetain s adresai: Redakcijos adresai: KTU Socialinių mokslų fakultetas MRU Viešojo administravimo fakultetas Viešojo administravimo katedra Viešojo administravimo katedra K. Donelaičio g. 20 Ateities g Kaunas Vilnius E. paštas: vak@ktu.lt E. paštas: vak@mruni.lt Leidžiama nuo 2002 metų Kauno technologijos universitetas, 2010 Mykolo Romerio universitetas, 2010

3 ISSN (print) ISSN (online) KAUNAS UNIVERSITY OF TECHNOLOGY MYKOLAS ROMERIS UNIVERSITY PUBLIC POLICY AND ADMINISTRATION No 31 TECHNOLOGIJA KAUNAS 2010

4 Editors: Prof. Dr. Habil. Vladislavas Domarkas, Kaunas University of Technology Assoc. Prof. Dr. Tadas Sudnickas, Mykolas Romeris University Editorial Board Prof. PhD Erik Aalbek, Aalborg University, Denmark Prof. PhD Maria Aristiqueta, University of South Florida, USA Prof. PhD Larry Bakken, Hamline University, USA Prof. PhD Howard Balanoff, Southwest Texas State University, USA Prof. Dr. Viktorija Baršauskien, Kaunas University of Technology Prof. Dr. Eugenijus Chlivickas, Lithuanian Association of Public Administration Trainers Prof. Dr. Habil. Eduardas Jančauskas, The General Jonas Žemaitis Military Academy of Lithuania Prof. Dr. Algis Krupavičius, Kaunas University of Technology Prof. Dr. Alan Lawton, University of Hull, United Kingdom Prof. Dr. Habil. Borisas Melnikas, Vilnius Gediminas Technical University Prof. Dr. Habil. Vladimiras Obrazcovas, Mykolas Romeris University Prof. Dr. Jolanta Palidauskait, Kaunas University of Technology Prof. Dr. Rimantas Petrauskas, Mykolas Romeris University Prof. Dr. Alvydas Pumputis, Mykolas Romeris University Prof. Dr. Habil. Stasys Puškorius, Mykolas Romeris University Prof. Dr. Alvydas Raipa, Kaunas University of Technology Assoc. Prof. Dr. Vainius Smalskys, Mykolas Romeris University Assoc. Prof. Dr. Jurgita Šiugždinien, Kaunas University of Technology Assoc. Prof. Dr. Rasa Šnapštien, Kaunas University of Technology Prof. Dr. Norbert Thom, Bern University, Switzerland Prof. Dr. Theo Toonen, Leiden University, Netherlands Prof. Dr. Habil. Edvins Vanags, Latvijos universitetas, Latvija Prof. Dr. Michiel S. de Vries, University of Nijmegen, The Netherlands Editor of this issue Prof. Dr. Habil. Vladislavas Domarkas Executive editor Assoc. Prof. Dr. Aleksandras Patapas Internet addresses: Editorial offices: Department of Public Administration Department of Public Administration Faculty of Social Sciences Faculty of Public Administration Kaunas University of Technology Mykolas Romeris University K. Donelaičio str. 20 Ateities str Kaunas, Vilnius Published since 2002 Kaunas University of Technology, 2010 Mykolas Romeris University, 2010

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6 ISSN (print) ISSN (online) VIEŠOJI POLITIKA IR ADMINISTRAVIMAS PUBLIC POLICY AND ADMINISTRATION 2010, Nr. 31 TURINYS Valstyb s tarnyba Viešojo administravimo etika Viešojo administravimo reformų patirtis Viešojo sektoriaus organizacijų veiklos tobulinimas Inovacijų politikos įgyvendinimas Nevyriausybinis sektorius Lietuvos valstyb s tarnybos įvaizdis visuomen je ir žiniasklaidoje... Egl VAIDELYTö Giedrius ŽVALIAUSKAS Lietuvos viešojo sektoriaus etikos kodeksai ir jų tobulinimo galimyb s... Jolanta PALIDAUSKAITö XXI amžiaus valdymo paradigmos poreikis viešajam administravimui: specifinis Portugalijos pavyzdys... César MADUREIRA David FERRAZ Lietuvos subnacionalinio valdymo struktūros ir vietos savivaldybių bei apskričių viršininkų institucijų kompetencija: empirinio tyrimo rezultatų analiz... Jūrat BALTUŠNIKIENö Kokyb s vadyba Lietuvos viešajame administravime: svarbiausiosios iniciatyvos ir jų taikymas... Vitalis NAKROŠIS Ramun ČERNIŪTö Inovacijų vaidmuo viešojo administravimo organizacijų veikloje absorbcinio geb jimo aspektu... Vladislavas DOMARKAS Vita JUKNEVIČIENö Baltijos šalių nevyriausybinių organizacijų sektorius ir demokratijos empirin s refleksijos: meta-analiz s rezultatai... Saul MAČIUKAITö-ŽVINIENö

7 ISSN (print) ISSN (online) VIEŠOJI POLITIKA IR ADMINISTRAVIMAS PUBLIC POLICY AND ADMINISTRATION 2010, Nr 31 Tarnautojų motyvacija Ekonomin s ir socialin s politikos įgyvendinimas Valstyb s tarnautojų pasitenkinimas darbu 107 ir motyvacija mokytis: lytiškumo ir amžiaus efektai... Gediminas MERKYS Rūta BRAZIENö Lietuvos pramon s konkurencingumo veiksniai eksporto politikos nuostatose... Evelina MEILIENö Vytautas SNIEŠKA 119 Vaiko globos organizavimo principų įgyvendinimas Lietuvoje... Kęstutis VITKAUSKAS 133 Knygų apžvalga Informacija Miesto patrauklumo didinimo koncepcija, kryptys ir praktika... Jolita SINKIENö Saulius KROMALCAS 147 Viešojo valdymo teorijų ir modelių interpretavimas Alvydas RAIPA Atmintin žurnalo publikacijų autoriams

