Civil servants career concept. Career management in the civil service. State civil service career space
Administrative careers are chosen by those careerists whose goal is power and influence. The rules of the game in the administrative apparatus are quite tough, but there is a real chance to make progress if you choose the right starting position, carefully prepare the ground for growth, work for a long time and be able to wait for a convenient moment. People from different professions and in different ways enter the administrative system. We will try to identify them, as well as give examples of chains that can lead you from the beginning of the path to the heights of an administrative career.
Administrative careers are chosen by those careerists whose goal is power and influence.
Administration is management, or management, in the direct sense of the word. However, administration and management in Russia are concepts that differ from each other. The term "administration" is used in our country in relation to government and state structures, and in relation to private companies, the word "management" is used, which includes elements of administration, that is, management, and much more. Let's try to figure out what a civil servant's career is and where civil servants come from.
In Soviet times, the Komsomol was the cradle of any official. Without a membership card for this youth organization, the path to the state apparatus was not just closed, but tightly nailed down with rusty nails. There is no Komsomol, but the apparatus continues to exist and function.
Despite the fact that for a number of years we have been hearing all our troubles fall on the notorious administrative-command system, no state can do without such a system. Therefore, the administrative system contains many opportunities for career growth... Another thing is that our system is considered corrupt, inert, cumbersome and ineffective. There is some truth in this, but not a single state can afford to abandon the system of government if it does not want to drown in anarchy and anarchy. All criticism, protest campaigns, behind-the-scenes games and the attraction of the masses to this game are mainly started in order to free the seat they like. In addition, slogans about the abolition of the power system are invented by those who want to change the figures of power, in other words, a revolution or a coup is just a hooligan way of building a career.
At the higher rungs of the ladder, an administrative career merges with a political one, sometimes it is difficult to determine the real edge of this transition, if you look at the essence of things, and not at their names. The administrative system is criticized anytime, anywhere. When the political situation escalates, the administration is sacrificed or the political leadership is changed.
True, the rules of the game in the administrative apparatus are quite strict, and it is practically impossible to make a breakthrough without patronage, without having work experience or appropriate connections. But there is a real chance to get ahead if you choose the right starting position, carefully prepare the ground for growth, work for a long time and be able to wait for the right moment.
In fairness, it should be noted that in our time the brilliance of the career of an employee of the state apparatus has faded a little. The extensive privileges that made any place in the ranks of the state apparatus desirable became a thing of the past and became only pleasant memories. Salary, which the state tries to attract specialists to the ranks of employees, in comparison with the salary good manager in commercial firm small, even for the deputy minister. Social guarantees for civil servants are very modest in comparison with the same guarantees and privileges in the Soviet state. Not everyone can get even service apartments, but mostly nonresident specialists or officials of the rank of minister.
Officials can be attributed to the type of ambitious individuals who satisfy their personal ambitions not with money, but through power. It's not even that bureaucrats don't get paid. Many ordinary citizens believe that in order to “scratch out” any piece of paper from the state bodies, it is necessary to “give it to the paw” of the one who issues these same pieces of paper, otherwise you will not end up with worries and troubles.
A real, "terry" bureaucratic careerist should not stoop to the level of a primitive bribe-taker from the district administration. Otherwise, it makes no sense to pursue an administrative career. Money should not be the true goal, but the power that the high position will give.
The main reason people tend to do successful career in the state apparatus, is that, being in the service of the state, a person chooses an excellent opportunity to acquire a lot of useful connections and develop the potential for a better start in business. There are many examples of successful employment of former officials in commercial structures.
Official capitalization
This model, widely accepted in Western countries, is gradually spreading in our country. The higher the rank, the higher the capitalization, and vice versa.
However, it would be wrong to think that a bureaucratic career is made solely for the sake of money and privileges. It is impossible to consider the acquisition of the opportunity to go to "big" business for a good salary as the main goal of an official. It is much more exciting for a true official to be really involved in the solution of important state affairs, and as one grows in office, to directly influence their outcome.
We must not forget about one more aspect of interaction between officials and businessmen - their "connection" is one-way.
In practice, there have not yet been cases where a successful official in his post has become a really cool businessman. A good manager - as much as you like, but the job of an official itself presupposes the ability to organize and carry out managerial policy. So, not a single high-ranking official has yet managed to start his own business, as they say, from scratch and make him a leader in his industry.
There is nothing unnatural in this, because business is a risk zone, and every official from the very beginning of his career once and for all memorizes the basic rule of the bureaucratic apparatus functioning - agree a hundred times, permit once, and in no case make individual decisions!
Paths that lead to an administrative career
People from different professions and in different ways enter the administrative system. We will try to identify them, as well as give examples of chains that can lead you from the beginning of the path to the heights of an administrative career.
For someone who has identified himself as a novice careerist in the administrative system, the method of building chains of expected growth is useful. Most of the people who have achieved high positions in this system started their careers within their professional field, but early on moving to positions more suitable and promising, sometimes through trade union or public organizations or associations.
According to the testimony of people who have made an administrative career, now the path to the state apparatus lies through the personnel department. Of course, many novice officials come to work by acquaintance, the practice of protection is flourishing in our country as well as in the whole world. However, many simply come to the ad and find their Klondike, despite the intrigues of ill-wishers.
The requirement for a novice careerist from the bureaucracy is quite simple: the presence of a higher education. In the absence of this, they simply will not talk to you. The focus of education itself does not matter, especially at the beginning of a career. However, if you want to “grow” further, you will have to get a second higher education, in some way connected with the path you have chosen. And just the presence of a mention of two degrees of higher education in your personal file can play an important role in your career.
An excellent move would be to obtain a scientific - candidate or, in extreme cases, a master's degree. The thing is that the bosses, although they twirl their nose and resist with all their might, letting you go to conferences and seminars, on occasion they like to drop: "Our employee is a candidate (doctor, master) of sciences." This greatly raises both your boss's prestige and your own.
Start of an administrative career
What is needed for someone who is going to reach the top of the career ladder in the administrative system?
Higher education, a suitable position, competence not only in their work, but also at a higher level, and at the same time the absence of criticism, communication and the favor of the authorities.
Higher education. If it is not there, you should study by correspondence. It is advisable to get a humanitarian, legal or economic education (depending on the area in which you see your further advancement). The most universal is the legal one. It allows you to work in any managerial position.
Professional education provides slightly different knowledge and skills than those required from the manager-administrator, and at the stage when the career moves from professional to administrative, for example, from the head of the shop to the deputy director. The intelligent careerist must take care of his preparation for managerial work.
It is very important to determine the place and position with which you will start. A promising position is one in which there is no danger of sitting up until retirement due to the fact that there will be no one to transfer it; assuming not too much workload, otherwise you will have no time to engage in your own promotion; it should also involve your participation in resolving key issues, preferably at the consulting level. And, most importantly, in the course of your work, you should encounter your superiors as often as possible, preferably not with your superiors, but with your superiors. Position with material responsibility can be considered suitable only if you are going to move exactly along the economic path, for example, from the head of the warehouse to the chief accountant, and so on.
An example is the position of a methodologist in an educational institution. The following chain is possible: a psychologist - a methodologist - a head teacher - an inspector of the education department or a school director and so on.
Starting a managerial job in most cases cannot be called a career from scratch. Usually they come to management structures already having work experience behind them. But every new team you have to learn again, and it is better to follow some rules that will allow you to develop your own exclusive strategy for success.
There is no definite "code", following which, you are guaranteed to get into the coveted circle of high officials. The rules are the same as for any other career. This is easily explained - the same people serve in the state apparatus, as elsewhere, with their vices and virtues, strengths and weaknesses.
The qualities of an administrative careerist are the same as those of any other striving for the heights - persistence in achieving goals, perseverance, the desire for self-learning, the ability to always maintain good relations with the authorities, no matter what happens.
However, experts recommend, in addition to all its merits, to occupy its own, separate "niche". Thus, you will acquire the opportunity to become an indispensable specialist in your field, and if such a need arises, they will definitely turn to you.
It's also a good idea to learn how to draw the attention of your superiors to your work. Frequently report on the progress of the work entrusted to you, strive to solve large-scale tasks that no one undertakes precisely because of their difficulty or the unpleasant reaction of others (for example, a meeting about dismissal). If successful, your weight in the eyes of your superiors will increase dramatically. Although, as they say, a real official can make any task special, give it significance.
How to please bosses
No matter where you make your career, you will have to deal with people. The most important person on your way is your boss. It depends on this person whether you go up or get stuck in place, or you generally have to leave your home and rush around the world in search of work. The best person on earth is your boss, no doubt about it. This is an axiom that you are encouraged to memorize.
To prevent your career from failing at the very beginning of the journey, make friends with your boss. Become his right hand, and at the same time his left and legs (both at once). Do not shy away from the boss's delicate assignments, even if it threatens you with the loss of the goodwill of most of your colleagues in the office.
Offer your boss your help in preparing his speech. If he is proud and believes that he can do it himself, just drop by chance that you could type the abstracts of his speech on the computer. He will certainly agree: after all, reading printed text is immeasurably more pleasant than hurried squiggles.
Use the rules of good manners in practice, do not forget to smile at even the most bearded jokes of your boss, because he is sincerely confident in his sparkling sense of humor.
Do you ever correct your mom's reservations? So why is it believed that fixing the boss is the norm? He can harbor a grudge, and then you will not be good. Even if your boss is not a vindictive type, he will still consider you an unsympathetic person and will unknowingly start to "slow down" your career growth.
If your boss doesn't have friends at work, feel free to offer him help with things he doesn't have time to do on his own. Usually, bosses are complacent about such things. Nevertheless, do not forget about the chain of command, remember that you are still a qualified employee, do not allow yourself to be turned into a kind of messenger mixed with a porter.
Examine your boss's weaknesses - who doesn't? Does he like flowers? Feel free to water the pots in his office if he suddenly forgets. Is your boss crazy about coffee? Feel free to bring him a cup of freshly brewed drink and do not forget to mention that it was brewed on purpose, according to a special recipe that you inherited from your grandmother.
Try to learn more about your boss's habits and hobbies. If he visits gym, find out which one, and take the treadmill next to it. Joint sports activities bring people closer together.
