System upgrade government controlled is inextricably linked with the definition of optimal parameters that contribute to the formation of public administration as an open, dynamic social system. To form an effective model of public administration, a comprehensive analysis of the relationship between the political system, state power, civil society institutions, socio-economic standards and socio-cultural norms is necessary. In the context of changes in the political and social environment, the problem of establishing an adequate public administration system that is able to effectively respond to the challenges of the external environment is being updated, it becomes obvious that it is necessary to develop a balanced system of indicators and criteria for the effectiveness of the activities of bodies state power.
There are several theoretical and methodological approaches to the definition the essence of efficiency. In different fields of activity, the understanding of efficiency has its own characteristics. Thus, in politics, "efficiency" is seen as something positive and desirable, thus obtaining the meaning of the value characteristic of activity. In relation to the activities of the authorities, this term has become an effective political symbol capable of organizing public opinion in support of certain proposals. In the most general way efficiency understood as: the possibility of achieving results; the significance of obtaining the result for those to whom it is intended; the ratio of the significance of this result to the amount of effort spent on achieving it.
In organization theory and administrative management, efficiency is defined as the ratio of net positive results (the excess of desirable consequences over undesirable ones) and acceptable costs. In economics and management studies, there are two approaches to performance evaluation. The first is related to the evaluation of technical efficiency, the second - economic efficiency. Technical performance measures reflect the nature of the activity being assessed: it indicates that “the right things are being done”. Economic efficiency indicators characterize how the assessed activity is implemented, how productively the spent resources are used, that is, how “these things are done correctly”. The effectiveness of managerial or administrative labor is evaluated by determining the ratio between the result obtained and the resources expended.
In studies of the effectiveness of public administration, state bureaucracy, and state institutions, several theoretical and methodological approaches can be distinguished that link efficiency with certain factors.
1) An approach based on the concept of leadership. Representatives of this direction link the effectiveness of the organization with leadership skills, management style, individual characteristics and qualities of the heads of government bodies, systems for selecting, assessing the performance of tasks, motivation and professional development of civil servants.
2) An approach that develops the theory of Weber's rational bureaucracy. From the position this approach attention is focused on the hierarchical structure, functional specialization, the presence of clear principles of regulation professional activity civil servants, which are considered as necessary prerequisites for the effective operation of power structures.
3) Approach to performance, associated with the theory of life cycles, consists in considering the effectiveness of public administration in conjunction with the assessment of the influence of constantly and cyclically formed coalitions or groups of influence in government. The nature of decision-making in bureaucratic structures and their effectiveness are considered in the context of the life cycles of an organization's development.
4) Within the concept of professionalism effective activity is directly dependent on the professionalization of public authorities, the availability of career (professional) officials, and the level of their professionalism and competence.
5) economic approach, linking the increase in the efficiency of public authorities with the presence of a competition mechanism among departments, a system for introducing innovations, as well as political and social accountability of public authorities, primarily to taxpayers.
6) ecological approach, which emphasizes that the results of the activities of the bureaucracy depend on the nature of the external environment (the ecology of the organization) and the ability of public authorities to manage changes and innovations in order to adapt to these changes.
7) An approach based on the concept of quality management. Within the framework of this approach, the main attention is focused on creating a system of continuous improvement of processes and public services in public authorities; involving civil servants in this activity, making the most of their creative potential and organizing their group work. Quality management is based on the relationship between the potential of public authorities and performance results with constant correlation with strategic goals and the involvement of employees in quality processes, their training, increasing their competence and motivation.
An analysis of theoretical and methodological approaches to determining efficiency allows us to conclude that, as a rule, economic efficiency and social. The independence of these types of efficiency, of course, is relative, since they are in close unity and interrelation. When analyzing the effectiveness of public administration, it is of particular importance social effect. The essence of the social effect lies in the fact that it must be stable, reproducible, progressive, contain a source for subsequent social development. The Russian sociologist G. V. Atamanchuk divides the social efficiency of public administration in general and the activities of public authorities in particular into three types:
1. General social efficiency. It reveals the results of the functioning of the public administration system (that is, the totality of state bodies and objects managed by them).
2. Special social efficiency. It characterizes the state of organization and functioning of the state itself as a subject of management of social processes. This type of criteria includes:
- the expediency and purposefulness of the organization and functioning of the state-management system, its large subsystems and other organizational structures, which is determined through the degree of compliance of their control actions with goals objectively based on their position and role in society. It is necessary to establish legislatively what goals each state body should implement and, upon their achievement, evaluate the relevant leaders and officials;
- time standards for solving management issues, for developing and passing any management information;
- the style of functioning of the state apparatus;
- norms, technologies, standards that every manager and civil servant must follow;
- the complexity of the organization of the state apparatus, resulting from its "fractionality", multi-stage and abundance of managerial interdependencies;
- the costs of maintaining and ensuring the functioning of the state apparatus.
3. Concrete social efficiency. It reflects the activities of each management body and official, each individual management decision, action, relationship. Among the criteria, one can distinguish such as the degree of compliance with directions, content and results management activities bodies and officials to those of its parameters that are indicated in the legal status (and competence) of the body and public office; legality of decisions and actions of state authorities and local self-government, as well as their officials; reality of control actions.
Efficiency the activity of state authorities is determined not only by the magnitude of the economic effect, but, above all, by the socio-political results of the activities of the authorities. To assess the effectiveness of public administration and the activities of public authorities, evaluation technologies and procedures are needed that would be sustainable, objective and allow timely adjustment of the activities of public authorities.
Various theoretical and methodological approaches to determining the essence of efficiency are reflected in conceptual models.
8.2. Conceptual Models of Efficiency
In management theory, there are several efficiency models: system-resource, target, participant satisfaction model, complex model containing contradictions. general characteristics efficiency models allows you to detect a complex complex, the components of which are targets and the external environment, organizational activities and structure, management technologies and methods for evaluating efficiency.
System resource model is based on the analysis of the relationship "organization - environment". Efficiency in this model is the ability of an organization to exploit its environment to acquire rare and valuable resources in order to maintain its functioning.
From positions target model An organization is effective to the extent that it achieves its purpose.
Member Satisfaction Model is based on individual or group assessments of the quality of the organization's activities by its members. The organization is seen as a cooperative incentive-distributive mechanism, set up to get a return on its members through providing a decent reward for their efforts.
Complex model considers efficiency as an integral and structured characteristic of the organization's activities. It includes evaluation of economy, efficiency, productivity, product or service quality, effectiveness, profitability, quality of work life and innovation.
A model containing contradictions, assumes that effective organizations do not exist. They can be effective to varying degrees because:
1) face multiple and conflicting constraints of the surrounding social environment;
2) have multiple and conflicting goals;
3) have multiple and conflicting internal and external sources of assessments;
4) have multiple and conflicting time frames.
In the model proposed by the American sociologist R. Likert, efficiency is seen as a complex interaction of various factors, among which the dominant position is occupied by human and socio-environmental factors. So, according to Likert, efficiency is determined by three groups of factors:
1) intra-organizational - the formal structure of the authority, the economic base, the professional and qualification composition of civil servants;
2) intermediate variables - human resources, organizational culture, decision-making methods, the level of trust in management, ways to stimulate and motivate activities;
3) resulting variables - growth or decline in labor productivity, the degree of customer satisfaction.
An analysis of various efficiency models allows us to conclude that each of the considered models has its own advantages and at the same time limitations.
Various approaches to efficiency are manifested in structured complexes - aspects of organizational effectiveness: functional, structural, organizational, subject-target. Functional aspect includes performance; profitability; adaptability, i.e., the ability to optimally perform specified functions in a certain range of changing conditions; flexibility; efficiency and timeliness of identifying and solving management problems.
Structural aspect efficiency, as a rule, is associated with the effectiveness of goal setting (comparison of normative and implemented goals, comparison of implemented goals and management results, comparison of the results obtained with objective needs); rationality of the organizational structure (distribution of responsibility and authority, organization of relationships between employees and departments); compliance of the management system, its organizational structure with the object of management; management style (legal forms, methods and procedures of management); characteristics of officials (general cultural, professional, personal).
Considering organizational and institutional aspect efficiency, it is important to emphasize that the evaluation of effectiveness is a derivative of what place and what functions the organization performs in the system of interorganizational relations. In this regard, the factors, criteria, parameters for evaluating the effectiveness of public authorities will differ significantly from commercial organizations, since they have different targets and other components of organizational activity.
AT objective aspect efficiency, depending on the targets, the subject of assessment and the compared parameters of organizational activity, types of efficiency are distinguished. These include: organizational, economic, technological, social, legal, psychological, political, ethical, environmental.
From the point of view of efficiency, any aspect (side) or characteristic of the activity of public authorities, considered as a social integrity and system, can be evaluated.
Efficiency as an integral and structured characteristic of activity is not only an indicator, but also a process that needs to be organized and managed.
Performance appraisal should be a continuous, total process of evaluating the activities of government bodies, structural units and a civil servant, which has as its content: the choice of a system of performance indicators; development of standards (norms and procedures) of efficiency; measurement of performance indicators; comparison of the actual state of efficiency with the requirements of these standards.
The characteristics of the effectiveness of public authorities are multidimensional and depend on the goals formulated by the subject of evaluation. At the same time, when applying this or that technology for evaluating efficiency, it is necessary to clearly distinguish:
1) the subject of evaluation (his position, target and value orientations);
2) the object of evaluation (it can be the entire management system or its individual element, for example, the field of activity - process, result or consequences; structural and institutional aspect, personnel);
3) efficiency tools (models, aspects, types and technologies for evaluating efficiency).
To assess the activities of public authorities, it is necessary to single out specific ones from general criteria (economics, efficiency and effectiveness). This moment is the main one in preparation for the assessment. Some flexibility is needed in developing evaluation criteria. Efficiency criterion - signs, facets, aspects of the manifestation of managerial activity, through the analysis of which it is possible to determine the quality of management, its compliance with the needs and interests of society. Performance indicator - it is a certain measure that makes it possible to compare: the actual activity of the authorities/employees with the desired or required; activities of the authority in different time periods; activity of different organs in comparison with each other.
Among the main requirements for the evaluation criteria, we can distinguish that:
1) the criteria should lead to the implementation of the tasks of the assessment and cover all identified problems;
2) the criteria must be sufficiently specific so that the assessment can be carried out in practice;
3) the criteria must be supported by appropriate arguments and / or come from authoritative sources. In addition, the criteria used to assess the performance of authorities should be consistent with each other, as well as with those criteria that were used in previous assessments.
8.3. Integral indicators for evaluating the effectiveness of public administration
In international practice, various integral indicators are used to assess the effectiveness of public administration, which were developed by international organizations.
1) GRICS indicator (Governance Research Indicator Country Snapshot), evaluates the effectiveness of public administration in cross-country comparison. The indicator was developed on the basis of several hundred variables and consists of six indices reflecting six dimensions of governance. These parameters have been identified on the basis of a common definition, according to which "public administration" is understood as a set of traditions and institutional formations and includes: a) the processes of choosing, controlling and replacing government; b) the ability of the government to formulate and implement policy; c) respect for citizens and the state for the institutions that govern social and economic interaction in society. The assessment was based on a comparison of six indices:
– voting rights and accountability(Voice and Accountability) - the index includes indicators that measure various aspects of political processes, civil liberties and political rights. Indicators in this category measure the extent to which citizens can participate in the choice of government. For example, an indicator of the degree of independence of the press;
– political stability and absence of violence(Political Stability and Absence of Violence) - the index includes a group of indicators that measure the likelihood of government destabilization and forced resignation as a result of the use of violence (including terrorism and domestic violence). This index reflects the extent to which the quality of public administration can cause the need for drastic changes, a change in political course;
– government efficiency(Government Effectiveness) - the index reflects the quality of public services, the quality of bureaucracy, the competence of civil servants, the level of independence of the civil service from political pressure, the level of confidence in the policy pursued by the government;
– quality of legislation(Regulatory Quality) - the value of this index is associated with the policy being implemented. It measures measures that are contrary to the market economy, such as price controls, inadequate control of banks, excessive regulation international trade and business development;
– law supremacy(Rule of Law) - the index measures the level of citizens' trust in the laws of society and commitment to the implementation of these laws. It includes indicators of the attitude of citizens to crime, the effectiveness and predictability of the legislative system, adherence to the contract system;
– corruption control(Control of Corruption) - the index reflects the perception of corruption in society, while taking into account different aspects of the phenomenon, ranging from the frequency " additional payment getting the job done”, to the impact of corruption on business development, as well as the existence of “great corruption” at high political levels and the participation of elites in corruption.
It should be noted that today there are no sufficiently clearly formulated development strategies, a system for building targets in public authorities. In addition, the new positioning of administrative structures is taking place in the context of a change in the entire system of public administration, in the context of fuzzy positions of various subjects of government, both at the federal level and at the level of subjects of the Russian Federation. In this context, issues related to the creation of a comprehensive model for managing the performance of government bodies, including a system of goal-setting, a reasonable choice of priorities, a system for assessing the quality of management and monitoring the results achieved, are of particular importance.