8 ISSN (print) ISSN (online) VIEŠOJI POLITIKA IR ADMINISTRAVIMAS PUBLIC POLICY AND ADMINISTRATION 2010, Nr. 31 CONTENTS Civil Service Ethics in Public Administration Experience of Public Administration Reforms Performance Improvement in Public Sector Organizations Implementation of Innovation Policy Non-governmental Sector Image of Lithuanian Civil Service in Society and Mass Media... Egl VAIDELYTö Giedrius ŽVALIAUSKAS Lithuanian Public Sector Codes of Ethics: Possibilities for Improvement... Jolanta PALIDAUSKAITö The Need of a XXI Century Governance Paradigm for Public Administration: The Specific Case of Portugal César MADUREIRA David FERRAZ Sub-national Government Structure and Competence of Local Municipalities and County Governors Institutions in Lithuania: Analysis of Empirical Research Results... Jūrat BALTUŠNIKIENö Quality Management in the Lithuanian Public Sector: Main Initiatives and their Application... Vitalis NAKROŠIS Ramun ČERNIŪTö The Role of Innovations in the Performance of Public Administration Organizations on the Absorptive Capacity s Aspect... Vladislavas DOMARKAS Vita JUKNEVIČIENö Non-governmental Sector and Democracy Empirical Reflections and Findings in the Baltic States: Results of Meta-analysis. Saul MAČIUKAITö-ŽVINIENö

9 ISSN (print) ISSN (online) VIEŠOJI POLITIKA IR ADMINISTRAVIMAS PUBLIC POLICY AND ADMINISTRATION 2010, Nr 31 Motivation of Civil Servants Implementation of Economic and Social Policy Book Reviews Civil Servants Job Satisfaction and Learning Motivation: Effects of Gender and Age Gediminas MERKYS Rūta BRAZIENö Factors of Lithuanian Industrial Competitiveness in Attitude of Export Policy... Evelina MEILIENö Vytautas SNIEŠKA Implementation of Principles for Child Guardianship Organization in Lithuania... Kęstutis VITKAUSKAS Concept, Directions and Practice of City Attractiveness Improvement... Jolita SINKIENö Saulius KROMALCAS Interpretation of Theories and Models of Public Management Alvydas RAIPA Information Notes for Contributors

10 ISSN (print) ISSN (online) VIEŠOJI POLITIKA IR ADMINISTRAVIMAS PUBLIC POLICY AND ADMINISTRATION 2010, Nr. 31, p Image of Lithuanian Civil Service in Society and Mass Media Egl Vaidelyt, Giedrius Žvaliauskas Kaunas University of Technology K. Donelaičio str. 20, Kaunas Public distrust of political institutions as well as civil service itself is still dominant in Lithuanian society. The paper seeks to reveal the image of civil servants and civil service itself which undoubtedly is related with public trust. The paper is based on the analysis of empirical quantitative data and content analysis. Comparative analysis of public opinion surveys conducted in 2003 and 2008 indicate that public approach towards civil service is changing very slightly and sceptical attitudes are the leading ones. The content analysis of selected newspapers and online internet news reveals that critical information about civil service is more frequent than a positive one. It might be assumed that the above mentioned issues have negative influence on civil service image and possibly imply sceptical public attitudes towards civil service. Raktažodžiai: viešasis pasitik jimas, institucijos įvaizdis, valstyb s tarnyba, valstyb s tarnautojas. Keywords: public trust, institutional image, civil service, civil servant. Introduction In late eighties and early nineties, Lithuania, as well as other Eastern and Central European countries, have taken far-reaching radical changes moving from central planning administration economy system to western market economy based liberal political system. Evidently, the changes influenced not only politics and economics, but also public administration, especially civil service, its size, functions, budgeting, etc. On the other hand, some authors notice, that development of civil service in Lithuania started not Egl Vaidelyt Kauno technologijos universiteto Viešojo administravimo katedros docent, socialinių mokslų daktar. Asociate Professor at the Department of Public Administration, Kaunas University of Technology. E. paštas / egle.vaidelyte@ktu.lt Giedrius Žvaliauskas Kauno technologijos universiteto Politikos ir viešojo administravimo instituto vyresnysis mokslo darbuotojas, socialinių mokslų daktaras. Researcher at the Institute of Policy and Public Administration, Kaunas University of Technology. E. paštas / giedrius.zvaliauskas@ktu.lt Straipsnis įteiktas redakcijai 2010 m. sausio m n.; recenzuotas; parengtas spaudai 2010 m. vasario m n.

11 10 Egl Vaidelyt, Giedrius Žvaliauskas. Image of Lithuanian Civil Service in Society and Mass Media immediately after Independence, but almost 10 years in 1999 when Seimas adopted the Law on Civil Service and other related legislation [8, p. 425]. Anyway, the fall of communist regime and restoration of Lithuania State Independence was a starting point for a contemporary civil service in Lithuania [13, p. 55]. Unfortunately, the public trust in political and state institutions is still rather low in Lithuania [3, p ; 8, p ; 11; 10; 1]. In comparison with other EU members that joined EU in 2004, Lithuanians are the most sceptical about civil service comparing to Estonia, Latvia, Check Republic, Hungary, Poland, Slovakia, and Slovenia. Lithuanians trust civil service even less than Bulgarians and Romanians [2]. Thus, the question that remains is what the possible reasons of the distrust are, or what is the image of civil service in society? The paper is focused on image of civil service in society and reveals its picture drawn by mass media. The study first of all is based on two quantitative surveys conducted in 2003 and 2008 that reflect the tendencies of public attitudes towards Civil Service. The expert quantitative content analysis of press and internet mass media reveal the value context of civil service connotations and enable to see the picture of civil service not only in society but in mass media as well. 1. The image of civil service in public opinion The debate on civil service image, its characteristics, and trends of trust and distrust in public service start to be popular topic in academic community and public sector. Institutional image could be defined as an impression made by institution on society [14]. Eventually, image of institution is the function of public expectations based on facts and visions. Obviously, institutional image could appear as positive and negative. Public polls and public opinion surveys that disclose the communication and its feedback between civil service and society reveal trust and distrust in public institutions, are an integral part and important factor of public image building. Newton and Norris [9, p. 61] argue that the key to understand citizens confidence and trust in public institutions is the actual performance of government. In this context the level of public trust in civil service depends on civil service action institutions that perform well are likely to elicit the confidence of citizens; those that perform badly or ineffectively generate feelings of distrust and low confidence [9, p. 61]. Thus, one of the questions explored in this paper is: what is public opinion about civil servants, civil service and its institutions in Lithuania? Unfortunately, according to the results of two public opinion surveys 1 it might be assumed that the prestige of civil service is not high (see Figure 1). The survey results indicate that in 2003 and 2008 average evaluation of public servants is at or above the scale midpoint (5.5), however, below public servants evaluation in the scale are only politicians (average evaluation 4). The similar assessment of civil servants and politicians could be explained by the fact that the relation between politics and civil service is close by the nature, as civil 1 Surveys were conducted in November 6-9, 2003 and July 10-15, 2008 by Market and Opinion Research Centre "Vilmorus" Ltd. The above mentioned surveys are funded by Civil Service Department under Ministry of Internal Affairs of the Republic of Lithuania.