Does your boss have a PhD? Let him know you want to do scientific work and offer yourself to be an assistant. He will appreciate it.
A good and warm relationship with your boss can be an excellent foundation for the future. Who knows, what if your boss goes for a promotion, maybe he will take you with him too? After all, you are such a close-knit team together.
Over the course of decades, many generations of employees have formulated rules that will help you to enjoy the stable and unchanging disposition of your boss.
First of all, make it a rule to show up for work a little earlier than your boss arrives, and also try to leave the office only after the boss leaves home.
Secondly, try to take less time off during working hours, and also take sick leave less often.
Third, never argue with your boss. Avoid controversy both in private and in the presence of other employees. This is a gross violation of the chain of command.
If your boss personally asks you to stay after work and work overtime, agree immediately and enthusiastically, putting everything aside for later.
Forget about such expressions as "this is impossible", "this is not included in my circle job responsibilities"And others like them. You must always be open to new experiences and new directions of work.
Do not forget that your boss is a busy person, do not delay him over trifles, try to solve your problems yourself, and if you really cannot do without the help of your boss, try to state the essence of the issue as briefly and clearly as possible.
If the boss's desk is littered with business documents, you may ask if your help is needed, feel free to ask for help.
Learn to think not trivial - look for new, original solutions to work issues, do not be afraid of the negative reaction of colleagues - they just envy you.
Finally, learn to stay in front of your boss all the time, creating an image of a responsible, reliable and hardworking employee.
Do not seek to "crush" the boss with your intellect, he knows almost everything without you. But do not pretend to be ignorant - such a game is always fraught with unpleasant consequences.
Beware of expressing an opinion opposite to that of your boss, especially in public. Do “reconnaissance in force” initially, study the leadership position, and only then state your ideas.
In order not to seem idiotic in the eyes of the leadership, try to form a "reserve" for the future - already completed cases, which, if necessary, can be included in the plan for the future. This will improve your performance and build your reputation as a diligent and diligent employee.
The boss, no matter how high the position he occupies, always has one feature: he gives almost simultaneously several mutually exclusive assignments at once. As a result, never rush to complete the first task of the chief, wait until he cancels it and gives the next one. It would not be superfluous to ask your colleagues if any of them would like to win the honorary title of “the most executive worker”. Save energy for other, more important things.
Keep in mind that under the guise of a kind of "darling" in your office, an enemy may be hiding - a real snake in syrup. It is both sweet and pleasant, and if you gape a little, it will not be slow to bite. Be reasonably distrustful. Beware of intrusive colleagues.
Continuing with the previous advice, we can say that no matter how antipathetic your boss is to you, never criticize him in a circle of colleagues. Perhaps a spy with a voice recorder lurked somewhere. And the words spoken in hearts can cost you dearly.
Develop psychic abilities in yourself, learn to feel the mood of the people around you and, first of all, the mood of the boss. Learn to make an appropriate face, reflect on the boss. In short, become the person your boss needs.
Boris Masterov, PhD in Psychology,
program manager of the Institute for Professional Development,
expert of the Open Society Institute.
Introduction
Chapter I. Recruitment and Career of Young Officials: Weber's Ideas and Russian Reality
1 Factors of the professional career of a civil servant in the Russian Federation: traditions and modernity
2 Hypotheses and methodology
3 How to become officials: channels and recruiting tools
Chapter II. Career foresight. Legal basis of the organization
1 How do elevators work?
2 Legal basis of career organization
Conclusion
Introduction
The changes that have taken place in Russia over the past ten years have made the problem of strengthening statehood and, in particular, increasing the efficiency of public service, urgent. The dependence of the results of socio-economic transformations on the state of the management mechanism and the quality of personnel performing state functions is becoming more and more obvious. The activities of civil servants are significantly influenced by their status stability (employment stability, guaranteed wages), as well as career opportunities as they gain experience and professional knowledge. Conducted in 1996-1997. RAGS scientists researching career strategy and tactics have revealed a fairly clearly expressed interest of a significant part of civil servants (67%) in official and professional growth. At the same time, an expert survey (1998) of 173 civil servants showed that their satisfaction with their social and official position is within the range of 10-13%. This reflects the mood of the Russian bureaucracy, which is undergoing permanent reorganization and changes in administrative and socio-economic legislation.
In Russia, the dislike for officials is historically very strong, and often it is the bureaucracy public opinion blames all the troubles. According to polls, people estimate the efficiency of officials' work very low and do not consider it necessary to raise their salaries. This position is accompanied by the conviction that all officials have other income than salaries, and the officials as a whole are highly corrupt. However, the quality of the bureaucracy is a reflection of the level of development of the society in which it functions. Reinterpreting a well-known expression, we can say that every society has the bureaucracy that it deserves. The quality of the bureaucracy, apparently, depends not least on who it consists of and how its representatives are selected. However, empirical studies of its composition, mechanisms of its formation and processes of functioning in modern Russia began recently. The specific difficulties of such studies are associated with corporatism and the factual secrecy of government bodies from outside observers, as well as with the fact that the processes of the formation of a new Russian bureaucracy are far from complete. Therefore, the task of collecting facts about bureaucracy and describing the daily activities of officials seem to be very relevant. At the same time, it is necessary to analyze these facts through the prism of the available theoretical concepts... An effective bureaucracy is almost synonymous with an efficient state. If officials are ineffective, incompetent, and poorly motivated, large-scale “failures” of the state become almost inevitable.
The ideal bureaucracy, according to Weber, is rational, highly professional and apolitical. A bureaucrat should not be a servant of his superiors and must work in accordance with the interests of the case, regardless of the change of government. All of this must be supported by a number of factors and special procedures. Among them: recruiting based on open competitions, moving up the hierarchical ladder within an organization based on meritocratic criteria, depoliticizing career and functional responsibilities, professionalizing activities, competitive remuneration and certain social guarantees. The remuneration of officials is clearly fixed, tied to the status or position, as well as to the amount of seniority in the civil service, and does not depend on the specific volume of work. Their bureaucratic career is, if not guaranteed, then at least predictable. All of the above rules and features have one main purpose: they are aimed at ensuring that civil servants are highly professional experts and identify themselves with the state, and not with specific ideologies, politicians or lobbying groups.
Such an analysis would be useful for the implementation of the civil service reform program, which is one of the political priorities today.
The purpose of the work is to identify and analyze the existing mechanisms for the selection and promotion of officials.
Using data on young civil servants, I set out to answer several interrelated questions. First, what channels and tools are used to enter the bureaucracy? Second, how do young officials see their careers? Thirdly, by what criteria is the promotion organized within bureaucratic organizations, i.e. How do “elevators” that provide intra-organizational mobility function? Fourth, how do ideas about the mechanisms of career growth affect the behavior of people in a bureaucratic organization? And finally, fifth, how committed are young officials to their organization and public service in general?
The object of my work is young officials, and the subject is the professional career of civil servants. Professional career civil servants, in my opinion, is not only (and not so much) advancement through the ranks of the organizational hierarchy, but also the process of a person realizing his capabilities. A professional career is usually accompanied by personal professional development, and the connection here is mutual.
Chapter I. Recruitment and Career of Young Officials: Weber's Ideas and Russian Reality
.1 Factors of the professional career of a civil servant in the Russian Federation: traditions and modernity
Public distrust of officials was not born today, but traditionally accompanies the entire history of the Russian state. “Officialdom or bureaucracy,” noted the researcher of Russian statehood E.P. Karnovich, - nowhere in their mass did they enjoy the special disposition of the population, they are viewed as some kind of force unfriendly towards the people. " In the memorandum "On the past and present of the Russian administration," written by E. Berendso in 1904 to the Minister of the Interior V.K. bureaucracy due to the lack of honesty and due legality in its activities.
For people who are professionally involved in government management, such statements seem to be unfair. A look at the specifics of the professional activity of an official, which is called "from the inside", states with external assessments of the activities of the state apparatus, with a view "from the outside".
This contradiction cannot be dismissed so easily. Public criticism of the bureaucracy makes us take a closer look at the specifics of the daily professional work of an official, at the motives and incentives for his career growth, to understand how the conditions for the functioning of the state apparatus meet the tasks assigned to him. The most important indicator of the controllability of the process of reforming the system of state and municipal administration is the management of an official's career. The traditions and value orientations that have developed here can make significant adjustments to the implementation and implementation of the normatively prescribed rules and procedures. Despite the traditional unpopularity of the image of a bureaucrat, bureaucratic service in pre-revolutionary Russia has always remained a privileged professional occupation, since it provided extensive advantages - stable salaries, bonuses and pensions, ranks and orders, after reaching a certain rank - the nobility. The most extensive lower stratum was mainly recruited from the middle class and the petty bourgeoisie. The career of an official presupposed the possibility of entering into privileged groups and even into ruling class in the form of honorary citizenship, personal and hereditary nobility. The middle stratum of the bureaucracy was replenished mainly by immigrants from the intelligentsia, cultural strata of the bourgeoisie and the impoverished local nobility, which moved to the cities. Most of them were educated in gymnasiums and, less often, in universities (by the way, they suffered painfully from the harassment of society, to which the lower classes were generally quite indifferent).
Bureaucracy was in nature open system with the replenishment of its lower and middle stratum and almost caste-closed - in the upper stratum. The highest layer of the bureaucracy - as a rule, large landowners, industrialists, noblemen (the exception was favorites, who, due to the special personal trust of the sovereign or empress, could also come from the lower strata). Sociological studies of the pre-revolutionary Russian bureaucracy have recorded significant differences in the motivation of the upper and lower, middle strata of the bureaucracy. For the upper stratum of the bureaucracy, in contrast to the middle and lower, salaries are not the only and even far from the main source of income, and therefore service is a means to achieve completely different goals than just survival, namely, to join public power in the interests of large land tenure and commercial and industrial capital.