Precisely because the processes of public administration are becoming extremely diverse, variable and intensive, there is a need for the maximum possible structuring from the standpoint of the broadly understood "resources" and "results". This is also associated with the active use of formalized assessments. The performance appraisal system is inextricably linked to the planning cycle, in which the scope and effectiveness of the authority's activities are planned, achieved and evaluated. The performance appraisal system encourages the definition of various kinds of goals for which the authority is responsible, and the determination of the time period during which these goals will be achieved. Commitments to achieve results are recorded in performance indicators. In this regard, the system for evaluating the professional activities of civil servants, based on a balanced scorecard, should be linked to the level of achievement of the strategic and operational goals of the body as a whole, and not be tied only to assessing the quality of the implementation of individual management procedures and operations.
8.4. Indicators of efficiency and effectiveness of the activities of authorities
Evaluation of performance based on a balanced scorecard has become a powerful tool for collective analysis in the process of implementing strategic goals. A balanced scorecard allows you to analyze the main strategic problems in several key aspects: financial performance; relationships with consumers; organization of internal administrative processes; training and development of civil servants.
Performance evaluation based on a balanced scorecard has many advantages:
1) the processes of planning, controlling and communicating to employees the strategic goals and stages of their implementation become more transparent; the presence of both leading indicators characterizing the success factors in the future, and indicators for the past time allows for a retrospective analysis;
2) the possibilities of identification and concentration of efforts on relations with consumers of services and clients are increased due to the presence of indicators of customer satisfaction, quality indicators;
3) additional opportunities are created to achieve the efficiency of internal administrative processes and determine the conditions for improving the organizational structure and internal processes, professional development of civil servants;
4) the presence of logical and interrelated criteria makes it possible to differentiate the remuneration of employees.
The main advantage of the balanced scorecard is that it allows you to see a clearly defined cause-and-effect strategic relationship between all key aspects of government activities. When developing performance and efficiency indicators, it is important to observe the interconnection between the system of planning, evaluation, remuneration and the orientation of employees to achieve planned indicators.
The system of indicators of efficiency and effectiveness of the activities of the authorities should include the following groups.
Outcome indicators. Reports on the activities of authorities and structural units already contain a list of certain results. The content of the results of administrative activity is determined both by questions of competence and by the nature of the functions that they perform. In this case, an indicator of the immediate result for him will be the number of services in the broad sense, management decisions in the form of legal acts, programs. An indicator of the immediate result may be the number of standardized services, deviation from the specified standards, the number of recipients of standardized services.
end effect indicators. Effect indicators characterize changes in the management object, the nature of the impact of activities on the target group allows you to indicate the final effect of the activities of the executive body. The end effect for the body is a change (or lack of change) in the state, functioning of the control object, target groups and, as a rule, is associated with the achievement of the goals of the government body. As indicators that may indicate the achievement of the final social effect, there are indicators of consumer satisfaction from the service provided or from the activities of the executive body.
Indicators of direct processes related to the nature of functioning, administrative processes, requirements for them. The indicator can be formulated as the proportion of operations or procedures that meet the standards or requirements for work. In fact, these indicators cannot be fully attributed to the indicators of the result, although they are inextricably linked, the quality of administrative processes only to some extent determines the achievement of the result. As indicators of direct processes, for example, the share of prepared documents completed on time and without violations, the share of operations carried out in accordance with the regulations (correctly and on time) can be singled out.
The indicators must comply with the following requirements:
1) correlation - indicators should be directly related to the formulated goals and objectives of the activities of the authority;
2) clarity and unambiguity, ease of understanding and use - In order to allow data to be collected and compared, the indicator should be clearly defined. From the definition of the indicator, it should be clear whether an increase in its value indicates an improvement or, on the contrary, a deterioration in the provision of this service;
3) comparability - ideally, indicators should be comparable over time and allow comparison between authorities;
4) verifiability - indicators should be formulated in such a way that their values (collected and calculated data) can be verified. Where possible, they should be accompanied by a description of the statistical methods used in the calculations and sampling design;
5) statistical reliability - indicators should be based on reliable data collection systems, and those who use them for management purposes should be able to verify the accuracy of the data and the reliability of the calculation methods used;
6) economic expediency - it is very important to strike a reasonable balance between the cost of collecting data and the usefulness of this data. Where possible, indicators should be based on pre-existing data and should be linked to ongoing data collection efforts;
7) sensitivity - indicators must respond quickly to changes. An indicator whose range is too small may have only very limited use;
8) lack of internal "anti-stimuli" - Indicators need to be designed taking into account what kind of behavior they will encourage. It is necessary to avoid such indicators that can lead to the formation of counterproductive behavior of employees;
9) flexibility for innovation - the system of once-defined indicators should not prevent innovation or the introduction of alternative methods, systems or processes in order to improve the quality and quantity of services;
10) update speed - the indicator should be based on data that can be obtained in a time that is reasonably reasonable given the decisions based on the indicator, otherwise there is a risk that decisions will be made on the basis of outdated or outdated data.
When implementing a results-based management system, it is important to take into account risks and limitations, a complex preliminary assessment is necessary to determine performance indicators, since the establishment of an unreliable, biased and unbalanced system of indicators can lead to even more serious consequences than the absence of an assessment system at all. The use of a performance appraisal system increases transparency. Transparency itself is a very valuable quality. Often, due to its absence and the closeness of the activities of government bodies, bureaucracy develops, attention is paid to unproductive processes, methodological recommendations, and structuring. As a result, it is not entirely clear how certain types of activities of the authority are related to the main process and what is the purpose of its existence. In this case, the definition of indicators of efficiency and effectiveness of activities and the achievement of set goals can lead to increased transparency and be an additional incentive for innovation. The introduction of performance evaluation procedures can significantly improve the quality of internal policy and decision-making in government.
The performance appraisal system is linked to the personnel appraisal system and human resource management in the authorities. Using the performance evaluation system for "self-learning", competency management, the authority takes one more step towards organizational development. When developing and implementing elements of results-based management, an integrated approach is needed, it is important to analyze the role of contexts, relationships, remote and variable consequences of the use of innovative technologies, which contributes to more efficient use of results-based management tools in management practice.
As a result of studying this chapter, the student should:
know
- main trends in the development of public administration;
- principles and approaches to assessing the effectiveness of public administration;
- methods for assessing the effectiveness of public administration;
- a system of measures of state influence aimed at improving the efficiency of public administration;
- the main content of the state strategy aimed at improving the efficiency of public administration;
be able to
- set goals and formulate tasks aimed at improving the efficiency of public administration;
- use regulatory legal documents to assess the effectiveness of public administration;
own
- methods for evaluating the effectiveness of public administration;
- modern technologies for assessing public administration;
- skills to assess the effectiveness of the implementation of government programs.
Theoretical and methodological approaches to determining efficiency
Modernization of the public administration system is inextricably linked with the determination of the optimal parameters that contribute to the formation of public administration as an open, dynamic social system. To form an effective model of public administration, a comprehensive analysis of the relationship between the political system, state power, civil society institutions, socio-economic standards and socio-cultural norms is necessary.
In the context of a changing political and social environment, the problem of establishing an adequate system of public administration that is able to effectively respond to the challenges of the external environment is being updated, and the need to develop a balanced system of indicators and criteria for the effectiveness of public authorities' activities becomes obvious.
There are several theoretical and methodological approaches to the definition of efficiency. In different fields of activity, the understanding of efficiency has its own characteristics. Thus, in politics, "efficiency" is seen as something positive and a desirable value characteristic of activity. In relation to the activities of government bodies, this term has become an effective political symbol capable of organizing public opinion in support of certain proposals. In its most general form, efficiency is understood as the possibility of achieving a result; the significance of obtaining the result for those to whom it is intended; the ratio of the significance of this result to the amount of effort spent on achieving it.
In organization theory and administrative management, efficiency is defined as the ratio of net positive results (the excess of desirable consequences over undesirable ones) and acceptable costs. In economics and management studies, there are two approaches to performance evaluation. The first is related to the evaluation of technical efficiency, the second - economic efficiency.
Technical performance measures reflect the nature of the activity being assessed: it indicates that “the right things are being done”.
Economic efficiency indicators characterize how the assessed activity is implemented, how productively the expended resources are used, i.e. "how well these things are done". The effectiveness of managerial or administrative work is evaluated by determining the ratio between the result obtained and the resources expended.
In studies of the effectiveness of public administration, state bureaucracy, and state institutions, several theoretical and methodological approaches can be distinguished that link efficiency with certain factors.
- 1) An approach, based on the concept of leadership. Representatives of this direction link the effectiveness of the organization with leadership skills, management style, individual characteristics and qualities of the heads of government bodies, systems for selecting, assessing the performance of tasks, motivation and professional development of civil servants.
- 2) An approach, developing the theory of Weber's rational bureaucracy. From the standpoint of this approach, attention is focused on the hierarchical structure, functional specialization, the presence of clear principles for regulating the professional activities of civil servants, which are considered as necessary prerequisites for the effective operation of power structures.
- 3) Performance Approach, associated with the theory of life cycles, is to consider the effectiveness of public administration in conjunction with the assessment of the influence of constantly and cyclically formed coalitions, or groups of influence, in government. The nature of decision-making in bureaucratic structures and their effectiveness are considered in the context of the life cycles of an organization's development.
- BUT) Within the concept of professionalism effective activity is directly dependent on the professionalization of public authorities, the availability of career (professional) officials, their level of professionalism and competence.
- 5) economic approach linking the increase in the efficiency of public authorities with the presence of a competition mechanism among departments, a system for introducing innovations, as well as political and social accountability of public authorities, primarily to taxpayers.
- 6) Ecological approach which emphasizes that the results of the activities of the bureaucracy depend on the nature of the external environment (the ecology of the organization) and the ability of public authorities to manage changes and innovations in order to adapt to these changes.
- 7) An approach, based on the concept of quality management. Within the framework of this approach, the main attention is focused on creating a system of continuous improvement of processes and public services in public authorities; involvement of civil servants in this activity with the maximum use of their creative potential and organization of their group work. Quality management is based on the relationship between the potential of public authorities and performance results with constant correlation with strategic goals and the involvement of employees in quality processes, their training, increasing their competence and motivation.
An analysis of theoretical and methodological approaches to determining efficiency allows us to conclude that, as a rule, economic efficiency and social. The independence of these types of efficiency, of course, is relative, since they are in close unity and interrelation. When analyzing the effectiveness of public administration, the social effect is of particular importance, the essence of which lies in the fact that it must be stable, reproducible, progressive, contain a source for subsequent social development. The Russian sociologist G.V. Atamanchuk divides the social efficiency of public administration in general and the activities of public authorities, in particular, into three types:
- 1) overall social performance. It reveals the results of the functioning of the public administration system (i.e., the totality of state bodies and objects managed by them);
- 2) special social efficiency. It characterizes the state of organization and functioning of the state itself as a subject of management of social processes. This type of criteria includes:
- - the expediency and purposefulness of the organization and functioning of the state-management system, its large subsystems and other organizational structures, which is determined through the degree of compliance of their control actions with goals objectively emanating from their position and role in society. It is necessary to establish by law what goals each state body should implement, and upon their achievement, evaluate the relevant managers and officials,
- - time standards for solving management issues, developing and passing any management information,
- - style of functioning of the state apparatus,
- - regulations, technologies, standards that every manager and civil servant must follow,
- - the complexity of the organization of the state apparatus, arising from its “fractionality”, multi-stage and abundance of managerial interdependencies,
the costs of maintaining and ensuring the functioning of the state apparatus;
3) concrete social efficiency. It reflects the activities of each management body and official, each individual management decision, action, relationship. Among the criteria, one can distinguish the degree of compliance of the directions, content and results of the management activities of bodies and officials with those of its parameters that are indicated in the legal status (and competence) of the body and public office; legality of decisions and actions of state authorities and local self-government, as well as their officials; reality of control actions.
The effectiveness of the activities of public authorities is determined not only by the magnitude of the economic effect, but, above all, by the socio-political results of the activities of the authorities. To assess the effectiveness of public administration and the activities of public authorities, evaluation technologies and procedures are needed that would be sustainable, objective and allow timely adjustment of the activities of public authorities.
- See: Economic theory / ed. V. D. Kamaeva. M. : VLADOS, 2000; Dictionary of Economics: Per. from English. K. Pass, B. Lowes, L. Davis. Moscow: School of Economics, 2004.
- See: Stolyarova VL Functions and evaluation of the results of work of employees of the management apparatus. M. : Economics, 1995; She is. Problems of normative and methodological support and evaluation of the results of the work of civil servants / Public service in the Russian Federation: concept, experience, problems. M.: RAU, 1993.
- Tocqueville A. Democracy in America. M., 1992; Management is a science and an art / A. Fayol, G. Emerson, F. Taylor, G. Ford. M. : Respublika, 1992. Weber's theory of bureaucracy is studied in sufficient detail in the monograph by M. V. Maslovsky. See: Maslovsky M.V. Max Weber's theory of bureaucracy and modern political sociology.N. Novgorod: Publishing house of UNN, 1997; He is. Political sociology of bureaucracy. M., 1997; Gaidenko P. P., Davydov Yu. N. The problem of bureaucracy in Max Weber // Questions of Philosophy. 1991. No. 3; Makarenko V.P. Faith, power and bureaucracy (criticism of the sociology of M. Weber). Rostov i/D., 1988; Zverev A.F. The theory of bureaucracy: from M. Weber to L. von Mises // Soviet state and law. 1992. No. 1; Okhotsky E. V., Smolkov V. G. Bureaucracy and bureaucracy. M., 199 Alekseeva T.A. Modern political theories. M., 2000; Pushkareva GV State bureaucracy as an object of research // ONS. 1997. No. 5.