12 Viešoji politika ir administravimas. 2010, Nr. 31, p service serve for politics raising and implementing political decisions [7, p. 333]. Thus, corruption, inefficiency and other professional misconduct made either by politicians or civil servants form a negative opinion of both. Academicians Teachers Journalists Accountants Plumbers Medical doctors Priests Bankers Lawyers Civil servants Policemen Politicians 8,2 7,9 7,3 7,4 6,6 7,3 7,0 6,7 6,7 6,6 6,5 6,4 6,7 6,3 6,8 6,3 5,8 5,8 5,7 5,5 5,7 5,5 3,6 4, Figure 1: Favourable approach towards civil servant compared with other professions (means, code of one number from 1 (very unfavourable) to 10 (very favourable) Source: [4; 5]. The analysis of characteristics typical to civil servants, indicate that in public opinion public servants are characterized rather negative than positive. Most often respondents in 2008 identified civil servants as protecting their friends and relatives interests in a professional field (78.6 per cent), being under political influence (70.1 per cent) and under economic interests (64.7 per cent), misappropriation of public funds (66.8 per cent). More than a half of respondents (53.9 per cent) think that public servants work too little. Positive evaluations are less popular in comparison with the negative ones. Only 35.8 per cent of respondents characterize civil servants as competent in their field and responsible in front of society (30.3 per cent). Positive features that are mentioned by less than 30 per cent of respondents were: helpful (29.2 per cent), respectful (26 per cent), fair (19 per cent), unselfish (17.2 per cent).

13 12 Egl Vaidelyt, Giedrius Žvaliauskas. Image of Lithuanian Civil Service in Society and Mass Media Comparing the results of the public opinion survey in 2008 with the results of the survey in 2003, some positive changes could be noticed. For e. g., 74.8 per cent of respondents in 2003 characterize civil servants as misappropriating public funds and in 2008 the percentage of so thinking respondents decreased by 8 per cent. Also in 2008 respondents more often noticed positive characters than in For e. g., in 2008 positive opinion about civil servants increased in following characteristics: accountability (+ 6.5 per cent), competence (+ 6.1 per cent) and fairness (+ 4.3 per cent). In value scale of 2008 survey respondents think that civil servants are fairer than politicians but less fair than other professionals. Data indicate that people are still rather unconfident in politicians and civil servants. The challenging fact is that civil servants are characterized as less fair and honest even than journalists. In 2003 and 2008 very small percentage of respondents declared that civil servants are fairer than journalists. Although annual Journalists' Ethics Inspector Activity Reports [17] and surveys of Transparency International reveal rather serious problems of the media in Lithuania [12], respondents trust journalist more than civil servants. In the public discourse on new public management and its neoliberal principles in Lithuanian context, civil service and civil servants rather often are compared with private sector and its employees. In the surveys of 2003 and 2008 respondents had the opportunity to compare civil servants and private sector employees. The data indicate that at all point civil servants have worse characteristics than private public sector employees and in five years such attitudes only increased (see Figure 2). Civil servants work more effective than private sector employees Civil servants are more attentive than private sector employees Civil servants are more fair than private sector employees Civil servants are more competent than private sector employees 11,8 14,2 23,5 24,3 19,3 23,5 25,6 28,3 67,1 57,3 52,3 49,7 68,1 56,4 48,0 44,9 0% 70% Disagree 2003 Disagree 2008 Agree 2003 Agree 2008 Figure 2: Civil servants compared with private sector employees (per cent) Source: [4; 5].

14 Viešoji politika ir administravimas. 2010, Nr. 31, p However, the most excellent question revealing the image of civil servants in society is What profession would you like your child to choose? According to survey results, in 2003 and 2008 most of respondents declare that the most required professions are the ones of medical doctor or lawyer. In per cent of respondents want their child to be a medical doctor and 21 per cent required him/her to be a lawyer, in 2008 respectively 22.6 per cent and 19.3 per cent of respondents express the above mentioned expectations. Less wanted but still rather popular professions are banker, academician, journalist and teacher. Just 5.9 per cent of respondents in 2003 and 6.6 per cent of respondents in 2008 want their child to become a civil servant. The professions that appeared to be less wanted by parents are accountant, priest, social worker and plumber. However, the least popular career is politician. Only 1.2 per cent of parents express the wish that their child become a politician. The last but the one profession appeared to be a profession of policeman. Thus, it can be assumed that the image of civil servants in Lithuania is not high. The tendency is confirmed by the fact that more than a half of respondents think that there are too many civil servants in Lithuania per cent of respondents in 2003 and 67.5 per cent of respondents in 2008 approve the above mentioned statement. Most of them commenting their choice emphasize that they do not see any clear social benefits of civil service performance. According to the public discourse, one of the most burning issues in civil service is corruption. Political scandals, conflicts of interests and bribe are rather often mentioned in discussions about politics and civil service. Important indicator of the above mentioned issues is high level of Transparency International Corruption Perceptions Index that is widely discussed in society [15]. To understand the corruption in civil service in 2003 and 2008 respondents were asked whether they had to bribe a public servant and did it help to solve a problem (see Figure 3). However, more than half of respondents in 2003 as well as in 2008 declared that they had not tried to solve a problem by paying a bribe. Nevertheless, majority of those who paid a bribe confirmed that it helped. It should be noticed that in 2008 there are less respondents who confessed to bribe. According to social demographic characteristics of a bribe payers, bribery is most popular in Lithuania s larger cities (Kaunas, Klaip da, Šiauliai) among people working at private or public sector and being at the age of (30.8 per cent) and (31.6 per cent). Thus, the fact that should worry is that more active and significant groups in society are more intended to bribe solving their problems. 2. The picture of civil service in mass media Nowadays the flows of information are tremendously increasing, and not every citizen is able and competent to find and analyze enough information on his or her own. Thus, mass media plays a relevant role in nowadays public life, as private citizens rather often get connected to the global information by mass