Questionnaire polls of the pre-revolutionary bureaucracy showed that protectionism was an important factor in the career of a Russian official, depriving disciplined, but not patronized officials of faith in the future and hopes for a more or less secure position. Gaining a profitable position in the public service was not associated with personal initiative, enterprise, innovation, but precisely with patronage, bribes, or a long exhausting service. An official without patronage had only one path - "a strap, a strap without end" and an involuntary aversion to work that did not bring moral and material satisfaction. Thus, the favored officials often simply imitated their official activities, and the competent officials, who were losing the competition due to the lack of patronage, lost interest in it. As a result, the service suffered, i.e. huge, complex business government controlled, on the healthy state of which the well-being of the entire population and the state itself depended. An important factor in the professionalization of the Russian state apparatus in the 19th century was the formation of the "administrative law" of the bureaucracy. Based on the "Charter on the Civil Service" (the third volume of the "Code of Laws Russian Empire»), Adopted in 1857, all the official duties of officials, the procedure for joining and dismissing from it, promotion to ranks, awards, pensions, uniforms and some of the privileges of this profession were described. But there were serious flaws in this "Charter". The greatest dissatisfaction, as the results of the polls showed, was caused by the notorious "third point", or officially - Article 788 of the "Charter ...", which read: at your own discretion ... ". The authorities could not explain the reason for the dismissal, the victim received a "wolf ticket" and was deprived of the right to a pension. The next article, 789, of the charter specified that dismissed officials have no right to complain, go to court, or to the Senate, and even more so to the office of His Imperial Majesty, where their complaints will simply not be "accepted for consideration."
The “third point” forced officials to see in the person of their own bosses a power standing, as it were, above the law, and forced them to fearfully obey everyone, even sometimes to its illegal instructions. Both appointment and dismissal depended entirely on the will of the bosses. The official in the hierarchy itself remained defenseless, face to face with his immediate superior, armed with a “third point”.
Many times various government commissions, and later Duma factions, attempted to abolish the "third point", as contrary to modern legal consciousness, but to no avail. "Legalized arbitrariness", which formed the basis of the official law of the bureaucracy, stubbornly persisted until the February Revolution. To what extent are the rudiments of patrimonialism (dependence on the will of the boss, and not on the results of activities) eliminated in modern management a career as an official? The practice of unjustified dismissals of officials in connection with the arrival of a new leader (head of the municipality, governor, etc.), alas, is not uncommon. In our study, state and municipal employees of the Ural Federal District indicated their “insecurity from the arbitrariness of their boss” by 15.2% of the respondents.
What contributes to the career growth of state and municipal employees? Among the factors of career growth, the leading positions in the respondents' answers are held by: having professional experience, work experience in this organization (53.2%), good relations with the management, and his support. (49.9%). The next most important factor is professionalism: “the desire to improve their professionalism” (41.1%), the ability to present oneself as a good worker (35%). In 2006-2008, the Ural Academy of Civil Service under the leadership of Natalya Gennadievna Chevtaeva (Dean of the Faculty of Training Civil Servants of the Ural Academy of Civil Service, Doctor of Sociological Sciences, Professor) carried out a research project “The factor of social and professional corporatism of bureaucracy as a resource for increasing the effectiveness of the system of state and municipal administration ”. In accordance with the quota stratified sample (the parameters of the sample were based on the following characteristics: gender, age, level of government, region), 1,200 respondents were interviewed in the following categories of state and municipal employees of the Ural Federal District:
Heads and employees of the regional level of executive power of the federal bodies of state power operating in the territory of the Ural Federal District;
Heads and employees of the executive authorities of the constituent entities Russian Federation Ural Federal District;
Heads and employees of bodies local government Ural Federal District.
The geography of the study covered all regions of the Ural Federal District: Sverdlovsk Region. - 361 people, Chelyabinsk region. - 294 people, Kurgan region. - 116 people, Tyumen region, including the Khanty-Mansiysk Autonomous Okrug - Yugra and the Yamalo-Nenets Autonomous Okrug, - 429 people. The sampling error was no more than 3%.
I would like to note that the factors of professionalism and loyalty to the leadership go hand in hand, as complementary in career advancement. According to the respondents, the ability to work creatively in a team is no less significant (27.6%). It draws attention to the fact that his career depends little on the ability of an official to “respond in a timely manner to the needs of the population”. Only 9.3% of respondents named this factor as significant for career advancement. In order to determine the main parameters of the attractiveness of professional activity in the authorities, the respondents (state and municipal employees of the Ural Federal District) were asked the question: "What do you value in your work?" (multiple answers could be selected). The factor of stability of earnings and social protection turns out to be dominant in the scale of interests of the bureaucracy - almost 70% of the respondents preferred it. The next, with a large margin, is a group of factors, the degree of significance of which for the respondents is approximately equal (about 30% of each factor): the possibility of career advancement, comfortable working conditions, social significance, the prestige of the work, "the ability to communicate with people of their own circle."
An interesting picture emerged after correlating the answers to this question, depending on the age of the respondents. The desire to acquire social capital, to establish useful social ties that contribute to career growth, is actively expressed in the age category "under 30", while the more mature age category of officials (40-49 years old), who has accumulated social capital, can invest it in a significant management resource , noting the factors of proximity to the authorities and the prestige of work among the priorities.
Table 1. Dependence of the aspects of their professional activity attractive for an official on age
Age / Attractive aspects of work Up to 3030-3940-49 years 50 and older Opportunity for career advancement40,525,120,813.7 Participation in management 17,824,331,726.3 Stability of earnings, social security 24,623,231,121.1 Comfortable working conditions23,625,734,416.3 Social connections30,821,922,724,7 , 0 Prestige of work21,424,335,918,4 Opportunity to communicate with people of the same circle 29,220,629,920,3 Other22,914,328,634,3
What group of interests makes officials show loyalty, loyalty to the system of state, municipal government, "links" them into a single social and professional group?
The results of the respondents' answers to the question “How much does your social position help you to solve life problems?” Allow us to conclude that, according to the estimates of the majority (76%) of the respondents, belonging to the social and professional group of the bureaucracy helps them solve various life problems. Another factor that testifies to the positive attitude of the bureaucracy to participation in specific joint activities is the degree of their legal protection in comparison with employees in other spheres. The data presented in Figure 1 indicate that the overwhelming majority of the bureaucracy (to one degree or another) highly assess the degree of their legal protection in comparison with employees in other spheres. Only one-fifth of the bureaucracy does not realize this advantage.
In order to determine which stratum of the bureaucracy feels the benefits of its social and legal protection to a lesser extent, we looked at various variants of the correlation dependence. A significant factor turned out to be the level of the official hierarchy.
One would assume that there is a clear relationship between official status and awareness of the measure of legal protection. However, these studies have revealed a slightly different picture. Despite the general recognition of the advantages of legal protection of their professional affiliation, in comparison with workers in other spheres, two poles of the management hierarchy expressed great concern: the highest and the lowest. Among the answers assessing the degree of their legal protection "much worse" than workers in other spheres, the categories of officials of higher and lower positions prevail (the share of dissatisfied among senior officials was 9.5% in their category, versus 1.5% -3.5% , 2.6% in the hierarchy of senior, leading and main positions). Apparently, the degree of dependence of these levels of the management hierarchy on extra-legal mechanisms of influence turned out to be the greatest.
An important factor in the professional activity and career of an official is strict adherence to the rules and regulations, requirements for state and municipal employees. Does this always become the basis of daily practice? Let's consider just one aspect. Today, in the rules governing the activities of civil servants, the concept of "conflict of interest" and a model of behavior of a civil servant have appeared, clearly prescribing for him a way to resolve this conflict of interest situation. In particular, the Decree of the President of the Russian Federation of August 12, 2002 No. 885 "General principles of official conduct of civil servants" says: "In the event of a threat of a conflict of interest - a situation where personal interest affects or may affect the objective performance of official (official) duties, - report this to the immediate supervisor and implement his decision aimed at preventing or resolving this conflict of interest. " Wishing to understand to what extent this formalized norm became the basis for the daily official behavior of officials, we asked the respondents the question: “Do you consider it necessary to inform your superiors about official violations and misconduct of your colleague?”.
The results of the respondents' answers turned out to be in the spirit of the traditions of the Russian mentality. The overwhelming majority of officials (65.3%) would report to their superiors about their colleagues' misconduct and misconduct “only in exceptional cases”, a categorical “no, in no case” was chosen by a fifth of the respondents (19.7%), in total these categories respondents accounted for 85% of officials.
Only 2.1% expressed their readiness to “be sure to report the misconduct of their colleagues to the management”, while the milder option “most likely yes” was chosen by another 6.1%. So officials who are ready to strictly implement the behavior model prescribed by them turned out to be 8.2% in total. A category of "manipulators" also emerged who would make decisions about informing the management about the misconduct of their colleague "Depending on the relationship" with him - there were 6.8% of them. It can be stated that the professional community of officials gives preference to the existing horizontal social connections, showing the strongest corporation at the intra-organizational level. Our analysis of the traditions, attitudes and preferences of the Russian bureaucracy once again proves that while the mechanisms inside the “workshop” of officials remain unclear, the introduction of innovations in the system of state and municipal governance will lead to the most unpredictable consequences. The life and social and professional position of the bureaucracy turns out to be that serious resource, without which it is difficult to count on the effectiveness of the functioning of the administrative apparatus, on the optimization of its activities in accordance with the expectations and preferences of the modern Russian society.
1.2 Hypotheses and methodology
Aggregated government statistics show that the rate of renewal of the composition of officials in Russia in the second half of the 1990s was insignificant. The main "turnover" of personnel took place on the lower floors, while staff on the upper ones changed little. Progress from lower to higher positions was practically blocked. As a result, young people did not have incentives to stay in public service for a long time, leaving senior officials without visible competition from below and from outside. This practice can create obstacles to the accumulation of specific human capital in the state apparatus, causing an unjustified and insurmountable segmentation of collectives into young people occupying the lower levels of the bureaucratic hierarchy and the elderly who monopolized the higher ones. At the same time, it is natural to assume that "personnel policy" in this case has a strong personal emphasis aimed at the formation of internally cemented teams or clans linked by client ties, ie. relationships of loyalty and patronage between employees and superiors. Ultimately, all this negatively affects the efficiency of the civil service, opposing both the current and long-term interests of individual groups within the state apparatus. The main hypotheses around which the further discussion is organized are as follows:
Hypothesis 1. In providing access to public service in Russia, personal informal ties play a more significant role than impersonal competitive and meritocratic procedures and rules.