- Filonovich S. R., Kushelevich E. I. The theory of life cycles of the organization I. Adizesai and Russian reality // Sotsis. 1996. No. 10.
- Becker G. The nature of the profession // Ethics of success: Bulletin of researchers, consultants and decision makers. Issue. 3/94. Tyumen - Moscow, 1994; McIntyre A. After Virtue: Studies in Moral Theory. M.: Academic project; Yekaterinburg: Business book, 2000; Durkheim E. On the division of social labor. M. : Kanon, 1996; Weber M. Science as a vocation and profession / Weber M. Selected works; per. with him. M. : Progress, 1990; Weber M. Politics as a vocation and profession / Weber M. Selected works; transl. with it. Moscow: Progress, 1990.
- See: MillJ. S. Principles of Political Economy / ed. by W Ashley. New York:AM. KellerPublishers (1848); NorthD. (1993): Institutions and Credible Commitment // Journal of Institutional and Theoretical Economics. Vol. 149.
- Western economic sociology: a reader of modern classics / comp. and scientific. ed. V. V. Radaev; measures. M. S. Dobryakova and others. Moscow: Russian Political Encyclopedia (ROSSPEN), 2004.
- See: Lobanov VV Public administration and public policy. SPb., 2004; Sadler J., Lobanov VV Increasing the efficiency of local authorities: the experience of Great Britain // Problems of theory and practice of management. 2001. No. 2; Efficiency of public administration: Per. from English. / under total ed. S. L. Batchikov and S. Yu. Glazyev.M. : Foundation "For Economic Literacy", Russian Economic Journal, Publishing House "Consultbanker", 1998; Fundamentals of product quality management. M.: Publishing house of standards, 1996; Sakato Shiro. A practical guide to product quality management; per. from Japanese M. : Mashinostroenie, 1994; Product quality management: issues of theory and practice. M. : Thought, 1996; Tomilin VN Quality management in the transition to a market economy // Standards and quality. 1990. JSIb 10.
- Atamanchuk GV Ensuring the rationality of public administration. M., 1990; General theory of management: a course of lectures. M., 1994; Theory of public administration. M., 1997.
10. The effectiveness of public administration. The concept and types of public administration efficiency. Criteria and indicators for evaluating the effectiveness of public administration.
Efficiency of the public administration system- this is a complex characteristic of potential and real results of functioning, taking into account the degree of compliance of the results obtained with the goals and objectives.
allocate types of effect GU: 1) ek-kaya - a reflection of the effect of the state-led economic policy, processes and phenomena (ex-growth, use of resources, privatization, investments). 2) social - defines the effect of the social policy of the state, the solution of social problems of the life of society, its various groups and classes. 3) ecol - connection with the use of the environment, the implementation of environmental measures. 4) vneshnek - a reflection of mutually beneficial cooperation with the state in the m / y-nar arena, in the m / y-nar division of labor, in the region of credit and monetary relations, in the exchange of the latest technologies, etc.
Performance criteria - signs, facets, aspects of the manifestation of management, through the analysis of which it is possible to determine the level and quality of management, its compliance with the needs and interests of society. The key problem is the lack of criteria for evaluating the work of ministries, state committees and other government bodies.
The main role should belong assessment of the level of achievement of the goals set for the management bodies, which are expressed in forecasts, programs, development plans, etc. The main problem is to form criteria and indicators for evaluating the results of activities, which are determined by the specifics of a particular management object. As such, for industries of the production sphere, there may be the following:
implementation of decrees, decrees of the President, laws, resolutions and other legal acts;
fulfillment of the forecast. and programs. assignments on important indicators of the industry;
efficiency of work (productivity, profitability, energy intensity);
the course of market transformations (development of new forms of ownership, market institutions, restructuring of enterprises);
execution of orders and orders of higher managers;
implementation of the provisions and requirements of the state personnel policy.
The most general and defining class is criteria for social efficiency of public administration, revealing the results of the functioning of the system, i.e. set of the subject and managed objects of state administration.
The main criteria for the social efficiency of management are:
The level of labor productivity, correlated with world parameters for its respective types;
The rate and scale of growth of national wealth, calculated according to the methodology of the UN;
The level of well-being of people's lives per capita and with a breakdown of income of various categories;
Orderliness, security and reliability of social relations, their reproduction with an increasing positive result.
19. GDP and methods of its calculation. Nominal and real GDP. GDP is a measure of the general eq of the state of the country. It gives an idea of the general material well-being. nation, because the higher the level of production, the higher the welfare of the country. Central mail system nat. accounts (SNA).
GDP can be calculated in the following three ways:
1. As the sum of gross value added (production method) 2. As Σ components of finite. use (end-use method) 3. As a sum of primary incomes (distributive method)
When calculating production method GDP is calculated by summing gross added. the cost of all production units - residents, groups by industries or sectors. According to the method end use GDP is defined as the sum of the following components: 1. expenditure on final consumption of goods and services; 2. gross capital formation; 3. balance of exports and imports of goods and services: GDP = C + I + E, where C is final consumption; I - investments; E - net export. under final consumption costs. goods-in and services understand the costs of household hoz-in consumer goods and services, as well as the costs of institutions. state administration (budget org-th) and non-commercial. organizations for goods and services for individual and collective consumption.
When determining distribution method GDP incl. track. types of primary income: wages of employees, net taxes on production and imports (taxes on production and imports minus subsidies on production and imports), gross profit and gross mixed income. GDP \u003d W + Q + R + P + T, where W is the salary paid to workers and employees, regardless of whether yavl. whether they are residents or non-residents of that country; Q - contributions to social. insurance; R - gross profit; P - gross mixed income; T - taxes on production and imports (net of subsidies).
Allocate nominal and real GDP. Nominal (absolute) GDP is expressed in current prices of a given year. Real (inflation-adjusted) - expressed in prices of the previous or any other base year. Real GDP takes into account the extent to which GDP growth is driven by real output growth rather than price increases. The ratio of nominal GDP to real GDP is called GDP deflator . Actual GDP is part-time GDP, which reflects the realized opportunities of the economy. Potential GDP is GDP at full employment and reflects the potential of the economy. The latter may be much higher than the real ones.
Real GDP = Nominal GDP / General price level
| " |
Ministry of Higher Education of the Russian Federation
Russian State Pedagogical University named after A.I. Herzen
Department of Sociology.
Public Administration Efficiency.
Bachelor's work.
4th year student, 4th group
Faculty of Social
department of political science.
Kirillova Stanislav
Yurievich
St. Petersburg
Introduction _________________________________ 3 - 6
Chapter 1. " General theoretical problems of the
tivnawn of public administration."
7 -34_________
1.1 Management as a social phenomenon ________________7 - 12
1.2 The specifics of public administration __________ 13 - 15
1.3 Goals, functions and principles of public
control_______________________________ 16 - 25
1.4 Features of public administration in
Russian Federation ____________________________ 26 - 34
Chapter 2 " Efficiency Mechanisms
government controlled."
35 - 70______
2.1 Socio-political aspect of efficiency
35 - 38
2.2 Efficiency as a way of anti-crisis
existence and development ______________________ 39 - 44
2.3 Subjective factor of efficiency improvement
government controlled. _____________________45 - 57
2.4 Information aspect of efficiency improvement _ 58 - 65
2.5 Regional aspect of efficiency improvement _____66 - 70
Conclusion ___________________________ 71 - 76
Bibliography _________________________ 77 - 80
Introduction.
The realities of the existence of our society at the present time, the harsh reality to which everyone is forced to adapt, are directly dependent on the effectiveness of public administration and are inextricably linked with it. In any society, there is interaction between the state and society, the quality and level of which is determined by the effectiveness of management policy. If public administration is to succeed, it must provide citizens comfortable conditions existence in accordance with the promises that made this governance legitimate. It is no secret that such actions in a situation of limited resources (both personnel and material) are very difficult. The task of providing for the needs of the whole society, and even more so in the current situation, is almost insoluble. It should be emphasized that in order to solve this problem, state structures in many respects have management systems that are inadequate for solving this problem. The organization of mutually beneficial and effective cooperation with the private sector and the public requires a reorganization, or rather, a restructuring of the public administration system.
Of course, this problem is the most acute and fundamental, and, as a result, almost insoluble in the context of world politics. People have suffered, are suffering and will continue to suffer from the inefficiency of state organizations. It is an indisputable fact that in Russia there is no core thought in organizing the structure of state administration, or, to be more precise, effective public administration. The system of governance, the distribution of powers, in the end, our basic law, the Constitution, is the quintessence of world experience, but experience not adapted to the specifics of our country, such experience can be described as an ordinary, thoughtless tracing paper.
In this context, a very reasonable conclusion suggests itself, and here it is appropriate to paraphrase the words of the genius M. Bulgakov, put into the mouth of Professor Preobrazhensky - “ destruction starts from the head!” If we consider the state from the point of view of the social mechanism, then this metaphor is optimal for assessing the relevance of the topic "Efficiency of public administration".
In this work, works related to advanced developments in the field of ensuring the effectiveness of public administration, by our scientists and foreign specialists, were used. Among the Russian specialists in the field of public administration, I would like to note the following names: G.V. Atamanchuk, V. Ignatov. Relating to the latest research of Western scientists and practitioners in the issue of improving the efficiency of public administration are the works of M. Holzer, Mary E. Guy, Daniel W. Martin used in this work. I want to make a reservation right away that Western literature, unfortunately, does not reveal the specifics of public administration within Russia; more precisely, Western authors are not interested in this specifics to the right extent. It is very important not to take all the achievements in the field of Western specialists as a role model. A comparative analysis of the role of the state in the social processes of Russia and Western European countries shows even at first glance that the suppression of many state functions and self-withdrawal from the performance of their duties is unacceptable, which leads to a weakening, not strengthening, of our statehood. But, of course, knowledge and application of Western experience, where possible, is necessary. The literature of our authors allows us to identify the specifics of public administration in Russia, to conduct deep historical research and to identify the factors that affect public administration. Thus, the combination and analytical approach to these sources provides fertile ground for in-depth scientific research.
The purpose of this scientific study is to search for and designate resources that could be used to improve the efficiency of public administration, and consider the mechanisms that contribute to this, taking into account the specifics of our state.
To achieve this goal, I set the following tasks:
1. Define the very concept of “management”.
2. Consider the specifics of public administration.
3. Identify the components of the effectiveness of public administration.
4. To characterize the formation process and the factors that originally influence public administration in the Russian Federation.
5. Designate ways to improve the efficiency of public administration in the Russian Federation.
The subject of the study is the specificity of public administration as a factor determining the crisis-free existence and future development of the Russian Federation.
The object of the study is management as a social phenomenon and public administration in the Russian Federation.
When developing this problem, I used the following methods: historical method, analysis method, synthesis method.
Chapter 1."General theoretical problems of public administration efficiency."
1.1 Management as a social phenomenon .
Starting to study the content and features of public administration, it is necessary first of all to determine what is governance? This term has become a universal means of characterizing a certain type of activity, i.e. a set of actions performed in order to achieve the relevant socially significant goals.
In the broadest sense, management means leading something (or someone). In a similar sense, it is interpreted in our days. However, it is not enough to confine oneself to such a statement. There is a need to disclose the content of this manual, its functional significance. General theoretical positions, including cybernetic ones, provide sufficient grounds for the following conclusions:
1. Management is a function of organized systems of various nature (biological, technical, social), ensuring their integrity, i.e. achievement of the tasks facing them, preservation of their structure, maintenance of the mode of their activity.
2. Management serves the interests of the interaction of the elements that make up this or that system and represent a single whole with tasks common to all elements.
3. Management - the internal quality of an integral system, the main elements of which are the subject (managing element) and the object (managed element), constantly interacting on the basis of self-organization (self-management).
4. Management involves not only the internal interaction of the elements that make up the system. There are many interacting integral systems of various hierarchical levels, which involves the implementation managerial functions both intra-system and inter-system. In the latter case, a higher-order system acts as a subject of control in relation to a lower-order system, which is an object of control within the framework of interaction between them.
5. Management in its essence is reduced to the control action of the subject on the object, the content of which is the ordering of the system, ensuring its functioning in full accordance with the laws of its existence and development. This is a purposeful ordering influence, implemented in the relations between the subject and the object and carried out directly by the subject of management.
6. Control is real when there is a known subordination of the object to the subject of control, of the controlled element of the system to its control element. Consequently, the control (ordering) impact is the prerogative of the subject of control.
These are the main features that characterize general concept management. They are fully acceptable, and for understanding management in the social (public) sphere, where people and their various associations act as subjects and objects of management (for example, the state, society, territorial entity, public associations, production and non-production facilities, family, etc.) P.)