15 14 Egl Vaidelyt, Giedrius Žvaliauskas. Image of Lithuanian Civil Service in Society and Mass Media media [6, p.165]. Mass media provides citizens with information about public and social institutions and their service, introduces current news and help to perceive them. However, mass media has a big power to manipulate public opinion by implying on one or another focus [6, p. 144]. Bias is very effective instrument of forming public opinion, however, thus, rather often the image of institutions also depends on its picture drawn by mass media. Street [14, p.34] notices that the qualified notion of bias has important implications for the way we analyse media content. Do not remember 3,8 No, it have not helped to solve a problem 5,8 3,9 4,6 Yes, it helped to solve a problem Have not paid a bribe to a civil servant 29,1 62,4 25,2 65,1 0% 70% Figure 3: Distribution of public approach towards bribery in solving the problem (per cent) Source: [4; 5] The results of above mentioned survey of public opinion in 2008 indicate that the main mass media sources providing information on civil service are TV (85 per cent) followed by press (59 per cent), radio (38 per cent) and online internet news (21 per cent) [5]. As it was mentioned above in the paper, Lithuanian people trust journalists, thus, the question that arise is how does mass media and especially press characterize civil service? The study is dwelling on the content analysis of two main daily newspapers in Lithuania Lietuvos rytas and Lietuvos žinios and very popular internet online news website Delfi 2. The above mentioned selection enables to compare the content of information in traditional press and 2 The period of analysis is January 1, 2006 June 30, The content analysis of press and internet mass media is funded by Civil Service Department under Ministry of Internal Affairs of the Republic of Lithuania.

16 Viešoji politika ir administravimas. 2010, Nr. 31, p internet news. Based on the selection criteria 191 articles were analysed in total 61 in Lietuvos žinios, 46 in Lietuvos rytas and 84 in Delfi 3. According to various theories on communication processes [16] mass media in to strengthen the sent message often use focused measures called stimulus and process called stimulation. The most popular stimulus in press could be: the location of the article (front page, etc.), the size of the article, font, annotation, headline, etc. Pictures, photos, tables and graphs are also strong instruments of stimulation striving to attract reader s attention. Nevertheless, the results of the research show that stimulation of articles with the focus on civil service is rather low. Only 7 per cent of all analyzed articles are stimulated by annotation and only 6 per cent are on the front page. Thus, it might be assumed that articles about civil service are not always seen as relevant topics. One of the most common stimulation instruments appeared to be a photo used in 73 per cent of articles. However, stimulation by photo is more popular in internet sources that have bigger commercial space than newspapers that have finite number of pages. According to the analysis results, Delfi illustrate 87 per cent of analyzed articles, and Lietuvos žinios 74 per cent, meanwhile more expensive Lietuvos rytas only 48 per cent. Other above mentioned stimulus is rather rare: stimulation with picture 8 per cent and stimulation with tables, which potentially are most objective stimulus, used only at 2 per cent of articles. Semantic stimulation with headlines is more popular than stimulation with annotations and more than half of all analyzed articles are stimulated by biased headlines. Obviously, this instrument of stimulation is the cheapest one as on contrary to pictures, tables, photos or annotations, does not requires additional commercial place. The leader in this field is Lietuvos žinios, as 72 per cent of analyzed articles in the newspaper are stimulated by biased headline. Lietuvos rytas use the stimulus in 52 per cent of analyzed articles and Delfi respectively 32 per cent. Thus, the question that arises is what is the type of information about civil service in above mentioned mass media? According to the research results, majority of articles are neutral (75 per cent) and 22 per cent are possibly biased (see Figure 4). Therefore it might be assumed that the information about civil service in the analyzed mass media is not often biased. Instead of presenting biased information, analyzed mass media present neutral facts and let their readers to make their own interpretations on civil service or civil servants. However, the above mentioned general tendencies differ from newspaper to newspaper. In daily newspaper Lietuvos žinios 53 per cent of articles on civil 3 The analysis of mass media included only those articles in which civil service was the main topic focused on central level government institutions: Office of the Prime Minister, Ministries and Subdivisions under the Ministries. The analysis of newspapers articles was focused on all topics with the exception of criminal news, global politics and sport articles. In total, the selection criteria have been addressed to all articles on civil service in 10 month releases of Lietuvos rytas and 10 month releases of Lietuvos žinios. The analysis of internet news in Delfi was focused on topic Dienos naujienos Lietuvoje and included only original articles of Delfi eliminating articles reprinted from the newspapers. In total, there have been analysed 31 online internet news Delfi releases.

17 16 Egl Vaidelyt, Giedrius Žvaliauskas. Image of Lithuanian Civil Service in Society and Mass Media 100% 0% 75 Neutral, formal information 22 Possibly biased 3 Hard to define Figure 4: Press approach towards civil service (per cent) 100% 0% 79 Facts w ith comments and remarks 19 2 Short fact-based information Hard to define Figure 5: Characteristics of Press articles (per cent) service are neutral, however, 43 per cent are possibly biased. And on contrary, in Lietuvos rytas only 11 per cent are possibly biased and majority of analyzed articles are neutral. Similar tendencies could be noticed analyzing Delfi in which 85 per cent of articles appeared to be neutral. Nevertheless, analyzing in more details it could be noticed that facts with comments and remarks about civil service are four times more frequent than just fact-based information. Thus, despite dominant neutral style, Lithuanian press does not avoid comments and remarks (see Figure 5). It could be noticed that pure matter-of-fact information is mostly on newsletters and announcements that rarely are published on daily newspapers. Most often in the analyzed articles could be found single or multifold opinion on the discussed issue. The research results indicate that 54 per cent of analyzed articles incorporate single opinion, however, difference in the ratio of articles with single opinion and multifold opinion is relatively small (see Table 1). Analyzing newspapers the difference between Lietuvos žinios and Lietuvos rytas is obvious again. Lietuvos žinios has approximately equal number of single opinion and multifold opinion articles, meanwhile in Lietuvos rytas single opinion articles are dominating. Table 1: The ratio of single opinion and multifold opinion articles in press Lietuvos žinios Lietuvos rytas Delfi Total Single opinion 28 (46%) 35 (76%) 41 (49%) 104 (54,5%) Multifold opinion 33 (54%) 11 (24%) 43 (51%) 87 (45,5%) Total 61 (100%) 46 (100%) 84 (100%) 191 (100%)