Hypothesis 2. In career advancement within bureaucratic organizations, employee loyalty to management is more important than business meritocratic criteria.
Hypothesis 3. The practice of access to public service and the expected policy of promoting employees in bureaucratic organizations form an individual forecast of an intra-organizational career. This forecast significantly affects the behavior of young officials in the civil service, stimulating their desire to remain committed to their current place of work or to change it.
Hypothesis 4. In organizations that adhere to meritocratic procedures in recruitment and promotion policies, the level of remuneration is higher.
To test these hypotheses, individual data are needed, which should represent the entire bureaucracy and give an idea of various aspects of its activities, mobility, pay, etc. So far, no data of this kind are available. We have much more limited data from a special survey of young officials conducted in 2001-2002. It covered persons under the age of 35 working in positions of state or municipal employees in federal, regional and city government bodies.
At the federal level, 10 Moscow-based federal ministries and departments related to economic management were selected. For the study of regional officials, three regions of the European part of Russia were selected, located to the north, east and south of the capital and in a certain way reflecting the diversity of the regions of European Russia. The objects of study were the administrations of these regions, as well as the city administrations of the corresponding regional centers. In each of the selected organizations of state power and administration, according to a standardized questionnaire, young officials of category B (the most widespread category of civil servants), with higher education under the age of 35, were interviewed. A total of 819 people were interviewed at the federal level, in 3% of regional administrations - 294 and in 3% of city administrations - 344 people. In each of the organizations, the sample included about 50% of the payroll of officials. A general overview of the results obtained has been published for regional and city administrations. An additional source of information for this work was the materials collected by G.A. Monusova in 2002 in the course of interviewing middle-level managers in the same federal ministries where the survey of young specialists was carried out. These data are not directly used in the article, but they helped in formulating hypotheses and main conclusions. The conclusions of G. Monusova made on the basis of the analysis of qualitative information are in good agreement with our quantitative data. A.E. came to similar conclusions. Chirikova, who analyzed the relationship between formal and informal rules for the functioning of the regional bureaucracy also with the help of qualitative ("soft") data.
.3 How to Become Officials: Recruitment Channels and Tools
The importance of competitive entry into the civil service is noted when describing its functioning in some countries that have achieved particular economic success. There are at least three explanations for this. First, careful selection ensures that the most skilled and productive workers are selected. Because the costs of firing in this area are high, it is very difficult to correct mistakes made in hiring. Secondly, the operation of objective selection procedures provides the hired official with a certain autonomy from higher leaders, prevents the creation of closed clans, and creates the basis for more effective mutual control. All this stimulates officials to focus primarily on the interests of society and the state, and not on the interests of their bosses. Thirdly, competitive selection at the entrance helps to implement such an important condition as equal access to public service. This not only ensures social justice, but also increases the chances of finding the most worthy candidates. As a result, the initial selection of factors for certain functions affects the quality of performance of these functions much more strongly than any other influences on already selected performers - their training, stimulation, etc., which is typical for many other social situations. Are the selection procedures existing today in Russia aimed at selecting the most promising employees, or is there a systematic accumulation of the “worst” - the least qualified and least productive? Effective selection tools include qualification exams (preferably written) and tests that can be applied on their own or as part of a competitive job.
Table 2 shows which procedures are actually applied when hiring officials and to which entry positions they relate.
It follows from the table that the absolutely predominant form of selection of candidates is an interview - almost 94% of the interviewed young officials went through it when hiring. It would not be a great exaggeration to assume that the "resolution" of the interview as a filter in the selection of the best candidates is extremely low. This is a very subjective procedure, and when applied to the selection of lower-ranking officials (in the face of an acute shortage of applicants), it can also be completely formal.
Table 2. Types of procedures accompanying hiring, depending on the position of the entrance to the organization * (% of the number of respondents **)
PositionsInterviewParticipation in an official competition for a positionTestingPassing an oral examPassing a written examPresence of at least one of four procedures: competition, test, examAll respondents (N-1443) 94,441 Less than 18 Specialist (N-46) 94 Specialist of the 2nd category 95 (N-204) 1 categories (N-471) 943328 Leading specialist (N-382) 94649 Chief specialist (N-179) 977916 Consultant (N-43) 911212 Advisor (N-7) 86 Deputy chief (N-16) 88 Head of department (N-25) 84 * Based on the results of the answer to the question "What procedures did you go through when you were hired?", You could specify any number of procedures ** Cells with less than 5 observations are not filled in the table More formalized procedures include competition and testing. The scale of their use is insignificant: approximately 4% of our respondents participated in each of these tests. It is characteristic that the higher the “entry” position, the higher the degree of their coverage. In the competition, for example, only 2% of specialists of the 2% category participated, but already 7% of those hired for the post of chief specialist. Only 3% of specialists of the 2% category were tested, but already 9% of newly hired chief specialists and 12% of consultants. This tendency persists if we take such an indicator as participation in at least one of the four procedures that increase the meritocratic selectivity of selection. Among the specialists of the 2nd category, those were 6%, and, for example, among the chief specialists - 12%. Data on the prevalence of selection procedures at different levels of the territorial hierarchy are given in Table 2. In regional administrations, when hiring new employees, the practice of selecting applicants on the basis of a competition, as well as using special tests, is still more common than at the city and federal levels. The share of those who have passed at least one of the procedures that increase the objectivity of selection is 3 times higher in regional administrations than in city or federal administrations. In the future, we will more than once come across the fact that the personnel policy of regional administrations is distinguished by a greater focus on the selection and promotion of the most successful employees. Table 3. Types of procedures accompanying employment, depending on the level of executive power * (% of the number of respondents, N = 1447) Executive level Interviewing Participation in the official competition for filling a vacancy Testing Passing an oral exam Passing a written exam Presence of at least one of four procedures All respondents 9444108 Ministries (N-814) 9433106 Regional administrations (N-290) 93991017 City administrations (N3216-343) Possible forms of obtaining information about a candidate for a job (screening), along with the already mentioned examination and testing procedures, include a preliminary internship in the organization, as well as work without enrolling in a permanent staff (fixed-term employment contract or employment agreement). Such forms of employment give the employee the opportunity to show many essential qualities that remain hidden under other forms of selection, and the employer - the opportunity to get to know the potential employee better and make a more informed decision about the appropriateness of his use in the future. But such forms of screening are also not very common in the surveyed organizations: the proportion of interns and temporary workers is about 11%, overlapping in about 20% of cases. Another way to reduce hiring uncertainty is through referrals from people who are respected and trusted by the employer, or recruiting people the employer already knows. However, this practice creates the danger of forming a kindred-friendly rather than a business environment. The data in Table 3 illustrate the fact that personal recommendations (45% of cases) or personal acquaintance with a future employee (40% of cases) are precisely the dominant channels for employers to obtain information about future employees. Less than 20% of young officials came to the organization without being previously introduced to the future employer. Thus, the information previously obtained or collected by the employer was in most cases the basis for hiring. Table 4. Practice of getting a job (% of the number of respondents to the question *) Answers to the question: "How did you get a job in this organization?" All respondents N-1457 Ministries N-819 Regional administrations N-294 City administrations N-344 On personal recommendation 45514034 The head of the department or someone else from the management offered this job 32284137 , but I was already known here 861210 On my own initiative without recommendations ("from the street") 1110916 On an application received at the university 3422 Through the employment service 2114 Other 4611 Generally, general structure entry channels to federal, regional and city administrations are approximately the same, with slight differences. "Entrance doors" when applying for work in the surveyed federal ministries relatively more often than in the case of regional and city administrations, they opened with the help of a personal recommendation, somewhat less often - thanks to personal acquaintances. On the contrary, with employment in regional or city administrations, the role of personal recommendations decreases, and the "effectiveness" of personal acquaintance increases. This difference can be explained by the scale of the city where the action takes place. In Moscow, where federal ministries are located, the population is more numerous, and the likelihood of direct links with a direct employer is somewhat lower. Accordingly, mediated connections take on a large burden, the expression of which is someone's recommendation. City administrations are somewhat more likely than regional and federal ones to hire specialists "from the street" and employ employment services. This difference is most likely a sign of the lower prestige of work in city administrations. Accordingly, more open "access to officials" today is not the result of a special policy of the respective administration, but a natural consequence of the low attractiveness of the corresponding jobs. If the referrer is based on knowledge of the professional merits of the person recommended, this reduces uncertainty about the qualities of the person hired and reduces the transaction costs of recruiting (for example, for screening or training). To do this, he must know well the person recommended for work. But the recommendations that young officials come to work on are unlikely to fulfill the aforementioned function. This is evidenced by the composition of the recommenders (Table 4), among which more than a quarter are acquaintances of the recommended person and acquaintances of acquaintances, 27% are his relatives and acquaintances of relatives. It is clear that these people (unlike, for example, a university teacher or a research supervisor - only 8% of respondents used their recommendations) can hardly objectively assess the business qualities of an applicant for a position. Answers to the question "Who directly recommended you for this job?" So, the facts indicate that the procedures for "entering" an employee into state and municipal administrations are most often ineffective from the point of view of selecting applicants "according to merit" and are unlikely to provide it. To a greater extent, they are adapted to filling vacancies with employees loyal to their bosses. The position of the majority of managers, as the interviews have shown, impedes the development of meritocratic selection procedures in the Russian state / municipal service. Such managers criticize the practice of competitive selection for the slowness, inflexibility, high cost and, moreover, do not believe that the very employee who is needed at the given workplace will be selected through the competition. There are also unnamed reasons: direct managers lose part of their power in a competitive selection and therefore are unlikely to be supporters of the corresponding innovations. In order to avoid hiring an employee through competition, department heads, as a rule, find organizational opportunities - for example, the right to hire a person who is in the talent pool without competition. We have to admit that certain rational grounds can be found in the resistance of managers to the practice of competitive selection. The fact is that the general infrastructure of recruitment and mobility is not developed in the country: there are no reliably recorded "credit histories" of job seekers, there is no culture of recommendations and trust in referees, there are no reliable ratings of professional educational institutions, tests and procedures for the competitive selection of candidates have not been developed. Therefore, the introduction of meritocratic selection mechanisms is a very difficult task, for the solution of which a comprehensive reform of the entire personnel work... If, nevertheless, this work