Of course, this takes into account the peculiarities of the social sphere, the most important of which is that managerial ties are realized through people's relations. Society is an integral organism with a complex structure, with various kinds of individual manifestations, as well as with functions of a general nature. Hence the need for the expression general connection and the unity of social processes, which finds its manifestation in the implementation of social management. It is one of the leading conditions for the normal functioning and development of society.
social management as an attribute public life It is expressed in signs predetermined by the general features inherent in management as a scientific category, as well as the peculiarities of the organization of public life. (1 p. 41) The most significant of them are:
1. Social management exists only where the joint activity of people is manifested. By itself, this kind of activity (industrial and other) is not yet able to ensure the necessary interaction of its participants, the uninterrupted and effective implementation of the common tasks facing them, the achievement of common goals. Management organizes people specifically for joint activities and certain teams and organizationally draws them up.
2. Social management, with its main purpose, has an ordering effect on the participants in joint activities, giving organization to the interaction of people. At the same time, the coordination of individual actions of the participants in joint activities is ensured, as well as the general functions necessary for regulating such activities and directly arising from its nature (for example, planning, coordination, control, etc.) are performed.
3. Social management has as the main object of influence the behavior (actions) of participants in joint activities, their relationships. These are the criteria of a conscious-volitional nature, in which the guidance of people's behavior is mediated.
4. Social management, acting as a regulator of people's behavior, achieves this goal within the framework of public relations, which are essentially managerial relations. They arise, first of all, between the subject and the object in connection with the practical implementation of the functions of social management.
5. Social management is based on a certain subordination of the wills of people - participants in managerial relations, because their relationship has a conscious-volitional mediation. The will of the rulers takes precedence over the will of the governed. Hence - the imperiousness of social management, which means that the subject of management forms and implements the "dominant will", and the object obeys it. This is how the power-volitional moment of social control is expressed. Therefore, power is a specific means that ensures that the will of the governed is followed by the will of the rulers. This is how the volitional regulation of people's behavior takes place, and in the conditions of the state organization of social life, the necessary "intervention" of state power in social relations is ensured.
7. Social management needs a special mechanism for its implementation, which embodies the subjects of management. The role of such is played by a certain group of people, organizationally formalized in the form of appropriate governing bodies (public or state), or individual persons authorized to do so. Their activity, which has a specific purpose and special forms of expression, is managerial.
Management, understood in the social sense, is diverse. In the broadest sense, it can be understood as a mechanism for organizing social relations. In a similar sense, we can say that its tasks and functions are practically performed by all state bodies, regardless of their specific purpose, as well as public associations. Local self-government is also an element of the social management system. The object of control here is the whole society as a whole, all the variants of social relations developing in it.
Social management also has a special meaning. In this variant, it is usually characterized as public administration, which is understood as a specific type of state activity that distinguishes it from other manifestations (for example, legislative, judicial, prosecutorial activity), as well as from managerial activity. public associations and other non-state formations (labor collectives, commercial structures, etc.).
1.2 The specifics of public administration.
Many authors recognize the nature and substantive specifics of management subjects as the basis for types of management, on the basis of which they distinguish between public administration (the subject of control actions is the state), public administration (the subject of control actions is society and its structures) management (the subject of control actions - entrepreneur, owner) (8, p. 34). Among all types of government, public administration occupies a special place, as it is characterized only by its inherent properties. Let's consider the most important of them:
1. The state, acting as a subject of government, gives public administration an important property, without which it could not take place. This is a property of the system. How else could the management of huge masses of both human and material resources be carried out. This property is fundamental because only if it is present, consistency, coordination, purposefulness and efficiency can be carried out.
2. The determining influence on the nature of the impacts carried out by this type of management is exerted by its subject, that is, the state, and the power inherent in it. Thus, referring to the modern "Concise Philosophical Encyclopedia", the state is understood as "a structure of domination, which is constantly renewed as a result of the joint actions of people, actions performed through representation, and which, ultimately, streamlines social actions in one area or another." The state differs from public structures in that it implements state power in relation to people, which has legal conditionality (legitimacy) in its source, and in its implementation the power of the state apparatus, which has the means of coercion. This is a forceful pressure, which leads to the fact that the goals set in the management, the organizational moments contained in it, and the norms established by it must be fulfilled. Consequently, all the problems associated with public administration are of a historical nature: what is the state, what and how does it do, what goals does it set for itself.
3. These are, of course, the boundaries of the spread of state administration. Such boundaries can be defined as passing not within the framework of the whole society, but going beyond it and manifesting themselves in the foreign policy of a given state. The normal version of the relationship between the state and society is characterized by the fact that the public life of people has a large amount of freedom and self-government, while the boundaries of this autonomy are determined by both public institutions and the state. That is, the state, through legislation, establishes the basic types and norms of people's behavior in all spheres of life and ensures their observance by its power. In this context, the problem is "the prevalence of public administration in society", since here we will not talk about technological changes, but about analyzing the state of society itself, from its ability to self-regulate and adapt to something new. This maxim leads us to the conclusion that public administration will retain its influence on society, but the depth of this influence is a question. It is important to note that this influence will be called upon to reflect and reproduce in itself the state of society. Thus, management should be in a correlative relationship with the process and phenomena to which it directs its goal-setting, organizing and regulatory influences.
So, Public administration - this is the practical, organizing and regulating influence of the state on the social life of people in order to streamline, preserve or transform it, based on its power.
The term "public administration" is widely used in domestic and foreign scientific literature, as well as in the legislation of many countries. For more than 70 years, it has been used in our country, thus giving constitutional grounds for singling out this type of state activity.
1.3 Purpose, functions and principles
government controlled.
The assessment and analysis of the state of public administration in the Russian Federation and the search for solutions to improve the productivity of public administration in the current situation in the Russian Federation are hampered by the lack of clarification of a number of socio-political and especially aggravated economic problems that act as objective grounds for public administration itself. At the moment, we must answer fundamental questions, without a clear understanding of the answers to which public administration as a technology for their implementation is of little importance. You need to decide on the following points:
1 . In what direction are we moving?
In this context, it is necessary to answer the questions that are conceptual, system-forming: Decide what kind of society we want to build and really can. Determine the adequacy of the resources we have and characterize the political will that we have. Yes, of course, at this stage, the socio-economic formation is being restructured, there has been a transition to private property, we are in the plane of market relations and we live in a democratic country with all the shortcomings of this model within our specific society. But these values and conquests are common choice and highly uncertain. Based on the choice in favor of these values, it is impossible to build and formulate a new concept of public administration. It is necessary to determine the specifics of our society and distinguish between the general and the particular within the framework of world experience. Here one should take into account a huge range of factors: from historical specifics to the peculiarities of the mentality.
2. What are the origins of the society we are transforming?
As we can see, this question organically echoes the previous one, since the choice of the path includes the selection and preservation of elements of accumulated knowledge and their intended use. After all, one cannot completely reject the ideas of socialism and consider that they are not in demand. Many of the ideas and principles of socialism have been adopted and put into practice in many countries. As an example, we can take the ideas of F.D. Roosevelt's "new" course. This means that we need a deeper and more critical analysis, it is necessary to isolate what is functional for the development of the future society, and what has revealed its failure. We need to rank public elements, select elements that can be adapted. For more than 10 years we have been living in a transitional society and the system of state administration must be adapted to the interests of the entire social composition of society and in no case should social antagonism be allowed.
3 . What actions should be taken during the transition period?
This question is quite logical, since the achievement of any goals is always associated with the use of appropriate means, resources, forms and methods, and to a certain extent they leave their mark on the final result. One can talk about a large number of this kind of experience in modern society and consider the history of actions taken to get out of a crisis, transitional society through the prism of analogies, but this consideration loses its problematics, since the specificity of our country is lost, on the basis of which the consideration takes place.
So, it is expedient to dwell on the fundamental and very difficult stage in the formation of the goals of public administration. As you know, goals perform extensive incentive, stimulating and regulatory functions. The goals of public administration arise on the basis of the goals underlying the life of a given society. They are derived from the goals of society. (6, p.5)
Goals of public administration in modern Russia.
1. Ensuring the internal and external security of the country.
2. Development and strengthening of public institutions that ensure sustainable and reliable democratic development of the country.
3. Constitutional protection of the rights and freedoms of citizens of the Russian Federation, general administrative and legal regulation.
4. Formation of state policy aimed at improving the well-being of people.
5. Maintaining a positive environmental environment.
6. Maintenance of market mechanisms.
7. Competent, mutually beneficial cooperation between the regions and the center.
This is only a very general overview of the purposes that public administration is intended to serve. But it is paramount to create a "tree of goals" that would include operational and strategic, final and intermediate, general and particular goals. Goals should be a symbiosis, a synthesis, that is, a kind of integrity. But, this integrity must be combined with adequate means, methods and forms of their implementation, because otherwise even correctly set goals in the process of their implementation will be distorted.
Functions of public administration - objectively determined types of imperious, goal-setting, organizing and regulating influences of the state on social processes. This is a specific impact of the state, and it is important to note that it is holistic. (7 p. 18) At least 2 factors influence the set of functions of public administration: the state, structure, self-governance of social processes, that is, the totality of managed objects and, of course, the place and role of the state in society. Thus, we can conclude that the state, and public administration as its derivative, is, on the one hand, the element that carries out violence, i.e. the so-called "legitimate violence", and on the other hand, it plays a role subordinate to society and is determined by the needs , desires and interests of social development. Speaking of such a contradiction, I would like to take a step towards limitation and substitution, or rather, at the first moment, in general, about the elimination of this function (I mean "violence"). But, having eliminated this function, it is necessary to fill the vacant place with something, and here only the mechanism of self-government comes to mind, otherwise we will be faced with the fact that the organizing and regulatory mechanisms will be devalued and the so-called vacuum of control will come, that is, chaos , arbitrary
Thus, we should talk about the development, selection and evaluation of those public institutions that are able to take on the functions of public administration and ensure their proper implementation. The best option would be to find some kind of balance, since in modern society we we are witnessing a reduction in the public sector (privatization is currently considered one of the main ways to increase efficiency in the public sector), but on the other hand, an increase in the role state regulation in the organization and development of policy in the field of organization of market relations.
Functions of public administration.
1. Planning function.(At the same time, you need to answer the question of what, how, where, when the goal is achieved. A strategically important function.)
2. organization function.(Creating conditions for the interaction of people that bring the desired result.)
3. Control function.(A function aimed at ensuring that a person within an organization performs an appropriate amount of activity.)
4. Personnel function.(More and more attention is paid to this function in world practice.)
5. Control function.(The so-called feedback for all listed functions.)
Unfortunately, the postulate of the neoconservatives about the universal market regulation penetrating all spheres of public life within our country cannot be confirmed. Here it is important to determine the specific functions of the state so that these functions do not go to the mercy of market mechanisms, but to make sure that the state determines the scope of these functions at the federal level and at the level of market mechanisms. Efficiency in this case should be carried out at the level of taxes,
benefits, investments - this is control in the field of market economy. I refer to specific functions: scientific and technical development, control and regulation of the sphere labor relations and, of course, the financial system. These functions stand apart and require the strictest control by the state, since otherwise we can talk about a threat to the country's security. That is, when they are implemented, it is necessary to take into account all the features of the country's development, its specifics.
It is no secret that many transformations and transformations in public administration are chaotic and very subjective. There is no methodologically holistic approach to public administration, and this should be recognized. We are placed in a situation where there is no comprehensive mechanism for the creation and transformation of structures both at the federal and local levels. In this context, it is necessary to talk about the principles of public administration. So, principle(from the Latin "principium" - origin, basis) as a concept of theory reflects in the system of public administration patterns, relationships, relationships between its elements. (8 p. 186). That is, those laws and relations of socio-political life, content, organizational structure and life of the components of public administration, expressed in the form of certain scientific provisions, fixed in the majority by law and used in the theoretical and practical management activities of people. First of all, in the problem of the principles of public administration, 3 interrelated and interdependent aspects can be distinguished:
Ontological (this aspect includes the genesis of principles, their relationship with the nature, essence, place and role of those patterns, relationships and relationships that they reflect.)
Gneseological (analysis of the nature of principles, language, logic and structure of their adequate scientific interpretation)
Methodological (indicates the mechanisms of theoretical and practical application principles)
It is obvious that at the moment it is impossible to talk about the complete knowledge of all patterns, relationships and relationships and their description by means of principles. The practical implementation of the principles of public administration does not depend on them themselves, but is determined by the attitude of people towards them. It is not so important to know the principles, but to be able to use them in practical activities, in practical management. Since the principle of state
Public administration is called upon first in a scientific and then in a legal form to express patterns, relationships, relationships that objectively exist in public administration and are of particular importance for its organization and functioning. Speaking about the technology for identifying and substantiating the principles of public administration, the following indicators and requirements can be proposed:
Reflect essential patterns, relationships and relationships.
Patterns, relationships and interconnections must be sustainable
Patterns, relationships and interconnections should be inherent in public administration as an integral social phenomenon.
Reflect the specifics of public administration.
Considering the systematization of the principles of public administration, one can observe some heterogeneity, which indicates great difficulties in this area. This paper uses the systematization borrowed from the work of G.V. Atamanchuk "Theory of Public Administration":
Principles of public administration.
1. Socio-political(formulated as a result of knowledge of the social nature of public administration, general patterns and main features of its development)
2. Functional-structural(revealing the regularities of the structure of state control actions)
3. Organizational and structural(reflecting the nature, regularities and specifics of the organizational structure of public administration and serving as starting points in its formation and improvement, as well as in the organization of state control actions)
4. State-administrative activity ( disclosure - regularities, relations and interrelations of methods of forms and stages of management activities of state bodies in the formation and implementation of management functions.)