18 Viešoji politika ir administravimas. 2010, Nr. 31, p Analyzing newspapers the difference between Lietuvos žinios and Lietuvos rytas is obvious again. Lietuvos žinios has approximately equal number of single opinion and multifold opinion articles, meanwhile in Lietuvos rytas single opinion articles are dominating. One of the key objective of the study is the context analysis of reference towards civil survey in mass media. Analyzing the articles on public service positive references are relatively rare and are mostly focused on well performed duties (functions) 4. Well performed duties in the analyzed information sources are mentioned 23 times, meanwhile reforms in civil service and defence of public interests are mentioned just 8 times (see Table 2). The least popular positive reference is competence building. Despite considerable institutional attention to competence building, the above mentioned fact indicates low mass media interest in the issue. Table 2: Positive references to civil service and civil servants performance (units) Keywords Lietuvos žinios Lietuvos rytas Delfi Total Well performed duties (functions) Reforms Defending of public interests Applying new ICTs Motivation of the best civil servants Competence building Total Speaking about neutral references to civil service, the most frequent reference is to issues on wages in civil service, which is mentioned 26 times (see Table 3). Another rather frequent reference is to general information about institution performance that is mentioned 21 times. General information about civil service performance is most frequent in Lietuvos rytas. Meanwhile Delfi also has a strong focus on issues on shirk reduction (14 references). According to the analysis of negative references to civil service the leading reference in analyzed mass media is shirk and engagement in conflict of interests. Newspapers have given this kind of information for the reader 42 times (see Table 4). Another rather frequent reference speaking about civil service is public servants misconduct that was mentioned 39 times. Consequently, it can be assumed that strong articulation of above mentioned negative reference in traditional mass media could have negative impact on the public service and eventually public servants image. 4 References counted according by the listed key words. In one article are maximum 3 keywords referring to positive, neutral or negative attitudes towards civil service.

19 18 Egl Vaidelyt, Giedrius Žvaliauskas. Image of Lithuanian Civil Service in Society and Mass Media Table 3: Neutral references to civil service and civil servants activities (units) Keywords Lietuvos žinios Lietuvos rytas Delfi Total Issues on wages in civil service General information about institution activity Issues on shirk reduction Appointments in civil service Issues on civil service reforms Issues on civil service finance Legal processes related to civil servants Issues on civil servant image Issues on growing civil servants competence Total Table 4: Critical references to civil service and civil servants activities (units) Keywords Lietuvos žinios Lietuvos rytas Delfi Total Shirk and engagement in conflict of interests Misconduct of civil servants Irrational and not transparent use of funds/ property Possibly corrupted appointments in to civil service Lack of reforms Lack of competence among civil servants Total Concluding remarks The public opinion surveys in 2003 and 2008 have revealed that negative approach towards public servants and their professional performance has been dominating in society. Lithuanians even after 5 years continue to view civil service and its officials with a large dose of scepticism. The content analysis of selected daily newspapers and online internet news indicate that information and articles about civil service and civil servants are not frequent in Lithuanian mass media. The daily newspapers Lietuvos žinios and Lietuvos

20 Viešoji politika ir administravimas. 2010, Nr. 31, p rytas as well as online internet news Delfi mention civil service rather often, but most frequently it is contextual information, not the main topic of the article. The information has strong focus on politicians and rather low interest in public servants meanwhile civil service as institution itself is rarely a main topic in press. The information about civil service and civil servants that is analyzed in mass media has more negative bias than positive. The content analysis of selected newspapers and internet news indicate that articles with negative references to public service are more frequent than the ones with positive references. However, the most frequent information in public discourse is neutral, thus, there is no single opinion whether mass media is negative towards civil service or not. Nevertheless, following the idea that public discourse is a strong factor of image building, and mass media is a guide for citizens in jungles of public administration, the answer to the question about image of civil servants and civil service itself sounds not promising. However, the question what are the genuine reasons for high confidence in and brilliant image of civil service bias or the way institution performs, still remains rather open. References 1. Consolidation of Democracy in Central and Eastern Europe = Demokratijos stipr jimas Vidurio ir Rytų Europoje m. Kaunas: Lietuvos HSM duomenų archyvas LiDA [platintojas], (SEE-CS: Studies from Eastern Europe - Comparative Studies). 2. European Values Study 1999/2000 (release 2, May 2006) - Integrated Dataset = Europos vertybių tyrimas m.: 2 leidimas, 2006 m. geguž integruotas duomenų rinkinys. Kaunas : Lietuvos HSM duomenų archyvas LiDA [platintojas], (European Values Study Group, 2006). (EVS: European Values Study). 3. Gaidys, V. Viešoji nuomon ir politika. Kn.: A. Krupavičius, A. Lukošaitis (red.) Lietuvos politin sistema: sąranga ir raida. Kaunas: Poligrafija ir informatika, 2004, Gaidys, V., et al. Valstyb s tarnybos įvaizdis, 2003 m. lapkritis = Image of the Civil Service, 2003 November. Kaunas : Lietuvos HSM duomenų archyvas LiDA, [platintojas] (Vilnius: Valstyb s tarnybos departamentas, 2003). (VTT: Valstyb s tarnybos tyrimai). 5. Krupavičius A., et al. Valstyb s tarnybos įvaizdis, 2008 m. liepa = Image of the Civil Service, 2008 July. Kaunas : Lietuvos HSM duomenų archyvas LiDA [platintojas], (Vilnius : Valstyb s tarnybos departamentas, 2008). (VTT: Valstyb s tarnybos tyrimai). 6. Krupavičius A., Šarkut L. Žiniasklaida ir politika. Kn.: A. Krupavičius, A. Lukošaitis (red.) Lietuvos politin sistema: sąranga ir raida. Kaunas: Poligrafija ir informatika, 2004, Krupavičius A. Politikos ir valstyb s tarnybos sąveika. Kn.: Masiulis K, Krupavičius A. (red.) Valstyb s tarnyba Lietuvoje: praeitis ir dabartis. Vilnius: UAB PRaction, 2007, Nakrošis V. Viešoji administracija. Kn.: A. Krupavičius, A. Lukošaitis (red.) Lietuvos politin sistema: sąranga ir raida. Kaunas: Poligrafija ir informatika, 2004, Newton K., Norris P. Confidence in Public Institutions: Faith, Culture, or Performance? In: S.J. Pharr, R.D. Putnam (eds.). Disaffected Democracies: What's Troubling the Trilateral Countries? New Jersey: Princeton University Press, 2000, Papacostas, A. Eurobarometer 63.4: European Union Enlargement, the European Constitution, Economic Challenges, Innovative Products and Services, May-June 2005 = Eurobarometras