can be done and the mechanisms of meritocratic selection are introduced into the system of civil service, then not only the society that gets more qualified officials who are free from direct administrative pressure, but also the newly hired officials themselves will benefit. The prestige of their work, their autonomy, opportunities for mobility in the system of state / municipal service, and their social security will increase. It is characteristic that young officials themselves speak out in favor of holding objective competitions for filling vacancies (in a ratio of five and a half to one - 67 versus 12%). Perhaps they associate with such contests their hopes for "unclogging" in the promotion system already within the organization. Joining a ministry or regional (city) administration is only the first step in the career of a civil servant. The second step is to adapt to the rules prevailing in this organization, to develop their own strategies and tactics of behavior. Every young employee must answer for himself the question of whether there is a career perspective here? If so, what should be done and how to behave? But what if such a prospect is not visible? Or is the “price” of a career too high? How young employees answer these questions determines their future in the organization (and in the public service in general), and the future of the organization itself. Consider further how young employees represent their careers and build their life plans. .1 How do elevators work? career civil servant A long-term career within an organization or corporation that represents civil service, is, according to Weber, an essential feature of the latter. As I have already said, the advisability of such a career building is based on the assumption (often implicit) that in public administration there is a high proportion of specialized knowledge and skills (“hardware specifics”) that are accumulated by officials in the course of practical work... Therefore, in the interests of the effectiveness of the organization, a person must work in the public service for a long time. If we proceed from the expediency of a long-term career, then the processes of promotion (vertical mobility) acquire a key motivating role. At the same time, the entire system of incentives should have a long-term, delayed character. In order to induce an official to maintain a long-term commitment to the organization and to work effectively over a long period of time, it is necessary to form in him the idea that his efforts today will be rewarded in the future, i.e. his status and earnings will grow depending on the length of service successful work... The implementation of this entire long-term process is possible only under the condition of general high mobility: in order to promote those who are at the lower levels of the hierarchy, it is necessary that those who occupy middle positions move upwards. For this, in turn, senior officials must retire in a timely manner, vacating the corresponding top positions. Compliance with the regularity in the operation of "elevators", moving personnel from floor to floor, also presupposes the relative isolation of the entire system. People from outside should come mainly to lower positions. "Lateral entry" to middle and high positions, naturally, will disrupt and slow down the well-coordinated dynamics of phased intra-organizational (intra-corporate) movements. If vacancies are not opened, or they are filled by outsiders, or the promotion is not based on business criteria, this undermines career hopes or stimulates an official to show those qualities that are not related to the implementation of the organization's declared tasks. Let us see to what extent the real processes of vertical dynamics in the organizations we study correspond to the expectations deduced from the Weberian ideal type. To understand the functioning of the career "lift", we asked the respondents the question: "How often do vacancies (vacancies) of department heads appear in your organization?" This position itself is high enough for young specialist and opens up opportunities for further upward movement. In this sense, it can be considered as a conditional indicator of the turnover of vacancies. The opinion that such vacancies are opened quite often was expressed by 26% of young employees of ministries and only 6-9% of employees of regional and city administrations. At the same time, about 50% of officials in all types of administrative organizations believe that such positions are filled by the most competent people from within the organization, thereby confirming the priority of internal promotion. So, vacancies, in the opinion of young officials, rarely appear, although young employees of ministries note the facts of their appearance much more often (in comparison with those interviewed in regional and city administrations). This, other things being equal, creates more favorable conditions for vertical mobility in ministries. A logical way to increase the chances for promotion and intensify the movement of career "lifts" is forced retirement after reaching a certain length of service in the public service or by age. This practice is widespread in various countries. More than half of young officials support various kinds of restrictions for their colleagues who have reached retirement age (dismiss, transfer to lower positions, work under a contract, etc.). But only 18% take a radical position: “fire those who have reached retirement age in any case”. The respondents working in city and regional administrations are relatively more rigidly disposed. This is directly related to the rarer than in the ministries, the appearance of vacancies there and the slower work of career "lifts". However, almost half of young officials do not agree with any restrictions at all. labor rights persons who have reached retirement age. It is known that the development of achievement motivation, including the achievement of a career, requires the freedom to form claims, the absence of "ceilings". The data in Table 5 shows how young people assess the specific range of possible career growth and its limits. According to 42% of respondents, a young specialist who came to an organization for one of the lowest positions, "in most cases will move one or two steps" or "may move three or four steps up, but it is unlikely that he will reach the level of a department head." Another 28% believe that "at least in a few cases, he / she can reach the head of the department, but not higher." Thus, more than two-thirds of the respondents see some promotion opportunities for themselves and their colleagues, but believe that the "ceiling" of this promotion is too low. Against this background, the presence of about a third (31%) of respondents is especially striking, who believe that a young person “in rare cases can count on more - to reach the highest positions in the organization”. Of course, the "in rare cases" clause makes it somewhat easier to make such statements. And yet, such a significant number of those who admit the idea of higher career achievements is clear evidence that among our respondents there is a fairly noticeable group of young officials who are confident in themselves and are strongly oriented towards vertical social mobility. The “limits to growth” in the views of the respondents are poorly differentiated depending on where they work (at the federal, regional or municipal level). For example, employees of ministries have a slightly more optimistic career vision. Although the difference is not very large, it still adds weight to the general set of arguments in favor of the fact that career advancement in ministries seems to be relatively more realistic for young officials. In order for young specialists to themselves be ready to invest resources in their own development, and their immediate supervisors do not interfere with their potential careers, both of them must have a fairly clear idea of the fundamental mechanisms and career prospects of a civil servant. It is important here to see both its horizon and the "vehicles" (for example, competence, initiative, loyalty), with the help of which one can move towards this horizon. If a "long" upward career is generally unlikely, then all more or less ambitious and capable people will soon start looking "sideways." If the horizon of a possible career for a young worker is quite long, the question of the criteria for promotion becomes relevant. Table 6. Perceptions of career opportunities and limits (in% of respondents) * Answers to the question: “Let's say that a young specialist came to work in your organization in one of the lowest positions. to what position will he be able to advance? "All respondents N-1396 Ministries N-785 Regional administrations N-282 City administrations N-329 ... one or two steps up, no more 24202829 Three or four steps, but it is unlikely that he will reach the level of head of department 18201416 in several cases- up to the head of the department, not higher than 28282727 in rare cases can reach the highest positions 31323028 In our study, young people were asked the question, "What do you think is the most important driver of promotion in your organization?" The list of "tips" included 16 different options, revealing the possible criteria for the promotion of people in the public service. Any number of positions could be chosen, but the respondents limited themselves and on average gave about 4 answers (84% of the respondents chose 6 or fewer answer options). The distribution of answers to this question (Table 6) shows that, according to the respondents, job promotion is primarily influenced by a sufficient new position the level of competence (this criterion was indicated by 54% of respondents) and the ability to master new types of work, develop (45%). So, the criteria for promotion, in the opinion of young officials, are most often business qualities, moreover, those in demand for a new position and its development. The characteristics of the current job (they are indicated by such answer options as a good job in the previous position, initiative and independence) are mentioned less often. Perhaps this explains why, say, the positions of heads of departments are often recruited from outside. The perceived belonging of the candidate for job growth to a team of like-minded people also lags behind the frequency of mentions of the two qualities of leaders. The prevalence of this criterion of promotion once again reminds of the existence of informal associations of officials - "management teams" in bureaucratic organizations. "Teamness" is not necessarily opposed to the interests of the cause, but still does not fit into Weber's criteria for building an ideal bureaucracy. Weber's approach is fundamentally individualistic: an official, ideally, should be free of any internal corporate interests, must serve only the interests of the business, his career should be based only on his personal merits. In this sense, the "team game" of bureaucrats testifies to the imperfection of the Russian bureaucracy in terms of Weber's criteria. The mention of belonging to a team of like-minded people allows the respondent to give a touch of nobility to the interests of the team to which he belongs. But the next most frequently mentioned social qualities are already deprived of this noble coloring: they directly emphasize personal devotion, service to "persons" and "not to the cause." This is the meaning of such promotion criteria as the ability to present oneself, connections and acquaintances, knowledge of the intricacies of "hardware" work, loyalty to the leadership. Let us recall that P. Evans and J. Roch included among the features of Weberian bureaucracy only guarantees of long-term careers, without saying anything about the criteria on the basis of which the advancement of officials along the hierarchy levels is built. But we believe that the content of the promotion criteria is also actually included in the number of these features. An official can count on a predictable long-term career only if promotion is based on an assessment of his business merit, and cannot build such expectations if his career depends on the whims of his superiors and the need to adapt to them. Various criteria for promotion are perceived by young officials not in isolation, but in certain combinations. The relationship between these criteria can be determined using factor analysis. Integral indicators (factors), built on its basis, more generally characterize the respondents' ideas about what affects the promotion in those organizations where they work (Table 7). The table lists the first two factors explaining the total of 27% of the variance of the initial characteristics. The first factor collected all the main variables that characterize the business promotion criteria. It can be called a merit promotion parameter, or a meritocratic promotion parameter in an organization. Table 7. Promotion criteria perceived by officials (in% of the number of respondents) Characteristics of qualities All respondents N-1444 All ministries N-813 All regional administrations N-291 All city administrations N-340 Business qualities Adequate level of competence for a new position "Myself as a good employee37412934Knowledge of the intricacies of" hardware "work27272927Communications and acquaintances34382531Loyalty to the management20241417" Formal "criteriaUser experience in the organization38403734Total work experience in the state (municipal) service13131414Acquisition of one more higher education124154Availability of another higher education1089154 Significant positive factor loads have such characteristics as “the ability to master new types of work, to develop” (it is noteworthy that this variable has the greatest weight), “independence in work”, “initiative”, “a sufficient level of competence for a new position”, “ good job in the previous position. " Only one indicator - “connections and acquaintances” has a noticeable negative load on the factor. The higher the value of this factor for a particular respondent, the more his / her conviction that the current promotion principles are based on business ability and merit. And, accordingly, the stronger, in the opinion of young officials, the organization's adherence to the meritocratic principles of promotion, the clearer are the prospects of their own career. In indicators that have a positive load on