The question of the distribution of managerial powers between public authorities is conceptual and central for Russia at all stages of its development, since it accumulates several particularly pressing problems:
Ensuring democracy and rationality of public administration throughout the country.
Federal construction of public administration.
Integrity, rationality, efficiency of public administration.
The unity of legislative regulation and differentiation of the application of legal norms depending on specific conditions, factors and circumstances.
The strength of the state-legal foundations.
It is important to formulate a strategic and operational concept of systemic public administration, since, unfortunately, we are now seeing a picture where power is an element of bargaining and its redistribution on a state scale is opportunistic, political connotation when the granting of certain powers is a moment of some political blackmail. In this context, two actors of this so-called game can be singled out: the federal center and the regional authorities. As we can see, historical analogies are clearly traced in the problem posed, which confirms the thesis about the poor historical memory of those who until recently saw the liquidation of the union center as a panacea for all ills.
Since the problems of building a workable system for the most part, capable of self-regulation and adaptation, are not solved at the federal level, this is thus projected onto the regional, and then to the local level.
Thus, the question of the goals, functions and principles of public administration is the most important when trying to create a system of effective public administration.
1.4 Features of public administration in modern Russia.
Earlier in the work, the thesis about the historical component of public administration and its undoubted influence on the whole reality was put forward and proved. Thus, we are faced with a new research problem - this is the question of the specifics of public administration in Russia and its expression. The concept of public administration cannot be formed without taking into account the special and unique that is objectively inherent in it due to the uniqueness of historical, geographical, industrial, ethnic and other grounds. But giving this great attention specifics, one cannot ignore the typical, universal that should be inherent in the Russian state, as an integral part of the world community and a country developing in line with the universal culture. It is very important that only the merging of these properties in the Russian statehood opens the way to the widespread use of world experience, to the identification of certain state administrative institutions, and at the same time, to the preservation, reproduction and development of a purely national, original, peculiar only to Russia. Reasonable synthesis and its effective use is the solution to the problem. (22 p. 64). But these intentions are easily declared and far from easily achieved. Based on this, we will try to isolate these features, since without defining them, an analysis of the problems of effective public administration is hardly possible.
So, let's try to identify several planes within which it is possible to analyze the specifics, features of public administration in Russia
1 . Of course, this issue should be considered through the prism of centuries-old traditions. This, of course, is the political culture of the population and the ruling elite, to a greater or lesser extent, which determines the features of the problem under consideration. It is not necessary that these traditions determine the process of state administration. There is no doubt, however, that their failure to take them into account, which is possible in a relatively short historical period of time, ultimately creates a situation that does not give the right to scientific analysis. The state administration of Russia has a long history, in which a set of certain constants, constantly operating trends can be seen. Russia almost always (with the exception of short periods of unrest, civil war) had a rigidly centralized government. The correlation of power-administrative functions (making decisions) was shifted in favor of the center, where, in turn, everything or almost everything was concentrated around one person and the apparatus directly working for this person. In this context, the question of a different, more rational redistribution of power between the center and localities (provinces, administrative units) practically did not arise. The latter were assigned the role of the direct executor of the decisions of the center; the implementation of these decisions was the main criterion for evaluating the effectiveness of the actions of local administrative figures (deputies, governors, governors, first secretaries).
A reasonable question arises: “Is this tradition irresistible and justified? “The question is also legitimate whether centralization is a necessary and natural state for the country.
The same obvious feature of the Russian tradition of public administration is the tradition of authoritarianism and unity of command embedded in society. The concentration of political power levers around one person in the center, the dominance, the predominance of this person in making political decisions, created, in particular, the absence of a system of checks and balances, compromises and deals as the norms of the political process, a tendency to eliminate independent, autonomous, authoritative, competing on political scene with the first persons of structures, personalities. The need to abandon authoritarianism in Russia's political practice is obvious.
The state administration of Russia operates in an environment that is distinguished by its political culture, which influences the actions of those who determine the political process, behavior, actions of the masses, and the nature of state institutions. In this regard, it should first of all be taken into account that the genetic population of Russia is people who historically came out of the rural environment, retaining to a certain extent the imprints of the rural culture, transformed by the current industrial age and the socialist way of life.
This is the absence of a developed civil society in Russia, that is, self-governing social units that are outside the state, as a special apparatus of government. The formation of such a society causes the authorities to strive to integrate the emerging social structures into state mechanisms, which completely disavows the original meaning of these social formations.
The historical heritage of Russia also gave rise to a certain type of mass attitude towards foreign countries, associated with the constant confrontation between Russia and its environment, the struggle for survival, the spread of Russian possessions across the territory of Eurasia, the desire of the country's leaders to join the Russian state (to a lesser extent - society) to the forms and norms of advanced civilizations.
The Russian state tradition is multinational in nature, reflecting the centuries-old contacts of ethnic Russians with neighboring Slavic and other peoples, with several world civilizations. The multinational character of Russian statehood contains both the habit of interacting and of conflict. The state practice of governing the country constantly deals with the national factor, requires that it be carefully taken into account, that policies and decisions be developed taking it into account; see constantly an alternative to destabilization in conditions fraught with deterioration of the general socio-economic situation in the country; take into account in decision-making, in management practice the factors of differences in cultural heritage, in the religious denominations of the population, in civilizational criteria.
2 . What is also beyond doubt is the consideration of the realities of life at the current stage of development. The analysis of this factor is necessary insofar as it allows, on the one hand, to build the development of solutions to the problem posed on a real foundation, on the other hand, it makes it possible to take into account the transient, characteristic only for the present moment, to focus on the really key problems of optimizing mechanisms and structures of public administration.
Considering the problem in this plane, from the point of view of the realities of today, I would like to note the following features of the current situation
As we know, in the recent past, Russia faced the important task of dismantling the previous system and replacing it with a new, more viable mechanism, but at this stage, some difficulties can be observed. Here, as it were, there is a double standard: On the one hand, most people wanted changes in the direction of increasing rights, and on the other hand, no one wanted to put the redistribution of state responsibilities on their shoulders. Here I would like to give a banal example. Standing up for freedom and equality, people did not see that having these, they would have to give up a significant share of social security, which is quite natural. It should be noted that our country has accumulated a significant resource of education and intellectual potential. For a number of indicators, such as literacy, enrollment in the exact sciences, this potential is higher than the world average. However, this factor also became a stimulus for the crisis, being perceived by educated circles, carriers of achievements scientific and technological progress as an anomaly, due to the fact that progress in the field of education, in the intellectual sphere did not lead to an appropriate assessment of the quality of work, was not supported by appropriate organizational and managerial conditions.
Optimization of the structures and mechanisms of federal and regional government should especially concern the regional level of government in the Russian Federation. The need to move away from the limiting concentration of power and resources around the center, the mechanisms for the transfer of resources and powers from top to bottom have been mastered only "in the first approximation." It is difficult to establish new managerial ties both vertically and horizontally. Instead of managing decentralization processes, there is a spontaneous struggle to seize power from the center in favor of the regions, subjects of the Federation.
The Russian Federation is currently experiencing the impact of the legacy of the USSR. In practice, the apparatus of state administration was inherited from the Soviet both in terms of personal (symptomatically, the retention of the term "cadres" that appeared in the 30s to describe the personnel of the state apparatus) and, to a large extent, administrative structures and their qualities. The mentality and habits of the former apparatus have been preserved, along with tendencies towards corruption, bureaucratization, and the desire to subjugate both citizens and the emerging institutions of civil society. The administrative apparatus operates in an environment of weak regulation, lack of control on the part of society; he is not protected by regulations that provide him with "immunity" against political changes in power structures. Public service as a social legal institution not created.
Now we see especially clearly, after the crisis of August 17, that the main task of state administration is the task of effective production management. This date, as it were, became the "Rubicon" of understanding.
Mass moods are marked by a significant amount of apathy, detachment from political institutions and elites. Connections of the ruling groups, political parties population is underdeveloped. Attempts were expressed to impose speculative schemes on society, to manipulate public opinion , which reinforces the nihilism of the public regarding the cynicism of power structures. The population's trust in politics, in political leaders, after the experience of the last year, will have to be earned over a long period of time. At the same time, the expectations among the masses are undeniable, built around the possibility of the emergence of a charismatic leader capable of solving the problems of society at once.
Breaking the social structure = breaking the goal-setting of this society. A primordially Russian question arises: "What to do?"
When the socialist-communist landmarks are lost, any significant consensus in public opinion as to what should be put forward as their replacement, no. The same goes for life values individual. The widespread fascination with commerce, business, or rather, just easy money can hardly claim in the moral aspect for the universality of goals in Russian society. In addition, the slow and difficult transition to the market devalues its values, along with the ideals of democracy. And more and more often one hears talk about a "strong hand".
This is not the whole list of those ailments that struck our society, or rather, permanently present in our lives for the second decade.
3 . Accounting for the solution of problems of public administration in the context of the global aspect. World experience gives not only and not so much knowledge possible solutions specific management tasks. The global context makes it possible to build the proposed solutions in such a way as to “guess” the trends that are making their way around the world, preserve the Russian identity and use really best options solving problems of public administration.
Historically and geopolitically, Russia is a decisive factor in the processes on the Eurasian continent. Its influence on the peoples inhabiting this area is great and inevitable. In Russian society, the question of the applicability of world-famous models of development and organization to Russia is rather sharply debated. Accusations of blind copying of a particular model are very common and quite justified. It is methodologically incorrect to consider it possible to apply any specific macro model of a state or socio-economic structure to a country other than the one on the basis of which the model under consideration was formed: each of them bears a unique imprint of the country that gave birth to it. It is obvious that and Russian model future device will be specific and original. At the same time, it is methodologically valuable to use foreign experience to find a way out of crisis situation, solving the problems facing the country.
In this regard, we again return to the question posed at the beginning of the work - "What are we moving towards?". The answer to this question makes it possible to concentrate efforts on the path of reformation. In line with this, the concept of public administration in Russia should be based on solving the strategically key task of the development of society - on the rational use of the intellectual, technological, and economic potential created in the country to enter the world high-tech market, gaining competitive positions there, sales markets. Such a strategy involves bringing under the modern intellectual and technological potential of the country the corresponding information base, new technologies, without which lagging behind and losing to competitors are inevitable. In turn, it is strategically important to maintain those positions on which the intellectual and technological potential of the changing Russia is built: infrastructure, traditional institutions, the potential of education, science, and technology. Here, anticipatory state thinking, assistance and managerial decisions in the sense of a protectionist policy are needed.
Conclusions to the first chapter
1. Public administration has its own pronounced
new specifics.
2. Public administration is social administration
nie.
3. Effective public administration system
should have clear goals, functions and principles.
4. The inefficiency of public administration has
its deep historical context.
5. Statemanagement should be in
correlative connection with the process and phenomena on which
it directs its goal-setting, organizing and
regulatory influences.
Chapter 2 " Mechanisms for improving the efficiency of public administration.”
2.1 Socio-political aspect of efficiency .
The effectiveness of public administration, as already noted, is not a purely technological problem, but a problem with historical overtones. That is, inefficient public administration is a consequence of the social structure, which is not able to include the majority of people in active social mechanisms.
It is important to understand the essence of the social system, because this means understanding the content, alignment and correlation of social forces in the country, the correlation of their interests, the essence of social contradictions and the tasks arising from this understanding that face society as a whole (for its survival and sustainable, stable development) and in front of public political forces capable of solving these problems. In our political science literature, the two dominant ways of determining the content of the social system are most common, the sources of which, according to the general opinion, are Marx, on the one hand, and Tocqueville, on the other. The first way: to see the content, the essence, the root system of the social system - in the economy, in property relations. In this case, the main "ideal types" of the modern system are: a private property society - "capitalism" and a public property society - "socialism" (with possible variations between these two main poles). Differences in the forms of political power, features of political regimes in this system of theoretical coordinates are of little significance. The official social science of the country of "real socialism" stood on this point of view. And another way of defining it: to see the basis, the essence of the social system - in politics, in the political system, in the regime of power. To proceed from the "primacy of politics" - as Raymond Aron calls. And here - their two "ideal types": "democracy" and "totalitarianism". In this system of theoretical coordinates, property relations are secondary and insignificant for understanding the essence of the social system. (9 p. 7)
The real content, the real face of the social system is determined by the combination of these two factors (economics and politics, the type of property and the type of power). Moreover, we are talking about factors that are not in a state of unilateral determination in relation to each other. They (and their specific correlation) are determined by other, deeper circumstances (their interaction is, of course, based on a certain “third common” - something that, perhaps, can be designated as “culture”. These factors, interacting with each other with each other (in different eras in different ways) and determine, first of all, the specific face of the social system, the nature of social communities and types of interaction.(20 p. country, and then we will see the essence, the specifics of what hinders the improvement of the efficiency of public administration:
1. In the 1920s, the social system took shape, was adjusted, and some or other variants of it were tested: war communism, the NEP, state capitalism (in that peculiar interpretation of it - when the state is “proletarian”, and private property, elements of the market and capitalism are “allowed” in the economy) , mixed multi-structural economic system, etc. By the end of the 1920s, a historic choice had been made. 2. 1930s - 1953 - It was a system, from the point of view of economic, state-nomenklatura property, and from the point of view of political - a system of totalitarianism.