21 20 Egl Vaidelyt, Giedrius Žvaliauskas. Image of Lithuanian Civil Service in Society and Mass Media 63.4: Europos Sąjungos pl tra, Europos Konstitucija, ekonomikos iššūkiai, naujoviški gaminiai ir paslaugos, 2005 m. geguž - birželis. Kaunas : Lietuvos HSM duomenų archyvas LiDA [platintojas], (Papacostas, Antonis, 2005). (EB: Standard Eurobarometer). 11. Rose, R. New Baltic Barometer, = Naujasis Baltijos barometras, m. Kaunas : Lietuvos HSM duomenų archyvas LiDA [platintojas], (Rose, Richard, 2005). 12. Skaidresn s žiniasklaidos link, drumas_www.pdf [ ]. 13. Smalskys V. Valstyb s tarnybos vaidmuo ir funkcijos. Kn.: Masiulis K, Krupavičius A. (red.) Valstyb s tarnyba Lietuvoje: praeitis ir dabartis. Vilnius: UAB PRaction, 2007, Street J. Mass Media, Politics and Democracy. Hampshire: Palgrave, Taljūnait M. Valstyb s institucijų įvaizdis ir organizacin elgsena. Vilnius: Lietuvos Teis s Universitetas, Transparency International Korupcijos suvokimo indeksas rency.lt/new/images/ti_ksi_2009.pdf [ ]. 17. Zimbardo, Ph.G., Leippe, M.R. The Psychology of Attitude Change and Social Influence. New York: McGraw-Hill, Žurnalistų etikos inspektoriaus 2007 metų veiklos ataskaita. w5_show?p_r=5518&p_d=76145&p_k=1 [ ]. Egl Vaidelyt, Giedrius Žvaliauskas Lietuvos valstyb s tarnybos įvaizdis visuomen je ir žiniasklaidoje Santrauka Lietuvai, palyginti su kitomis ES nar mis, būdingas itin didelis nepasitik jimas politin mis institucijos apskritai ir valstyb s tarnyba konkrečiai. Šio straipsnio tikslas atskleisti valstyb s tarnybos ir valstyb s tarnautojų įvaizdį, kuris daro poveikį pasitik jimo lygiui. Straipsnyje lyginami 2003 m. ir 2008 m. atliktų apklausų rezultatai, kurie rodo, kad visuomen išreiškia neigiamą požiūrį į valstyb s tarnautojus, jų vykdomas veiklas ir teikiamą socialinę naudą. Ekspertin spausdintos ir internetin s žiniasklaidos kiekybin turinio analiz rodo, kad pozityvi informacija apie Lietuvos valstyb s tarnybą yra publikuojama gerokai rečiau nei kritiška informacija. Akcentuojama, kad tokia žiniasklaidos priemonių pozicija nelemtų tai, kad formuotųsi teigiamas valstyb s tarnautojų ir apskritai visos valstyb s tarnybos įvaizdis.

22 ISSN (print) ISSN (online) VIEŠOJI POLITIKA IR ADMINISTRAVIMAS PUBLIC POLICY AND ADMINISTRATION 2010, Nr. 31, p Lietuvos viešojo sektoriaus etikos kodeksai ir jų tobulinimo galimyb s Jolanta Palidauskait Kauno technologijos universitetas K. Donelaičio g. 20, Kaunas Turinio analiz s metodu straipsnyje kritiškai vertinami Lietuvos viešojo sektoriaus etikos kodeksų tikslai, dokumentų vidin struktūra, pl tojamų klausimų spektras ir gylis, akcentuojamos vertyb s ir principai, atsakomyb ir įgyvendinimo priemones. Remiantis ta analize ir atsižvelgiant į kitų tyrin tojų pasteb jimus bei tarptautinę praktiką, pateiktos rekomendacijos, kaip būtų galima tobulinti etikos kodeksus, aptartos šios temos mokslin s pl tot s galimyb s. Raktažodžiai: etikos kodeksas, elgesio kodeksas, turinio analiz. Keywords: code of ethics, code of conduct, content analyses. Įvadas Reaguojant į didesnius visuomen s lūkesčius, dabartiniu laikotarpiu daugelyje valstybių kuriami arba sukurti valstyb s tarnautojų etikos ir elgesio kodeksai, kuriuose apibr žiami veiklos orientyrai, siektinos vertyb s ir tų tarnautojų atsakomyb visuomenei. Jie traktuojami kaip viena iš vadybinių priemonių, padedančių siekti didesnio valdžios institucijų veiklos efektyvumo. Šie dokumentai kuriami bei vadovaujamasi jais apibr žtomis nuostatomis ir Lietuvoje. Atskiri užsienio ir lietuvių tyrin tojai (W. Bruce, K. Kernaghan, A. Lawton, C. Lewis, N. Vasiljevien, V. Pruskus ir kt.) jau senokai gvildena kodeksų svarbos, jų tikslų, uždavinių, turinio, įgyvendinimo ir efektyvumo aspektus. Akademiniame diskurse, pripažįstant tokių dokumentų svarbą, pasigirsta ir tokių autorių, kurie abejoja tokių dokumentų galia, nuomonių Šio straipsnio tikslas išanalizuoti Lietuvos viešojo sektoriaus institucijų etikos kodeksus ir pateikti jų tobulinimo gaires. Analizei pasirinktas turinio analiz s ir lyginamasis metodai. Jolanta Palidauskait Kauno technologijos universiteto Viešojo administravimo katedros profesor, socialinių mokslų daktar. Professor at the Department of Public Administration, Kaunas University of Technology. E. paštas / jolanta.palidauskaite@ktu.lt Straipsnis įteiktas redakcijai 2009 m. lapkričio m n.; recenzuotas; parengtas spaudai 2010 m.