the factor, the dependence of a career on the employee's relationship with the management or other significant figures is not visible, and the criterion of "connection and acquaintance" even has a negative load. Therefore, the high severity of this factor in a person is associated with the feeling that a career depends on himself - his labor efforts and abilities. The promotion criteria, included in the second factor with the most noticeable weights, are on a different plane than those listed above. These are, firstly, the demographic characteristics of a person independent of a person - gender and age, and, secondly, those types of activity that are aimed at maintaining connections with management and other significant figures in the organization. Among them: the manifestation of loyalty in relation to the management, the establishment of contacts and acquaintances, the ability to "present" oneself as a good employee, knowledge of the intricacies of the apparatus work. These are precisely the characteristics that can be categorized as “outside the business” of social capital. It is characteristic that the indicator “belonging to a team of like-minded people” is also included in this factor, although its factor load is lower than that of other social qualities that do not have a noble coloring. The general meaning of the criteria for promotion, united in this factor, is that when they are used, the main power over the career of an official is in the hands of the leadership. At the same time, it is either indivisible (when it comes to advancement according to the criteria of age and gender), or it lends itself to influence from someone who wants to advance, but the way of this influence is only personal service to the leadership. Thus, the higher the value of the factor, the stronger the conviction of the respondents that only skillful sycophants with connections, and even those who are suitable according to personal data, have a chance to move up. This factor can be conditionally called a parameter of promotion based on loyalty to the management. The obtained factors are in good agreement with two opposite forms of government - bureaucratic and patrimonial, described by M. Weber. There is, however, one curious difference. For Weber, these two opposite forms act as poles of the same parameter: with an increase in meritocracy, the role of loyalty criteria decreases, and vice versa. According to the results of the factor analysis, it turned out that there are two independent parameters: each administrative organization has its own meritocratic and its own “loyal” principles, and their values vary independently of each other. So, the respondents' answers to various questions about promotion lead to the same result: the criterion of competence is ahead of the criterion of loyalty in importance. This conclusion suggests that the promotion system serves the interests of the cause and is organized in accordance with Weber's criteria of rationality. However, considering such facts, it should be borne in mind that the selection system for promotion comes into effect after the selection system for hiring has been implemented. Recruitment in the organizations under consideration, we recall, was organized mainly on the basis of personal connections and recommendations that provide the necessary minimum of loyalty. It is possible that the presence of such a “loyalty filter” when entering a state or municipal service allows the management to have less control over the loyalty of employees in the selection processes within the organization. 2.2 Legal Basis of Career Organization
The passage of public service by employees, their professional and official promotion. The regulatory influence on it, on the one hand, is the rule of law, and on the other, a set of organizational factors aimed at implementing the requirements of the legislation on public service. Official relations in the public service are regulated by various branches of law: international, constitutional, labor, administrative, financial, etc. The fundamental ideas in the field of human rights are set forth in the Universal Declaration of Human Rights, approved by the UN General Assembly in December 1948. Among other rights, the following is stipulated. “Everyone has the right to equal access to public service in their country. Based on this document, the Supreme Soviet of the RSFSR approved the Declaration of the Rights of Man and Citizen (November 22, 1991). According to this Declaration, Russian citizens have “an equal right of access to any positions in government bodies in accordance with their professional training and without any discrimination. The requirements for a candidate for the position of a civil servant are determined only by the nature of the official duties. " The right of citizens to equal access to public service is not bypassed in the Russian Constitution. Also, the Constitution regulates the right of Russians to dispose of their abilities for work: to choose an occupation and profession, to receive education in state and municipal educational institutions. In the field of public service, the listed legal provisions are concretized in the adopted laws, decrees of the President, decrees of the Government of the Russian Federation. Among them it is necessary to highlight: the Federal Law "On the Fundamentals of the State Service of the Russian Federation" (adopted by the State Duma on July 05, 1995); Decrees of the President "On the register of civil servants" (No. 33 of January 11, 1995) and "On advanced training and retraining of federal civil servants" (of August 23, 1994). In light of the theme this work the most significant is the law “On the fundamentals of the state service of the Russian Federation”. It, among other things, reflects a career approach to public service. The decisive factor for admission to the civil service is the methods of selecting persons for public office. In the past, a system of interviews with candidates and the corresponding appointment to the position by decision of the manager was practiced. The law provides a more progressive approach to selection. It regulates the competitive system for selecting personnel for government positions. This avoids bias in assessing applicants. Russian legislation defines two types of tenders: tenders for documents and tenders based on tests. The first type is carried out to fill vacancies in senior positions, the second - for leading, main, senior positions. The competition for documents is held within the framework of state bodies, both employees of the institution where the competition is held and persons from outside have the right to participate. The testing competition is carried out by the state competition commission. It includes the passage of service in a certain public position for a certain period (for citizens who are first recruited into public service, as well as when transferring from another specialization - 3-6 months). The test allows an employee to reveal his professional qualities, to prove his suitability for the position. According to Russian law, the test ends with a qualification exam, the purpose of which is to determine professional, business, personal qualities candidate for the position. The result of the exam may be an appointment to a position belonging to one of the five groups of civil service positions in the civil service. The hierarchical structure of positions includes: junior, senior, leading, chief. Their specific names are determined for each type of service by the Register of public positions of federal civil servants (approved by the Decree of the President of the Russian Federation of September 03, 1995 No. 981). These positions are steps for employees official career... In addition, according to the results of the state qualification examination, civil servants are assigned qualification categories corresponding to certain groups of positions. This determines the passage of a professional qualifying career. The procedure for assigning qualification categories is regulated by the relevant Regulations (approved by the Decree of the President of the Russian Federation of April 22, 1996, No. 576). The criteria for the categories are: vocational education; civil service experience; seniority and work experience in the specialty; knowledge of the legal basis of activities within the framework of the position held. It provides for the possibility of passing the exam at the initiative of the employee, which is an important factor in career growth, self-realization, and professional qualifications. The promotion of employees to higher positions, as a rule, is carried out on the basis of attestation. Its procedure and conditions are established by federal laws of the constituent entities of the Russian Federation. In addition, the certification procedure is stipulated in the Regulations approved by the Decree of the President of the Russian Federation of March 09, 1996 No. 353. To carry out certification, it is necessary to create a special commission, which includes independent experts, which is necessary for a competent and objective assessment of the applicant. Based on the results of certification, the commission may submit for consideration to the head recommendations on raising an employee in his position, assigning him another qualification category, on being included in the reserve for promotion to a higher position, about material incentives... However on this moment certification cannot be considered a means of moving personnel. Survey data show that the main way of job promotion is still the sole decision of the head - 60% of the respondents. The coincidence of real progress with the conclusions of the attestation is noted by only 14% of employees. To train civil servants, the State Committee of the Russian Federation for Higher Education in 1994 introduced the specialty 061000 "State and Municipal Administration" with the assignment of a qualification - manager. The professional activity of specialists of this profile is carried out in the system of representative, judicial, executive authorities, in other state bodies. The training of such specialists began only in recent years. Training is conducted in such educational institutions as the Russian Academy of Public Administration under the President of the Russian Federation, the Academy of National Economy under the Government of the Russian Federation, the Financial Academy under the Government of the Russian Federation and some others. A state order has been introduced for retraining and advanced training of employees. The general goals and objectives of solving this problem are defined in the Federal Law "On Higher and Postgraduate Professional Education", adopted by the State Duma on July 19, 1996, and in relation to public service - in the Decree of the President of the Russian Federation of August 23, 1994. "On advanced training of civil servants" "Resolution of the Government of the Russian Federation No. 1047" On the organization of retraining and advanced training of civil servants of public authorities. " 2.3 Foreign experience
Considering the issue of career management of civil servants, one cannot ignore the experience of foreign countries. USA.
The modern civil service at the federal level began in 1883 by the Civil Service Act. This act abolished the previously practiced system of "loot", according to which the president, who won the election, could completely replace all officials. The law introduced a merit system and competitive examinations for recruitment and appointment to the vast majority of positions. In 1978, the Civil Service Reform Act was introduced. In accordance with it, the following were created: Human Resources Department, Special Adviser Department ,. Council for the Protection of the System of Merit. In addition, it was envisaged annual holding evaluating the work of employees, the Executive Service was established. In the United States, there is a detailed classification of jobs and positions, depending on the relative complexity of duties and responsibilities, to which pay rates are closely tied. The employees falling under the jurisdiction of the Office of Human Resources Management are broken down into 18 ranks. Their salary is comparable to that of the corresponding work in the private sector. For the SVR, a special procedure has been established for selection, encouragement, promotion, dismissal and retirement benefits. The recruitment of employees is carried out by the personnel management department. The department conducts examinations according to the established programs. The Board of Directors' Qualifications Review Board examines senior managers. To occupy a position of a higher grade, an employee must also pass an examination. The department is responsible for organizing training and professional development of employees. It develops methods of annual performance evaluations of employees and monitors their implementation by departments and agencies. In 1988, nearly 97% of all federal employees received a professional assessment. It is carried out by the heads of the institutions and their special councils to check the implementation. The fate of an employee's career and the amount of his remuneration depend on its results. The Executive Service Law defines two types of positions: career and general. Only career officials can be appointed to career positions, which should ensure the stability of the state apparatus and "guarantee its impartiality and people's confidence in the government." Each ministry is given a quota for career positions. On the general posts representatives of other professional groups... One of the most important features of the SVR is its flexible nature. Having passed the qualification procedures for selection and winning the competition, a civil servant gets the opportunity to occupy various positions within the SVR, regardless of his initial position, as a result of which this system has no official boundaries. In 1989, a law was passed, according to which all career officials are required to pass certification. In this regard, the handbook for members of the SVR says: “Certification aims to improve the performance of career members of the SVR, including by encouraging their creative development and with the aim of helping those leaders who experience certain difficulties, but have the potential to achieve good results ". France.