3. 1953 - 1985 - Economic shifts within the nomenclature market, since not only the occupied place is equated to the number of services, but there is an exchange of privileges and benefits. The economic change also entailed a political change: totalitarianism softened, turned into "authoritarianism" (with some isolation of the named "market" relations from ideology and politics).
4. The middle of the 80s - two "reformist" tendencies developed, which then did not yet separate from each other and together supported the Gorbachev leadership. This is the course of "nomenklatura reformism" and the movement of popular, democratic reformism. Outwardly, in general terms, their requirements coincided: change economic relations, forms of ownership, defined as denationalization of property, privatization, market; and changing political attitudes from totalitarianism (and authoritarianism) to democracy.
5. Late 80s - early 90s. Here lies a significant, conceptual miscalculation that stimulated the structure of society, when the majority of the population turned into social outsiders. Reforms were necessary, the declared tasks did not coincide with reality. E. Gaidar in his book "The State and Evolution" described his reforms as follows: "the transition from the bureaucratic to the open market", "from the hidden, but
menklatura to open, democratic privatization", "from state-monopoly capitalism to open capitalism". And as a result, we moved from "nomenklatura" to "semi-democratic capitalism". the specifics of our country. It turned out that privatization was not only not a form of overcoming "nomenklatura capitalism", but, on the contrary, a way of consolidating and strengthening it. It fixed not only de facto (as it was before), but also de -jure vast arrays of property in the hands of the nomenklatura and carried out the alienation of the vast majority of the population from property.
Thus, we can conclude that one of the significant reasons for the inefficiency of public administration is the lack of involvement of a large mass of people in economic, political, social activities, which is projected onto the entire social reality.
2.2 Efficiency as a way of anti-crisis existence and development.
In studies conducted by the North Caucasian Academy of Public Administration, the effectiveness of public administration is seen as the result of a complex interaction of various factors, among which the dominant position is occupied by human, social and environmental factors. From this point of view, the effectiveness of power should be assessed by the degree of protection of the balanced interests of society and the state: "The work of the state apparatus can be recognized as really effective only if it successfully solves the problem of optimal protection of the interests of the state and optimal protection of the interests of the population, social groups and every person. In this dual task lies the most important side of the concept of the effectiveness of the state apparatus" (27 p. 84)
Thus, we can try to identify the following criteria for the effectiveness of social management:
The degree of compliance of the directions, content and results of the activities of management structures and employees with those of its parameters, which are determined by the functions and status of a managerial worker.
The legitimacy of decisions and actions of the relevant management structures and employees, because compliance with legal and other established norms is an elementary prerequisite for the effectiveness of management.
The reality of the influence of management activities on the state and development of management objects, since any management decisions and actions lose all meaning if they are not directed at management objects and, ultimately, do not provide real functioning and development;
The depth of consideration and expression in management decisions and actions of the fundamental and complex needs, interests and goals of people
The nature and extent of relationships with labor collectives, a wide range of people, the democracy of activity, which, at any cost, always increases its validity and effectiveness;
The truthfulness and expediency of management information issued by management structures and employees.
Thus, one can draw a sad, but very honest and adequate conclusion to the situation - public administration in modern Russia is a model of low efficiency. In this regard, it is appropriate to recall the assessment that was given to the situation in Russia in the conclusion of the Constitutional Judge of the Russian Federation "On the state of constitutional legality in the Russian Federation", sent on March 5, 1993 to the Supreme Council of the Russian Federation: "Russia is experiencing one of the most difficult periods in its history.The economy is in decline.The economic and social rights citizens, interethnic conflicts do not weaken. Crime is on the rise. Radical movements pursuing anti-constitutional goals are gaining strength. The state apparatus is plagued by corruption. Legal nihilism has become widespread even among the highest officials of the Russian Federation and its subjects. People's dissatisfaction with the inaction of the authorities, the confrontation between them threatens to turn into a social explosion. The constitutional order of the Russian state is under threat. (28) The search for and implementation of the most important ways to improve the efficiency of public administration is a necessary objective prerequisite for preventing and overcoming a crisis of power and administration, which is vital not only for further development, but even for the preservation of Russian statehood.
In this regard, it seems necessary to identify those features that most strongly affect the low efficiency of public administration and that can aggravate the crisis situation that has developed in Russia.
1. In September 1997, speaking at the first meeting of the autumn session of the Federation Council, President of the Russian Federation B.N. Yeltsin made a very important statement about the need for a "new economic order", in accordance with which the mechanism of the market and state regulation would work smoothly. Unfortunately, however, it took 6 years to be convinced of the ineffectiveness of destructive measures and to make it obvious that stemming from the history of our country and the developed capitalist countries conclusion: "... it is necessary to increase the role of the state in the economy... We are resolutely moving from a policy of non-intervention to a policy of proactive regulation of economic processes, control over vital sectors and the efficiency of spending budget funds. This is... the return of the state to a well-thought-out economic strategy. Now it is precisely this that is beginning to determine the main directions of economic activity. "(29) Although the declared intentions in 1997 did not lead to real actions, nevertheless, time showed the correctness of this judgment and the need for actions in this direction, but alas, in our reality, understanding, as a rule, comes after.
2. Frequent confrontation between representative and executive authorities at all levels. Quite often, disagreements between the executive and legislative bodies have to be resolved in the Constitutional Court of the Russian Federation and in local judicial authorities. Here it should be noted the numerous use of the right of veto by the president, which indicates a different understanding of the way for the effective development of public administration, and, consequently, the development of the state as a whole.
3. Increasingly, the question of the relationship between the center and the subjects of the federation, their revision is emerging. The adoption of the Constitution of the Russian Federation in 1993 and the signing of agreements between the Russian Federation and the constituent entities of the Federation largely eased internal political tension in the sphere of federalism. However, their signing took place without the consent of other subjects of the Federation, without taking into account their interests, with insufficient development of the principles of delimitation of powers and subjects of
Denia. There is still a lot to be done in Russia to create a federal structure that will ensure the real strength and inviolability of the unity and territorial integrity of the country, the effectiveness of the activities of federal and regional authorities and administration.
4. These are the eternal problems of Russia, which the President of the Russian Federation B.N. Yeltsin noted so succinctly and very clearly in his speech at the Federal Assembly. "Criminality today brazenly creeps into politics and dictates its own laws there. Dubious individuals strive for power. They are assisted in this by dishonest officials.”(29) The problem of corrupt officials is a global problem that has particularly affected Russia and has acquired exaggerated proportions in Russia.
5. This problem was again identified, or rather, its urgency was reproduced back in 1995 by the highest official of the Russian Federation in his message to the Federal Assembly:
"Power in Russia will be effective only when it becomes open, understandable and predictable, when it learns to respond to people's pain, when modern technology, culture and democratic traditions of power will not leave gaps for mediocrity and dishonesty. And, finally, when we manage to mobilize the gigantic potential of the Russian people and natural wealth, the potential of the freedom we have won. , new tasks that the authorities must solve, and in many respects preserved old approaches, structures, methods of management"
Having outlined these problems, I would like to determine the ways out that make it possible to make a breakthrough in solving the problem of increasing the efficiency of public administration. The solution of these problems will allow to move a huge lump of problems:
Reconsider the principles of financing the state apparatus. Without increasing the current budget expenditures, ensure the growth of the efficiency of the work of managers and, on this basis, limit the growth in the size of the state apparatus.
Develop uniform principles for the federal and regional levels promotion civil servants, including mechanisms for the effective use of the personnel reserve and rotation of personnel in a unified system of civil service
To create a regulatory framework and a modern infrastructure for the functioning of state power and administration, local government and self-government, training, advanced training and evaluation of the work of state and municipal employees.
Establish clear grounds, as well as procedures for bringing to disciplinary and liability civil servants; introduce the institution of disciplinary proceedings.
2.3 Subjective increase factor public administration efficiency.
The designation of these problems brings us to the subjective factor of public administration, that is, to people, to personnel who must ensure the conduction of those decisions that mature in the depths of power structures.
Reforming the civil service of the Russian Federation objectively required providing the authorities with reliable, proactive, professionally competent specialists capable of effectively performing the functions assigned to them.
Necessary condition The solution to this problem is the legal regulation of the activities of the civil service and the functioning of its personnel, determining the procedure for regulating the processes of selection, relocation, evaluation of personnel ...
Civil service personnel management is an important core part of public administration. However, the Constitution of the Russian Federation, adopted in 1993, does not contain the term “public administration”, which led to the emergence of a point of view about the illegality of recognizing public administration as a state-legal category.
Such judgments cannot be considered objective. The spirit and letter of such articles of the Constitution presuppose the active influence of the state on economic, political, socio-cultural processes. This is especially true for public authorities, their personnel, which has received legal expression in the adoption federal law“On the Fundamentals of the Civil Service of the Russian Federation.” (4 pp. 14-15) The law makes it possible to put work with the personnel of public authorities on a solid legislative basis and a scientific foundation.
Among the twelve (12) principles of public service contained in Article 5 of the Federal Law, seven (7) are related to personnel management issues:
· equal access of citizens to public service in accordance with their abilities and professional training;
the unity of the basic requirements for public service.
professionalism and competence of civil servants;
publicity in the implementation of public service;
· Responsibility of civil servants for prepared and adopted decisions, failure to perform or improper performance of their official duties;
nonpartisan state service.
· stability of civil servants in state bodies.
On the one hand, the law clearly defined the requirements for an official, on the other hand, it defined the rights and guarantees of an employee in relations with the state. Public service personnel management is a complex and poorly studied phenomenon. Its specificity and priority directions have hardly been revealed in the context of the democratization of society and the transition to a market economy. Personnel management is an internal quality of the system (public service), the main elements of which are the subject - the control element (the head of the public authority and the personnel service of this authority) and the object - the controlled element (the personnel of the public authority), constantly interacting on the basis of self-organization. The problem is not as simple and obvious as it might seem at first glance.
The effectiveness of personnel management can only be ensured on the basis of a clear definition of the subjects and objects of this impact, the delimitation of the functions of management and the personnel service in solving personnel issues, all the more so the role of the latter is exaggerated.
It is the leadership of the state authority that decides the main personnel values, approves the composition of the certification and competitive commissions, takes management decisions based on their conclusions, and dismisses employees from their positions.
In the preparation and regulatory execution of these decisions, the role of personnel services public authorities, but their functions in personnel management are reduced to the problems of improving the quality of personnel, their professional development, training, retraining, and consulting.
Consequently, the management of civil service personnel acts as a purposeful, ordered impact, implemented in relations between the subject and the object, and carried out directly by the subject of management.
The functions of personnel management need a serious scientific justification. Control functions are an important element of the conceptual apparatus, control theory. However, different sources give different interpretations. But most researchers adhere to the point of view that management functions are associated with activities and are a reflection of the properties of a functioning object (subject of management), a specific form of manifestation in essence.
In relation to the sphere of personnel management of the public service, it can be considered that functions are the main directions of the content of the management activities of a public authority, its personnel service. It is legitimate to single out universal functions, suitable for any management process, and specific specific functions of the personnel service, expressing the content of its managerial impact.
Universal functions include: planning, organization, coordination, regulation, control. They reflect the essence of the management process.
The specific functions of personnel services and personnel management services include: administrative, forecasting, social, improving the quality of performance, motivation, information and analytical.
Function specifics are a working tool for the implementation of general functions. It is fundamentally important to emphasize that specific functions are mobile.
Outlining the socio-political conditions, place and role of the state in society, they expand or contract depending on the social needs and capabilities of the state.
Public service personnel management is a multifaceted phenomenon. It simultaneously acts as a system of organization, as a process, as a structure.
Problems of civil service reform in the Russian Federation
An analysis of the current legislation and current trends in the development of the civil service in the Russian Federation allows us to draw the main conclusions regarding the directions of the reform of the civil service.
1 . The modern state is characterized by the presence of a variety of tasks and functions on the professional and precise implementation of which the existence of the entire socio-political system depends. Therefore, it must include in its body a professional service corps, whose organizations and activities are regulated by legislative acts. It is obvious that in this case we are talking about such a mandatory state-legal institution, which is called the “public service”, in many countries it is called the “public service” (Germany, Spain, Belgium), and in some - “civil service”. In Russia, the term “public service” is used.
In tsarist Russia, along with the concept of “public service”, the term “public service” was used (the latter could be considered the equivalent of “public service”). The term "public service" is also common in England and Ireland.
The former Soviet civil service, in its criteria and essential features, contradicted the concept of a rational bureaucracy. In many ways, it was based on abstract, therefore secondary and not important for practice principles. The change in socialism and the state-legal situation in the country necessitated the reform of the civil service.
From a legal point of view, the modern civil service of Russia is a legal matter that is in constant motion: it changes, is supplemented, new tools are being searched for in resolving existing problems, new regulations are being developed that regulate public service relations. In this area, major changes must take place in the future. Modern legislation allows us to assert that Russia is on the way to reviving the institution of professional bureaucracy. This institution, based on professionalism,
abilities, political neutrality of employees and the quality performance of their official duties, ensures stable public administration in many countries and is the most important factor in the preservation and positive development of statehood.