23 22 Jolanta Palidauskait. Lietuvos viešojo sektoriaus etikos kodeksai Tyrimo metodologija Turinio analiz s metodas sudaro galimybę tirti teksto sistemingumo ir objektyvumo parametrus, analizuoti jo kiekybinius ir kokybinius aspektus. Tai leidžia nstayti pastebimas tendencijas, kalbos stilių, naudojamas įtikinimo technikas, susidaryti vaizdą apie dokumento kūr jus ir kartu atspindi jų nuostatas orientuojantis į teksto skaitytojus [1, p. 300]. Šiame straipsnyje analiz s vienetai buvo tiek atskiri žodžiai (nustatant etikos principus ar vertybes), tiek ir temos (sprendimų pri mimo procesas, korupcija ir kt.), atskiri sakiniai, leidžiantys nustatyti etikos principus, kurie nebuvo išskirti pačių etikos kodeksų kūr jų, ir net skyriai (jie svarbūs analizuojant dokumento struktūrą). Vienas iš turinio analiz s metodo silpnų elementų yra subjektyvus teksto vertinimas. Kai kuriuose kodeksuose nebuvo išskirti etikos principai, tod l tą teko atlikti šio straipsnio autorei. Kito tyrin tojo bandymas pakartoti panašią kodeksų analizę gali pateikti kiek kitokią teksto interpretaciją. Tyrimui pasirinkti Vyriausiosios tarnybin s etikos komisijos tinklalapyje pateikti Lietuvos viešojo sektoriaus etikos (elgesio) kodeksai ir taisykl s, iš viso 17 dokumentų (žr. 1 lentelę). Pasirenkant kodeksų analiz s kriterijus, buvo remiamasi kitų tyrin tojų teoriniais darbais ([2], [5] ir kt.) ir atliktomis kodeksų studijomis ([3], [20]). Kodeksai buvo analizuojami kreipiant d mesį į šiuos aspektus: jų pavadinimą, statusą, tikslą, turinį, nustatytus principus ar vertybes, nagrin tus klausimus, numatytą atsakomybę ir sankcijas, įgyvendinimo mechanizmą. Pasirinkti kriterijai reikalauja d mesį skirti ne tik kiekybiniam (pasikartojimo dažnis), bet ir kokybiniam (atskirų klausimų aptarimo detalumas, teiginių konkretumas ir kt.) turinio analiz s elementams ir leidžia atlikti dokumentų lyginamąją analizę. 2. Kodeksų analiz s aspektai Kodeksų pavadinimai ir statusas. Daugumos Lietuvos viešojo sektoriaus kodeksų pavadinimuose (dešimtyje) figūruoja žodis etikos kodeksas, keliuose dokumentuose prieš min tą frazę įd ti žodžiai tarnybinis ar profesinis, po du dokumentus pavadinti elgesio kodeksais ir etikos taisykl mis. Esamų kodeksų statusas kiek skiriasi. Dauguma kodeksų (dvylika) turi teis s akto statusą: patvirtinti atskiru įstatymu arba įstaigos vadovo įsakymu. Penki kodeksai buvo priimti kolegialaus organo (susirinkimo) nutarimu. Jų tekstas - nuo 2 iki 7 puslapių apimties. Visuose šiuose dokumentuose - nuo 3 iki 9 skyrių (žr. 1 lentelę). Muitin s pareigūnų ir VMI etikos kodeksai papildyti įsipareigojimu vadovautis kodeksu. Kodeksų tikslai ir uždaviniai. Apibr žiant analizuotų kodeksų tikslus, vartojamos skirtingos sąvokos: tikslas, uždaviniai, paskirtis. Bendras tikslų ir uždavinių skaičius tuose kodeksuose - nuo 1 (antstolių ir LBT etikos kodeksuose) iki 8 (muitin s pareigūnų ir LBV etikos kodeksuose). Gilinantis į dokumentų tikslus ir uždavinius aišk ja, kad jie tarpusavyje persipina: tai, kas vienuose kodeksuose įvardijama kaip tikslas ar paskirtis, kitur nurodoma kaip uždaviniai ir atvirkščiai. Suminiai analizuotų kodeksų tikslų ir uždavinių skaičiai pateikiami skliaustuose 2 lentel je. Pagrindinis viešojo sektoriaus kodeksų tikslas, akcentuotas visuose dokumentuose, o kai kuriuose net kelis kartus, - išryškinti tarnautojų veiklos ypatumus. Vartojami žodžiai