The organization of the French civil service combines a recruitment system (“open public service”) and a career system (“closed public service”). Accordingly, employees are divided into two groups: employees who are not officials who work in government agencies for hire; civil servants who constantly work in the civil service system, constituting its backbone. An official is a person appointed to a permanent position, included in a certain corps of civil servants and received a certain rank in the hierarchy of administrative bodies, services, institutions of the state. The corps brings together officials doing the same job (teachers, treasury inspectors, civil administrators, etc.). Upon entering the corps, an official can remain in it for his entire professional life. Each official is assigned a rank. A rank is a title that gives the holder the right to hold specific positions. Each corps consists of many ranks, which in turn are subdivided into tiers. Despite the interdependence of ranks and positions, complete overlap between them is not necessary. The career of an official usually takes place within the corps by promotion in a step, rank or position. Ranking is determined by the results of competitive exams and continuing education. The promotion in rank depends on the length of service and certification. Certification is also a prerequisite for promotion. To transfer to a higher category, either the decision of the management or the passage of the competition is required. Competition is usually required for transfer to another corpus. Care for the careers of civil servants in France begins already at the stage of training. The training system includes a number of special educational institutions. The most important of these - the National School of Administration (ENA) - prepares civil servants of the highest category. The graduation of the ENA opens the way to the highest administrative positions. The educational process lasts more than two years and is designed for active teaching methods (work with documents, seminars, contacts with specialists, etc.). Tuition is paid. Disciplines are studied in the following areas: jurisprudence, administrative law, budget and taxes, economics, public administration, foreign languages... School graduates are provided with places in the administration, taking into account the results of their studies. Japan.
In terms of the number of civil servants, Japan is significantly inferior to the countries of Western Europe and the United States, which is associated with the relatively small size of the public sector in the country. The Japanese civil service, depending on the nature of the work, is divided into two main groups: "ordinary service" - the bulk of officials; and "special service" - a small number of the uppermost layer of officials of the state apparatus. The appointment to the civil service is carried out on the basis of entrance examinations, which are held on the principle of "open doors" with information about the time and place of their holding in the media. A similar system was introduced in Japan at the end of the 19th century and has remained practically unchanged to this day. Promotions also go through competitive exams. Japanese laws formally give every person who enrolled in administrative service, equal eligibility for promotion. The Personnel Council (the oversight body under the Cabinet of Ministers) annually holds competitive examinations for promotion of “regular service” employees in the summer, in which any person in lower positions can participate. However, there are a number of restrictive conditions that apply to candidates for leadership positions. The main condition is the educational qualification. The existing procedures exclude the possibility of appointing to the posts of heads of departments, departments of persons without higher education. Moreover, passing the exams does not automatically mean an appointment. As a rule, a minimum of a six-month trial period is required, after which, if the results are positive, the appointment takes place. The official position of officials is determined by the positions they hold in accordance with their ranks, length of service and other circumstances. The size of salary, strictly regulated by a special scale, depends on the position that determines the scope of authority. According to it, all officials are divided into eight ranks. Each rank, in turn, is divided into 15 ranks. The rank depends on the position held in the state apparatus, and the rank depends on the length of service, education, and service characteristics. The Japanese public service has a specific system of "lifetime employment" (which is typical for most institutions and enterprises in the country). This system assumes long-term (up to retirement) employment of an employee in one organization. His position and salary directly depend on the length of uninterrupted service. This system assumes the practical absence of interdepartmental movements of officials and frequent (every 2-3 years) movements within the department, which can be considered the main distinguishing features of the Japanese civil service. A specific feature is the "cult" of education. Higher education provides officials with a number of benefits. For example, if persons with a secondary or secondary technical education are enrolled in the 2nd grade of the 8th rank upon entering the service, then university graduates immediately receive the 1st grade of the 7th rank. In the future, university graduates also receive a number of privileges and benefits for promotion in ranks and ranks. The "rank" of the university is also important. Conclusion
In this work, we proceeded from the assumption that the effectiveness of officials' activities depends on the degree to which their characteristics correspond to the ideal type of bureaucracy described by M. Weber. The aim of the work was to assess the extent to which the practice of recruiting and promoting Russian officials in the executive branch is consistent with Weber's ideas about an ideal bureaucracy. It is shown that the recruitment of young officials, as a rule, is not based on procedures that ensure the selection of candidates based on their competence. The selection of applicants is carried out on the basis of personal connections and recommendations, exams and tests, special contests are rarely practiced. At the same time, studies carried out in other countries indicate that it is precisely the meritocracy of selection for the civil service that most strongly contributes to the effectiveness of bureaucracy. Apparently, the weakness of this link in the organization of the Russian civil service deserves special attention and priority response within the framework of the administrative reform. When analyzing the perceptions of the respondents about the promotion processes, it turned out that the possible horizon of their career in the civil service is rather short. More than two-thirds of the respondents, who note some opportunities for promotion for themselves and their colleagues, believe that the "ceiling" of this promotion is located quite low. Nevertheless, about a third of the respondents believe that a young person "in rare cases can count on more - to reach the highest positions in the organization." This indicates that among the respondents there is a group of young officials with a strong orientation towards vertical social mobility, supported by confidence in their own career prospects. An analysis of the opinions of officials on the criteria for hierarchical promotion showed that, most often, promotion in a position is influenced by the business qualities that are required for a new position and its development. This conclusion contradicts our initial assumptions that loyalty criteria will lead, the meaning of which is the opposite and lies in the employee's belonging to an informal association of officials - a management team and, accordingly, the ability to "fit" into such a team and remain loyal to its members. However, the criteria of loyalty in terms of the frequency of mentions are still not much behind the actual business qualities ... In addition, it should be taken into account that the selection system for promotion comes into effect after the selection system for hiring has been implemented. Since hiring in the organizations under consideration was based on personal connections and recommendations that provide the necessary minimum of loyalty, it is possible that the presence of such a filter when entering the state, municipal service allows the management to control less employee loyalty in the selection process and promotion within the organization. The factor analysis of the respondents' perceptions of the promotion criteria showed the presence of two independent factors, the first of which characterizes meritocratic promotion, and the second - promotion based on loyalty to the management. These factors correspond well to two opposite forms of government - bureaucratic and patrimonial, as described by M. Weber. True, for Weber, these two opposite forms act as poles of the same parameter. Factor analysis presents them as two independent parameters: each administrative organization has its own meritocratic and its own "loyalty" principles, and they vary independently of each other. An official can count on a predictable long-term career only if the promotion is based on the assessment of his business merits and cannot build similar expectations, if his career depends on the whims of his bosses and the need to adapt to them. Regression analysis shows that officials' assessment of the promotion process as meritocratic negatively affects their desire to leave the organization, and the belief that career depends on loyalty is positively related to this desire. The meritocratic nature of the promotion process is also positively associated with the earnings of officials, thereby restraining the processes of negative selection. The imperfection of career organization mechanisms, coupled with other inconsistencies of the Russian bureaucracy with the Weber ideal type, stimulate a significant part of state and municipal officials to actively search for alternative employment opportunities against the background of a weak commitment to the state or municipal service in general. The consequences of this are manifold: significant losses of specific human capital acquired in this area, accumulation in the executive branch of workers who are the least competitive in the labor market, creation of favorable conditions for corruption, and a decrease in the efficiency of the entire state apparatus. List of sources and literature used
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Art. 2066 .On the state civil service of the Russian Federation: Federal Law of July 27, 2004 N 79-FZ (as amended on November 29, 2010) // Collected Legislation of the Russian Federation, 2004, No. 49, Article 6411 .On higher and postgraduate professional education: Federal Law of August 22, 1996 N 125-FZ (as amended on 07/27/2010) // Official website of the "Consultant Plus" company. # "justify">. On the Register of Positions of the Federal State Civil Service: Decree of the President of the Russian Federation of December 31, 2005 No. 1574 (as amended on 01.08.2007) // Collected Legislation of the Russian Federation. - 2006. - No. 1. - Art. 118 .On the approval of the general principles of official conduct of civil servants: Decree of the President of the Russian Federation of August 12, 2002 No. 885 (ed. Of 20.03.2007) // Collected Legislation of the Russian Federation. - 2002. - No. 33. - Art. 3196 .Afanasyev MN Clientelism and Russian Statehood: A Study of Clientele Relations, Their Role in the Evolution and Decline of Past Forms of Russian Statehood, Their Impact on Political Institutions and the Activities of Ruling Groups in Contemporary Russia. 2nd ed., Add. M. Moscow Public Science Foundation. 2000.317 s. .Atamanchuk, G.V. The essence of public service: history, theory, law, practice / G.V. Atamanchuk. - M .: Publishing house of RAGS, 2003.- 272 p. .Vinogradova E., Kirichenko O., Kudyukin P. State and municipal service: what the future reform will face. Results of a pilot sociological survey. Moscow: Carnegie Moscow Center, 2000, 250 p. .Gimpelson V.E. The number and composition of the Russian bureaucracy: between the Soviet nomenklatura and the state service of civil society // Problems of Economics. 2002. No. 11. S. 13-16. .Public service (integrated approach): Tutorial for universities / Ed. A.V. Obolonsky. M .: Delo, 1999.S. 356. .Public administration and public service abroad // Course of lectures. Moscow: Ed. SZAGS, 1998, C272. .Kinev, A. Yu. State Civil Service of the Russian Federation: Legislative. base, documents, comments / A. Yu. Kinev. - M .: Omega-L, 2007 .-- 151 p. .Kazachenkova, O. V. Conflict of interests in the state civil service / O. V. Kazachenkova // Journal of Russian law. - 2006.- No. 3.- S. 78-83. .Magun V.S., Brim R., Gimpelson V.E., Morozkov S.V., Chirikova A.E. Young professionals in the Russian state and municipal service. Scientific report on the results of the study of regional and city administrations. Moscow: IS RAS, 2003.S. 162. .Monusova G.A. How they become officials and get promoted // Social sciences and modernity. 2004. No. 3. S. 61-70. .Manning N., Parrison N. Public administration reform. International experience. M .: Ves mir, 2003.S. 495. .Obolonsky A.V. Bureaucracy for the 21st century? Civil service models: Russia, USA, England, Australia. M .: Delo, 2002.S. 168. .Osborne D., Plastrick P. Management without bureaucrats. Five strategies for the renewal of the state: Per. from English / Ed. L.I. Lopatnikov. M .: Progress, 2001.S. 536. .Public Administration Reform in Russia: Working Papers of the Center for Public Administration Problems of the State University - Higher School of Economics. Issue 1.M .: GU HSE, 2002.S. 239. .The system of state power and administration in Russia: history, traditions and modernity: materials of the annual International conference. scientific. forum / ed. V. A. Shamakhova. SPb .: Education-Culture, 2003. - P. 684. .Chirikova A.E. Executive power in the regions: formal and informal rules of the game // Social sciences and modernity. 