2. The reform of the civil service in the Russian Federation began with the adoption of the 1990-94 years. new laws and other regulations. Scientists constantly paid attention to the need for reforming the civil service. However, these measures were carried out until recently without a sufficiently developed plan for reforming the civil service, without clear ideas about the stages and essence of innovations in the civil service. And only at the end of 1993, simultaneously with the approval of the Decree of the President of the Russian Federation of December 22, 1993, “Regulations on the Federal Civil Service” (44), were the theses of the concept of reforming the civil service in Russia published. Critical notes about these theses have already appeared in the scientific literature. In 1992, in a special edition of the Russian Personnel of Russia, the theses of the concept of the development of the civil service were also published.
The authors of the program (theses) of the civil service reform identified several stages of the reform. However, it is difficult to see in these theses the specific goal of the legal reform and the model of the future civil service: to reform the old civil service (for what purposes and on what principles?) or to create a new one (meeting what requirements?). What are the goals of legal regulation of relations in the public service? Obviously, from a legal point of view, the goal of the reform and the legal model of the civil service in Russia have not yet been established.
The socio-political goal of the reform, showing the practical desired result, is extremely clear: “The main meaning of the civil service reform is, on the one hand, to form a quantitatively small corps of professional employees, and on the other hand, to maintain order and management without violating the rights and freedoms citizens."
However, the question remains unanswered: what is the legal framework of the future public service? After all, it is difficult to agree with such a goal of the reform, dominating in the public consciousness, as “the creation of a small corps of civil servants who are able to carry out state functions in a quality manner”.
It seems that the goal of the reform is to create an effective civil service and professional bureaucracy, the organization and activities of which are regulated by legislative acts of the traditional for this sphere legal content.
For example, in Poland, legislators have chosen the path of separating out of all civil servants such a category as officials. Other laws are expected to regulate legal status"ordinary" employees and technical personnel employed in public authorities. Depending on the choice of the civil service model, it is necessary to form a system of legislation on the civil service, which should establish signs (mandatory features) of the concept of a civil servant, types of employees, classifications of public positions and the criterion for their replacement, issues of service and promotion, privileges of officials and much more. other.
The classification of civil servants that existed in the USSR and is currently in force (managers, specialists and technical performers) is fundamentally wrong, since it is inefficient and gives rise to many problems in practice. After all, in addition to these types of employees, it was necessary to justify the establishment in the legislation of such categories of employees as “officials”, “authorities”, “ responsible employees". In practice, however, this often created insurmountable difficulties. The imperfection of the current legislation on civil service is also the cause of many problems in lawmaking.
For example, the draft law of the Russian Federation on the fight against corruption (October 1991) is vague and unclear in almost every article, since the basic concepts in the legislation on public service are not properly defined.
The legal regulation of public service processes currently lags behind the level of development of trends and patterns in reforming the public administration system, the state apparatus, and municipal bodies. After all, the civil service as a legal institution or branch of law (service law) must ensure stable management. It can play a certain role in stabilizing socio-political life, resolving political conflicts, balancing the actions of various political forces. Obviously, the solution of certain political and economic problems largely depends on the creation and improvement of the legal mechanism for regulating service relations.
3. The civil service is a system of legal relations, which are regulated not only by administrative and legal norms, but also by the norms of other branches of law: state, municipal, labor...
In this regard, obviously, the tendency to separate similar legal relations into one legal branch will also increase. The legislative process in the field of public service in Russia will lead to the fact that in the near future a new branch of law will appear - service law - with its own subject of legal regulation, that is, as a system of legal norms that regulate relations in the field of public service. The result of the reform of the civil service will obviously be the emergence of the outdated and inefficient civil service of the modern public service.
Service law should become a regulator of state service relations, not only in the sphere of activity of state bodies, within the state administration, but also in the field of functioning of local governments. Of course, there is still a lot of room in the public service system for relations regulated by private law. After all, certain state functions will be carried out by employees who have a different legal status from professional officials. legal status.
Officials are employees with a special set of rights and duties. In many countries, they are subjects of the exercise of the highest political powers of state power, perform especially important state functions, have special legal relations with the state (loyalty and trust) and are appointed to positions by issuing an administrative act.
4. Installing in legislative order classical state-legal service relationship, it is necessary to create legislation regulating the legal status of others
civil servants who are in labor (private-legal) relations with state bodies. (34 p.35) These persons are also engaged in certain work in the public service, but they do not have to perform specific public tasks and functions that are within the competence of only the highest category of employees. Public-service relations of “ordinary” civil servants will arise on the basis of another way of filling a position in public administration - by concluding an employment contract, the content of which is subject to regulation by private law (for example, labor law). The beginning of the reform of the entire civil service system can be put by the reform of administrative law, which regulates relations of a public law nature. In the future, development and constitutional
onno-legal norms about public service. In 1991, one of the drafts of the Russian Constitution contained a chapter on public service. It should be noted that all drafts of the Constitution of Russia in 1991-93. included in the text an article on equal access of citizens to public positions (for entering the public service). The current level of constitutional and legal regulation of public service issues is very incomplete and suffers from uncertainty.
Based on the political consensus on the need for a unified federal civil service (and, consequently, a unified federal employee of legislation and service law), federal government bodies should do everything possible to exercise the powers established in the Constitution of the Russian Federation in order to create the so-called “framework legislation” on public service. All constituent entities of the Russian Federation, based on legislative acts developed and adopted at the federal level, will develop and adopt their own regulations governing public service issues.
The concept of reforming the civil service of the Russian Federation defines the following stages of reform:
1. Constituting the institution of the federal civil service.
2. Establishing the status of a federal government employee.
3. Systematization and specification of the process of passing the federal state service.
4. Shaping unified system public service.
A prominent specialist in the field of personnel management, Professor K.S. Belsky defines three stages of reforming the civil service:
1. The initial stage covering 1993-94. should have been characterized, in his opinion, by a number of important norms of legal acts on public service approved by decrees of the President of the Russian Federation:
Regulations on the federal civil service;
· model provisions on the civil service of the constituent entities of the Russian Federation and local governments (many of which, unfortunately, were not adopted during this period).
2. The main stage covers 1993-97. During this time, the reform of the civil service is carried out not only at the federal level, but also at other management levels: in the administrative apparatus of the constituent entities of the Russian Federation and in local governments
July 5, 1995 “Law on the foundations of the civil service of the Russian Federation” Rossiyskaya Gazeta 1995 August 3. (41)
3. The final stage covers all subsequent time until the end of the 90s. The main event at this stage is the coordination of all normative-level material on the public service, the consolidation of all legislative acts into one and the creation of a Civil Service Code, norms that could regulate the entire range of public service relations in the Russian Federation.
5. Reforming the civil service to the planned limits is an ongoing process, connected (and in many respects dependent on other circumstances with other reforms with many additions and changes taking place within the state itself and legislation). A serious state approach to the problems of public service requires taking into account many managerial, political, economic, and legal factors. Changes taking place in society, economy and politics will certainly influence the formation of new system public service. Public administration reform and civil service reform are interconnected. It is necessary to take into account the pre-revolutionary Soviet and international experience. Reforming the civil service in other former socialist states confirms that this process is very slow.
It can be said that a global pattern has already been formed, which is expressed in the fact that the place of the state and its position on the world stage depends on two mutually determining factors - the quality of training of specialists and the conditions created for the disclosure and use of their potentialities and abilities. The strategic task of the state personnel policy is the formation of a highly professional, stable and optimally balanced management apparatus. His vocation is to effectively solve problems and perform the functions of federal bodies.
2.4 Informational aspect of increasing the efficiency of public administration.
The world social science thought of the second half of the twentieth century considers everything that happens in the world within the framework of the paradigm: agrarian society - industrial society - information society (post-industrial). We can say that we now live in an information society, where the value of information is difficult to overestimate, or rather, it is one of the basic foundations that cement society. "Who owns information, he owns the world" - this is an axiom. It acquires particular importance in public administration, ensuring its rationality and efficiency. Information support is the basis on which the administrative activity of the state apparatus is built. Information here should be considered as a certain set of various messages, information, data about relevant objects, phenomena, processes, relationships, etc. This information, being collected, systematized and transformed into a usable form, plays an exceptional role in management. The information circulating in government bodies is heterogeneous and varied. It can refer to the foreign policy, economic, socio-political and environmental situation. Information of these types has an independent value also for the relevant regional administrative structures, when they act as decision-making bodies within their
competencies. In addition, it serves as the basis for normative documents. Information in government bodies can be classified according to various grounds and features. In the literature, attempts have already been made to classify social and managerial information when studying the problems of informatization and technologization of social space (G. Atamanchuk, M. Rassolov, Yu. Baturin, etc.). Since management information is a certain reflection of social reality (as well as natural, to the extent that it is involved in the orbit of social human
activity), it is recognized that it should be classified primarily depending on the degree of correlation with this reality, the real processes taking place in it
Information can be both official and unofficial, general and sectoral, horizontal and vertical. When separating information within the management body, information for the head is put in the first place, and information for officials is in the second place.
Let's try to define the main goal of public administration. This consists in obtaining secondary, processed information on the basis of the collected initial data, which serves as the basis for making managerial decisions. Achieving this goal consists of solving a number of particular tasks, such as collecting primary information, storing it, distributing it between the structural divisions of the management body and their employees, preparing for processing, processing itself, providing the management body in a processed form, providing direct and feedback links in its circulation.
Speaking about the classification of information in government bodies, it is advisable to use the classification given by a highly qualified specialist in the field of management information T. Zakupen, an expert of the Department for CIS Affairs of the Office of the Government of the Russian Federation. "(39) It seems that the information circulating in government bodies , it is necessary to classify first at the level of structural units.Then it is necessary to identify and consider specific types of social information, data, messages and facts that characterize the information passing through the governing bodies.Further, based on the so-called specific, private classifications, we can raise the question of classification information at the level of all management structures.
Information in the structural divisions of the governing body can be classified according to the following main features:
The functional purpose and nature of the activities of structural units;
The relation of the message to the subject managing the structural subdivision;
The type of communication between the structural unit and the external environment (direct and feedback communication is carried out on the exchange of information by establishing permanent contacts, holding press conferences, briefings, information meetings.)
Relation to the target function of the structural unit.
logical content. The information of a structural unit can be divided into three independent sub-sets - about the subjects of the governing body, the objects of its managerial influence (regions, enterprises and organizations, citizens) and their inherent properties and relationships.
Physical Form Presentation
Transformation procedures (probabilistic, sociological, modeling, analytical, computational, etc.).
Degrees of transformation (main, or newly incoming; processed into analytical and forecast notes, TV-radio-photo materials; grouped into weekly information and bulletins)
This classification is by no means indisputable, but it seems to be the most complete. Should focus on something else important point associated with the classification of information is its necessity. In general, the classification allows obtaining very valuable information about the information contained in the structural divisions of the state apparatus, contributes to the solution of many fundamental issues of designing a public administration information system and analyzing the corresponding support for structural divisions. (52) Without comprehensive data on the most important properties and characteristics of information, it is impossible to optimize it , provide the specified accuracy, reliability and efficiency of use.
The requirement for information as a means of improving the efficiency of public administration:
1. Information is strategic resource. It should be complete, up-to-date, reliable, cover the whole range of issues of interest to the state structure, be collected regularly, with a certain frequency and in the required volumes.
2. Information must meet the combination of goals that the management structure sets, with the means by which it intends to achieve them. Its quality and sufficiency allow the state structure to have an effective plan in front of it, to determine the real and precise goals of managerial influences.
3. Systematization, processing, accumulation and examination. The organization of this work, as well as the analysis of incoming information, its volume, quality and relevance, can be entrusted to the appropriate body, for example, an information and analytical department or an analytical group. Such a unit, along with determining the effectiveness of incoming information, should predict its impact on the activities of the governing body. Speaking about the functional responsibilities of this service, the following wishes can be distinguished:
Tracking Information
Summarizing information on a specific issue
Systematization of assessments of a specific problem
Formulation of conclusions
As a priority in the organization of this service, there should be a legal regulation of the issue relating to responsibility for Information Support in government bodies. Otherwise, it is likely that the information sent to the management structure will be distorted. Since the quality of decisions made depends on the reliability, timeliness and completeness of information, these acts should also provide for specific strict responsibility for the information provided. The introduction of such measures will significantly improve the quality of information support and the control action of public authorities.
4. In addition to the official information system, an informal system should also be used. The informal system, unlike the formal one, is not bound by structural constraints and the sequence of individual operations.
5. It is an axiom that information has only the potential to become useful to the user. The real value of information is revealed after its use, often after several years. Consequently, the principle that Japanese managers adhere to is the only correct one - not to divide the primary information into necessary and unnecessary, but to collect everything. In public administration, this conclusion acquires a particularly deep meaning.
6. Among the technological innovations that promise to increase the productivity of both ordinary employees and managers, I would like to note the following innovation - the expansion of database management capabilities. A database management system is a software package designed to provide a systematic and flexible approach to organizing and accessing data. There is a technology that allows you to accumulate data in one central database and provide access for specialist employees to information related to their competence.
Unfortunately, along with the recipe for efficiency gains information flows, there are problematic moments (18 p. 120) associated with information:
Some types of information are difficult to quantify (for example, motivation)
The information system is able to take into account only formal information connections (at the same time, informal contacts are of great importance)
Despite the increase in the flexibility of information systems through decentralization, their scope is still limited to certain internal and external conditions.