24 Viešoji politika ir administravimas. 2009, Nr. 31, p lentel. Kodeksų statusas, apimtis ir vidin struktūra Dokumentas Statusas Apimtis: puslapių ir žodžių skaičius Bendras skyrių ir straipsnių skaičius 1. Valstyb s tarnautojų veiklos etikos Vyriausyb s nutarimas 3 (733) 3 skyriai (12) taisykl s (2002 m.) [17] 2. LR valstyb s politikų elgesio kodeksas Įstatymas 5 (1 910) 9 straipsniai (2006 m.) [15] 3. Policijos pareigūnų etikos kodeksas Policijos generalinio 4 (1 259) 7 skyriai (17) ( m. pataisos) [8] komisaro įsakymas 4. Karių etikos kodeksas (2005 m.) [11] Krašto apsaugos ministro įsakymas 4 (1 268) 8 skyriai (28) 5. Specialiųjų tyrimų tarnybos darbuotojų STT direktoriaus 4 (1 336) 8 skyriai (14) etikos kodeksas (2001 m.) (toliau - STT įsakymas etikos kodeksas) [21] 6. Prokurorų etikos kodeksas (2004 m.) [10] Generalinio prokuroro įsakymas 3 (1 567) 5 skyriai (39) 7. Muitin s pareigūnų etikos kodeksas (2006 m.) [19] 8. Valstybin s mokesčių inspekcijos valstyb s tarnautojo elgesio kodeksas (2005 m.) (toliau VMI etikos kodeksas) [22] 9. Antstolių profesin s etikos kodeksas (2003 m.) [13] 10. Valstyb s kontrol s pareigūnų tarnybin s etikos kodeksas (2002 m.) (toliau VK etikos kodeksas) [14] Muitin s departamento generalinio driektoriaus įsakymas Valstybin s mokesčių inspekcijos viršininko įsakymas Teisingumo ministro įsakymas Valstyb s kontrolieriaus įsakymas 11. Teis jų etikos kodeksas (2006 m.) [23] Visuotinio teis jų susirinkimo sprendimas 12. Finansinių nusikaltimų tyrimo tarnybos Tarnybos direktoriaus prie Vidaus reikalų ministerijos tarnautojų įsakymas tarnybin s etikos kodeksas (2004 m.) (toliau FNTT etikos kodeksas) [4] 13. Lietuvos banko tarnautojų etikos kodeksas Banko valdybos (2005 m.) (toliau LBT etikos kodeksas) [6] nutarimas 14. Lietuvos banko valdybos etikos kodeksas Banko valdybos (2004 m.) (toliau LBV etikos kodeksas) [7] nutarimas 15. LR savivaldyb s kontrol s ir audito institucijos valstyb s tarnautojų tarnybin s etikos kodeksas (2004 m.) (toliau SKA etikos kodeksas) [12] 16. Aplinkos apsaugos valstybin s kontrol s pareigūnų etikos taisykl s (2005 m.) (toliau AVK etikos taisykl s) [9] 17. Valstybin s darbo inspekcijos darbuotojų etikos kodeksas (2003 m.) (toliau VDI etikos kodeksas) [16] SKA visuotinio susirinkimo nutarimas Aplinkos ministro įsakymas Vyriausiojo valstybinio darbo inspektoriaus įsakymas 7 (2 767) 7 skyriai (34) ir priedas (įsipareigojimas) 7 (2 786) 7 skyriai (40) ir priedas (įsipareigojimas) 2 (713) 4 skyriai (28) 4 (1 350) 8 skyriai (26)+ 6 (1 345) 3 skyriai (17)+ 4 (1 523) 6 skyriai (18) 3 (1 044) 5 skyriai (30) 3 (1 005) 6 skyriai (21) 4 (1 275) 8 skyriai (26) 3 (865) 6 skyriai (19) 3 (954) 9 skyriai (32)

25 24 Jolanta Palidauskait. Lietuvos viešojo sektoriaus etikos kodeksai... 2 lentel. Kodeksų tikslai ir uždaviniai Apibr žti / nustatyti / reglamentuoti elgesio taisykles / normas / etikos principus (21) Stiprinti tarnautojų autoritetą / reputaciją (10) Didinti visuomen s pasitik jimą tarnautojais (7) Reglamentuoti / tobulinti asmenų santykius (ugdyti pagarbą bendradarbiams ir kt. asmenims) (6) Užtikrinti tinkamą darbo aplinką (5) Užkirsti kelią korupcijai atsirasti ir plisti (5) Skatinti atsakomybę už savo veiklą ir atskaitomybę (4) Įgyvendinti konstitucinį valdžios įstaigų tarnavimo žmon ms principą (4) Kontroliuoti / reguliuoti elgesį (3) Suteikti dorovinius orientyrus (2) Gerinti viešojo administravimo kokybę (2) Formuoti teigiamą institucijos įvaizdį (2) Prioritetinis atskirų vertybių išk limas (teisingumas, veiksmingumas ir kt.) veikloje (2) Suderinti pareigūnų privačiuosius ir viešuosius interesus (1) Pl toti demokratinį valdymą (1) Didinti tarnybos efektyvumą ir gerinti jos kokybę (1) Siekti aukštų tarnautojų profesin s veiklos standartų (1) Pad ti išvengti konfliktų (1) Užkirsti kelią veiksmams, galintiems pakenkti visuomenei, institucijos ir jos pareigūnų prestižui ir reputacijai (1) apibr žti, nustatyti, reglamentuoti pabr žia reguliuojantį kodeksų aspektą. Vienuose dokumentuose vartojami tarnybinio ir profesinio elgesio normų, kitur etikos principų, elgesio viešajame gyvenime principų, reikalavimų, pagrindų ar taisyklių terminai. Kai kuriuose tekstuose akcentuojamas prevencinis kodekso tikslas - užb gti už akių korupcijai, interesų konfliktams, kitiems netinkantiems veiksmams. Daugumos kodeksų paskirtis ir uždaviniai formuluojami vartojant teigiamą atspalvį turinčius veiksmažodžius stiprinti, didinti, užtikrinti, gerinti ir kt. Tačiau galima rasti ir kitokius veiksmažodžius kontroliuoti, reguliuoti, užkirsti kelią ir kt. Tam tikrų veiksmažodžių parinkimas gali būti psichologiškai svarbus, nes jie inspiruoja veiklai, nors nelieka nepasteb ti ir bandymai reguliuoti tam tikrus veiklos aspektus. Uždaviniuose ar tiksluose kodeksų atliekama kontrol s funkcija akcentuota tik keliuose kodeksuose. Kodeksuose nurodyti tikslai ir uždaviniai skiriasi savo apibendrinimu ir orientacija: vieni konkretesni, kiti abstraktesni, orientuoti į vidinę institucijos aplinką (didinti tarnybos efektyvumą, gerinti jos kokybę ir kt.), dar kiti - nukreipti į santykius su išore (formuoti teigiamą institucijos įvaizdį ir kt.). Dauguma kodeksų (STT, karių, prokurorų, Valstyb s kontrol s pareigūnų, teis jų, FNTT darbuotojų, LBT, LBV ir aplinkos apsaugos valstybin s kontrol s pareigūnų) bandoma reguliuoti tarnautojų elgesį ir ne tarnybos metu. Valstyb s politikų kodekse kalbama apie elgesio viešajame gyvenime principus. Tai leidžia priskirti šį dokumentą prie reguliuojančių veiklą ne tik tarnybos metu. Kodeksų turinys. 3 lentel je nurodyti nors viename iš analizuotų kodeksų esantys skyriai. Beveik visuose kodeksuose yra įvadinis skyrius (dar vadinamas bendrosiomis (pagrindin mis) nuostatomis). Šioje dalyje nurodoma dokumento paskirtis, uždaviniai,