There is no doubt that information systems, information technologies can lead to an increase in the productivity of public administration. However, technology is not success itself; competent, energetic, responsible leadership is needed. It is important to evaluate the intended use cases information technology from the point of view of the organizational system as a whole. (2 p. 810) In turn, the responsibility and efficiency of management are in close connection and interdependence. Responsibility is a subjective component of the effectiveness of management activities. Fixing this interdependence, we can give the following definition of it: responsibility is the focus and ability of the subject to the effective (effective) performance of duties and the achievement of the goals of his activity in accordance with the social values he shares.
2.5 Regional aspect of increasing the efficiency of public administration.
P.A. Stolypin, speaking on June 8, 1906 in the State Duma, said: “Power cannot be considered an end. Power is a means for protecting life, peace and order. forget that the inaction of the authorities leads to anarchy, that the government is not an apparatus of impotence and searching" (56)
Before determining the mechanisms for improving the efficiency of public administration, one should once again determine the criteria for efficiency - this is the ability of state structures at various levels to successfully solve economic, social, financial, organizational and other tasks, achieve goals, coordinate and coordinate the economic and political interests of various population groups while acting in a strictly defined legal space.
For Russia, as for a federal state, there is a completely justified development model, which is as follows: in a transitional period, in a reformed society, a strong central government with reliable levers of control is especially needed. Nevertheless, it is impossible not to be aware that the vital activity of this stage should be limited and that it should be replaced by balanced mechanisms in the model: A powerful federal "center" with its powers and financial resources should interact with strong regions capable of effectively solve independently or jointly with the "center" the main issues related to the life and activities of people. Adhering to this point of view, the question arises about the distribution of powers within this model. Here we can single out 3 levels of relations between the "center" and the regions (8 p. 131):
Economic and social problems are under the jurisdiction of the regions.
A range of problems is identified for a joint solution.
Actually, issues of national importance (defense, foreign policy, etc.) are under the jurisdiction of the federal "center".
In the context of world management theory, there is an increasing trend towards delegation of authority under general control, which is a very healthy grain and is a way to unload the "center" from regional problems, thereby concentrating on problems of strategic importance.
You can delegate powers according to the following scheme, that is, everything related to working with the region should be planned as follows:
Priority, that is, all projects should be divided into three categories: a.. Most important. b. Urgent. in. Minor.
Structure of the decision of questions.
Intermediate "letochki" (correction of positions).
The exact date of the decision of the issues.
Personal responsibility in the project.
"The slave is negligent. Do not force the master to his cause with a strict command - he himself will not take it willingly" - this ancient quote clearly reflects human nature and the nature of managerial influence. Acting in accordance with this scheme, it can be assumed that the relationship between the "center" and the regions will move to a qualitatively new level, when responsibility, scope for the implementation of tasks and terms of reference for tasks on each side are determined. Then mutual accusations should move into the legal field, which will regulate these relationships and disputes that arise in their course.
By correctly delegating authority, you can create an impeccable mechanism that will amaze with its effectiveness.
Nevertheless, one cannot speak about the universality of this scheme, because there are differences between the regions and it is necessary to develop such schemes with certain nuances in proportion to the number of regions. But the main idea in this context is that one of the ways to improve the efficiency of state power as a whole can be the strengthening of its regional component.
In such a difficult situation, there seems to be only one way out of this situation - strengthening the economic and financial foundation of the regions. This is an effective way to improve the efficiency of the regional government, which gets the opportunity to form a normal budget and extra-budgetary funds, and thereby solve the issues facing it, without begging for money from the Federal "center". Such approaches can be implemented in practice in relation to depressed regions. It is important for them to get help at the start, to provide capital on a targeted basis to launch the economy and revive production. But this requires well-designed programs with clearly defined goals and objectives. To this end, it may even be necessary to structurally regroup financial resources from the federal financial fund for supporting the regions. It is reasonable to divide them into two
constituents: the current support fund (subsidies through the transfer system) and the development fund. Today, subsidies that go to meet the immediate needs of the regions dominate. But they do not fundamentally solve the problem. In addition, there are cases when these funds are used for other purposes. In any case, our press constantly reports that the money "did not reach" the regions, was "lost" somewhere, and numerous regulatory authorities are beginning to look for them.
It is necessary to provide the regions not with irrevocable subsidies, but to provide loans for specific projects. There are conditions for this. Regions have natural resources, many have a developed mining and processing industry, own property, have shares. This means that loans have something to provide materially. Such a procedure will increase the responsibility of the regions for a more rational and efficient use of financial resources, and will interest them in earning money on their own, rather than waiting for subsidies from the federal budget.
Another resource, perhaps the most effective, if implemented. Turn part of the income of the population into investments. After all, the population today every month buys currencies in the amount of several billion dollars. Approximately a quarter of all income is spent on these purposes. That is, money either does not work or is in the speculative sector of the economy.
Successful economic and social development regions - is a central aspect of improving the efficiency of public administration. It is on this basis that regional power structures will gain confidence, stability and the necessary dynamics. And these are the main components of the effectiveness of public administration.
Conclusions for the second chapter:
Mechanisms for improving the efficiency of public administration are:
1. moderate decentralization.
2. Improving the use of the information component of public administration
3. Improving the quality of public services and the mechanism for their distribution.
4. The need to include the masses in active life.
5. Civil service reform and development
human resources.
Conclusion .
The restructuring of public administration requires, first of all, the restoration of relations of trust, mutual understanding, sincerity and honesty between the state and citizens, between state bodies and all public structures. It is necessary to achieve a reasonable correspondence between state-legal regulation and the naturalness of life, its experience and traditions, sustainability and adaptability, multi-layeredness and self-governance. We are talking about the broad socialization of public administration, in the process and as a result of which it will converge, merge with society, become a socially relevant component of its free, democratic and effective organization and functioning. It seems that public administration cannot simply be outlived, discarded by the people, but must be transformed into it, become its integral part and take the place that is objectively determined by the current level of social development and its own organizing and regulating capabilities.
Based on the analysis of scientific literature, historical practice and trends in social progress (within the framework of socialism, capitalism, and mixed forms), several directions of movement towards this goal are visible.
1. A special role belongs, of course, to wide, open, full-blooded and active direct and feedback links between all components of the subject of public administration, their decisions and actions on the one hand, and various individual and mass manifestations of people's lives on the other.
2. The state can only be considered an adequate form of expressing the interests of civil society if it, through the system of its bodies, employees of the apparatus and participants in management processes, firstly, perceives the entire set of national, collective and personal, general and specific, long-term and short-term , historical and specific interests of the population of the country; secondly, it objectively, fairly and promptly assesses the relevance and priority of interests and represents them in its legal decrees and organizational actions, treats all subjects of interests equally; thirdly, it contributes with its resources, capabilities, the power of the practical realization of interests, and really ensures the satisfaction of people's needs.
3. When analyzing the relationship between the state and society, it should also be taken into account that the social-class and national structure of society is in dynamics, there are active migration processes in the country, the age and sex composition of the population and the demographic situation are changing, which means that the needs and interests of people, attitudes and motives for their behavior and actions. Thus, the balance of relations between the state and society cannot be stable, once given: it will be constantly violated and must be just as constantly restored. The proper level of sociality of public administration is unthinkable without the mechanisms of knowledge of the social environment, adaptation and self-improvement that are highly developed in its system.
4. High demands are put forward by the society before the public administration in terms of its level of democracy. Moreover, in the very understanding of democracy, two aspects emerge. The first defines democracy as the mass nature and effectiveness of the participation of the population in the development, adoption and implementation of state-administrative decisions. The second connects management with state power, which ensures and guarantees the practical implementation of state management decisions. Management without relying on power, without its introduction into management processes, is imaginary, illusory, and often creates the appearance of activity. Both aspects are interdependent and in a social movement are valuable when they act in unity.
The end of the 20th century actualizes the scientific validity of public administration. After all, today, with all the significance of the accumulated experience, only science has the ability and the necessary data to objectively determine the trends of social development. Experience usually refers to the past, art - intuitively, while scientific knowledge can predict with a sufficient degree of certainty and even program ways and means of movement into the future. Of course, only genuine science is suitable for this, and not its surrogate, science freed from the obligation to explain current policy or justify failed practice. Therefore, the scientific validity of public administration in the future will be determined by the interaction of two factors: the level of development of scientific knowledge (social, natural and technical) and the readiness, ability and ability of public administration to absorb and use it. True, in this interaction much depends on the state administration itself, which can stimulate and support it.
Another important public demand for public administration is becoming increasingly loud. Two centuries of the industrial type of production have shown the limitations and dangers of the production, or, as more often called, technocratic approach to the organization of social life and, of course, to public administration. It was under the influence of this approach that the ideas of the Renaissance and the Enlightenment, which nurtured our civilization, the ideas of a deeply humanistic nature were pushed aside. Man was usually seen in only two guises: as a producer and as a consumer, with the application to him of one - economic - criterion for evaluating development. In fact, since the time of Taylor, the science of production management has been developing in the system of such coordinates, many of the postulates of which were later taken and accepted by the theory of public administration. The situation that is taking shape on the verge of millennia requires a concrete change in the entire philosophy and methodology of public administration. The person should be put at the forefront, public administration is called upon to acquire a truly humanistic coloring. It is necessary to look for non-traditional forms of interconnections between people, people with nature, with their past and future. And this is possible with a broad humanization of public administration, with careful consideration of philosophical, sociological, psychological, legal, and pedagogical knowledge.
From the standpoint of precisely the interests of man, his self-preservation, the extension of the human race, the state administration will probably have to analyze and evaluate the existing and newly introduced technologies, tools and objects of labor, the raw materials and materials used, product quality, lifestyle, living conditions and much more.
And, of course, society wants to see public administration socially effective. Not "hurrying after" social processes and always lagging behind, not only focused on the economy, but owning an integrated approach and predictive vision. Management, in which a leading, heuristic principle based on knowledge of objective patterns, capable of retaining subjective factors, effective, active, effectively solving social problems and ensuring the progressive development of society will become widespread.
I would like to note that everything is important in society: production, distribution, exchange and consumption, the social sphere, science, literature and art, law and morality, architecture and communications, history and spiritual culture, health and physical development people and much more. But all this can then create a favorable and rational way of life, when it is brought together into an integral, dynamic, harmonious system and "works" for a person. Despite the fact that there are natural interrelations between all phenomena and processes, management gives proper consistency, development, productivity and economy of social life. For only and exclusively it has the unity of such abilities as goal-setting, organization and regulation.
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The concept and types of public administration efficiency
Public administration can be called a rather complex and multifaceted system, since it has a special composition and connections, and is also called upon to perform serious state functions and tasks. Since it is necessary for society to see progress in the impact of public administration on all modern metamorphoses taking place in the country, the question of the effectiveness of public administration is considered to be one of the most important issues.
Remark 1
The concept itself "efficiency" got its origin in Latin from the word "effects" which means creation and reality. In the course of how science developed, the content of this term changed, which subsequently led to an understanding of it as a performance associated with certain costs.
Definition 1
The effectiveness of public administration is a complex characteristic of the possible, as well as actually obtained results of the performance of certain functions by the public administration system, taking into account the degree of correspondence between the results that have been achieved and the set development goals and objectives.
The problem associated with the effectiveness of public administration appeared decades ago, but to this day discussions around it do not stop and in modern times many questions still remain open.
Speaking about individual control objects, a single concept of efficiency is not used, but in each specific case a comprehensive assessment of the results obtained is carried out. The most common objects of performance evaluation are the social and economic spheres of public administration.
There are certain types of efficiency of public administration, which are based on the variety of tasks of public administration bodies in the country:
- economic efficiency lies in the fact that the state pursues an effective economic policy, monitors the effective flow of various phenomena and processes, such as economic growth, privatization, investment growth, etc.;
- social efficiency consists in the possibility of determining the effective activity of public administration in social sphere, in solving social problems of the public, while pursuing the main task - to improve the quality and standard of living of the population;
- environmental efficiency allows us to talk about how efficient the use of the environment and the implementation of environmental measures are in the country;
- foreign economic efficiency is associated with mutually beneficial economic cooperation with other states, with the international division of labor, etc.
Criteria for the effectiveness of public administration
The most significant problem in this area is the lack of a unified system of criteria that would help assess the effectiveness of public administration. This problem is typical for a number of countries, including the Russian Federation.
The most important question should be how the results will be evaluated according to the goals set for the state administration bodies, expressed in various programs, forecasts, plans of individual regions of the country. And, as already noted, the priority task is the formation of criteria and indicators for evaluating such results.
It is proposed to use as criteria for the effectiveness of public administration:
- execution of Decrees of the President of the Russian Federation, Decrees of the Government of the Russian Federation, laws and other regulatory legal acts of the Russian Federation;
- observance of assignments for forecasts and programs related to volume indicators of the industry;
- implementation of the efficiency plan, which consists in labor productivity, profitability, energy intensity, material intensity, innovative activity, etc.);
- compliance with the transformations of the market associated with the development of new forms of ownership, restructuring of enterprises, etc.);
- execution of those orders and instructions that come from higher management;
- compliance with the regulations, which are established by a specific state governing body;
- compliance with the requirements and provisions of the state personnel policy.
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