2004. No. 3. S. 71-80. .Factors of the professional career of a Russian official: traditions and modernity. URL: http://region86.ugrariu.ru/ (date of access 07.12.2010). Students, graduate students, young scientists who use the knowledge base in their studies and work will be very grateful to you. Theoretical foundations, concept and essence, foundations of typology and types of career. Mechanisms of career movements and stages of career growth. Features of the formation and management of the career of a civil servant, the motives of career growth. term paper, added 03/02/2011 Career organization of state and municipal employees in the context of administrative reform, personnel technologies of career management. Study of the career potential of employees. Certification of municipal employees in self-government bodies. thesis, added 09/08/2013 Improving the process of managing the career of managers in production organization... Strong and weaknesses management mechanism business career... Starting conditions for a career, the influence of family and environment. Motives and value orientations of managers. thesis, added 01/08/2010 Methods and ways of career motivation, advanced management experience. Characteristics of the enterprise OJSC "RUSAL", personnel assessment. Indicators of the movement of labor resources. The structure of the wage fund. Development of an integrated system for career growth at the enterprise. term paper, added 12/08/2013 The need to form a business career management system in an organization, indicators for assessing its effectiveness. Personnel development, career planning and business activity of employees. Career stages. Professional status of a woman. abstract, added 12/04/2009 Career: concepts and stages. Features of career development of personnel abroad. Characteristics and analysis of the career management of the employees of Mebel - City LLC. Methodological recommendations for the diagnosis and implementation of the career development of employees. term paper added on 04/02/2012 The concept of a career, its types (professional and intra-organizational) and stages. Career management of civil servants on the example of the administrative district council. Analysis of existing job categories. Certification as a stage of promotion career ladder. An equally important link in the system of selection and placement of personnel in the civil service, along with the mechanism of admission to the civil service, is the planning and management of the career of a civil servant. It is a question of choosing the direction in which one should focus one's efforts, taking into account professional training, individual experience, strengths and weaknesses of personal qualities, as well as the possibilities of their implementation1. According to V. V. Cherepanov, a prominent researcher of the problems of the development of the institute of civil service, although the term "career" is not of a legal nature, it is nevertheless widely used and interpreted in scientific and practical terms. Career is the successful advancement of a person in a particular field of activity; achievement of fame, fame, benefit. The career of a person, including an employee, is usually understood in a broad and narrow sense of the word. In the broadest sense of the career - active promotion a person in the development and improvement of his way of life, ensuring his stability in the flow of social life. We also add that this includes professional growth, the stages of an employee's ascent to professionalism, the transition from one professional levels and positions to others. In the narrow sense of the term, career is job promotion, achievement of a certain official and social status in professional activity, occupation of a certain position. A career in this case is a path of official advancement, consciously chosen and implemented by an employee, a striving for the intended status - official, qualification, social, which ensures the professional and social self-affirmation of the individual. Most often, it is positioned as the dynamics of the official, legal and socio-economic position (status) of an individual. There is the concept of "careerism". How to treat him? Healthy should definitely be encouraged. But perverse careerism turns into its opposite. This is an immoral quality that characterizes the behavior and personality of a person who subordinates all his professional and personal activities only to the goal of promotion. The careerist is ambitious and ready at any cost to fulfill the instructions of his superiors in order to improve his official position. He is selfish; in fact, he is characterized by indifference to the fate of the people around him and the interests of the service. Law No. 79-FZ allocates priority directions formation of personnel of the state civil service: In career planning, a number of formalized procedures can be applied, taking into account modern trends in organizational development and the requirements of management science. At the heart of the career planning program is the desire to align the needs of a government agency with the interests (professional and personal) of government officials. For a government agency, the calculation is more high level return to civil servants interested in their careers, i.e. in the opportunity to achieve a certain official position (vertical development) or more meaningful, varied, better meeting professional interests (horizontal development). One of the most important factors for a leader is responsibility for the development of subordinates, as well as for planning their career. The initiative can come from the leader or from the subordinate. But the leader must encourage subordinates to strive for career development and to develop individual career plans, although participation in them is voluntary. He also has the right to approve or reject them, to introduce the necessary, in his opinion, adjustments to the career plans of a civil servant. This influence is realized through the discussion of proposals made by civil servants, which are recommended to be carried out in a rather mild and frank form, acting by persuasion, not coercion. When planning a manager's career, it is necessary to maintain a balance between assessments of contribution to the achievement of goals and to the development of subordinates. The mechanism for identifying candidates from various structural divisions of the organization is of great importance. In Western practice, they are usually used in parallel: At the same time, as a rule, they strive to have a large selection of candidates. In this case, there are guarantees against errors. So, before hiring a manager top echelon, management conducts extensive training in several areas - sources of personnel. First of all, a group of promising candidates is selected in the structural unit in which it is planned to replace the head. The second group of candidates is selected personnel service on the basis of checking the compliance of these employees with the requirements for the position of a manager structural unit(primarily by the nature of previous work experience). Finally, a group of outside candidates can be selected (for each source, about 5-10 people) It's time to resume the principle of personnel rotation: from federal center to send civil servants to the regions, and from the regions to nominate to federal bodies, so that, firstly, regional cadres have an incentive to advance to a position in Moscow, and secondly, so that young promising cadres from the federal center can be appointed to leading positions in subjects P Introduction 3 1. Theoretical and legal foundations of career development of civil servants 5 1.1 The essence of career development of civil servants 5 1.2 Principles of career management for civil servants 9 1.3 Legal framework for career management of civil servants 13 2. Features of the organization of promotion of civil servants 16 2.1 System vocational education and development of civil servants 16 2.2 Assessment and development challenges professional competencies civil servants 21 2.3 Prospects for the promotion of civil servants in the civil service 26 Conclusion 30 Bibliography 32 Introduction Relevance of the research topic. In the current unstable political and economic situation, the professionalism of civil servants determines the effectiveness of government administration. The relevance of economic investment in labor capital, the creation of the most effective conditions for the use of all the capabilities and abilities of the individual, through the development of professional competencies and increasing labor activity are the requirements of a new era of personnel management. The formation of a highly professional and competent civil service is one of the strategic tasks of modern public administration, the most important condition successful implementation reforms, sustainable development of Russian society. The effectiveness and efficiency of the entire system of public administration depends on the professionalism and competence of the personnel of public authorities. Any idea, any management decision taken is preceded by a contingent of civil servants. However, the issues of forming the professional competence of employees in the field of state and municipal administration still remain to some extent on the periphery of scientific discourse, they are not sufficiently developed practical advice on the development of personal and professional skills and abilities of modern civil servants. Thus, the problem of organizing the professional development of civil servants requires the introduction of a competence-based approach into traditional assessment technologies and the creation of organizational structures - centers for assessment and professional development of employees. The object of the research is the professional development of civil servants. The subject of the research is career opportunities for civil servants. The purpose of the course work is to consider the process of managing the career development of civil servants and offer prospects for the promotion of civil servants. As a result of this goal, it is necessary to solve the following tasks: Consider the essence of the career development of civil servants; Study the basic principles of managing the career development of civil servants; Consider the legal framework for managing the professional development of civil servants; Study the system of professional education and development of civil servants; Consider the problems of assessing and developing the professional competencies of civil servants; Offer prospects for the promotion of civil servants in the civil service. Research methods in the course work are: method of scientific literature, method system analysis and operations research, statistical method, generalization method. The theoretical basis for writing a term paper was the following: regulatory legal acts, statistical materials, works of leading domestic authors, articles published in periodicals The structure of the work is determined in accordance with the goals and objectives of the study. In structure, the work consists of an introduction, two chapters, six paragraphs, a conclusion, a bibliography. 1. Theoretical and legal foundations of career development of civil servants The essence of career development for civil servants Control by human resourses is one of the most important areas of activity and belongs to the main criterion of success, even outstripping the improvement of the technical process. It is possible to have excellent technology, but also unqualified employees, and as a result the work will be ruined. Hence, a key ingredient in HR technology is business career management. It can also be argued that building a career is one of the strongest motivational factors in a person's work. The career of civil servants is one of the most promising and poorly studied forms of career management. The opportunity for career growth in the modern world is one of the most important motivating factors for young people, an indicator of a person's success. It should be borne in mind that building a career in government organizations depends on a number of factors: The ability to combine responsibilities; Concentration of power; Systematic manifestation of their capabilities in various situations; fast adaptability to changing conditions; Good relationship with superiors; The presence of connections. During the period of reforms, there is an urgent need to attract young, talented specialists to government organizations. But in reality, the situation is the opposite: on the one hand, state organizations are interested in the fact that only the best, motivated personnel come to work and build their careers, on the other hand, there is no way to provide them with an understandable perspective for further development and career growth. Therefore, the study of the factors and problems associated with career opportunities in government organizations are integral elements that will allow you to develop certain recommendations, improve work, and help increase efficiency. According to the results of numerous studies, the possibility of building a career is one of the main motivating factors for a young civil servant, in addition, a career is a kind of indicator of a person's success in the modern world. The classic view of a vertical, intra-organizational career is described as the gradual alternation of various stages associated with the age of the employee, such as arrangement, rotation, stabilization and exit. According to this theory, career success is characterized by the size wages or moving up the hierarchy of the organization. E. Shane considered career as a result of interaction between an individual and an organization, where the so-called "career anchors" are decisive in career development. These are the individual's perceptions of himself and the basic life values that come from previous experience and become relatively stable during subsequent life. These include the desire for independence, stability, "managerial" anchor. In 1996, E. Shane added to this list a new anchor - "lifestyle", which is associated with a person's striving for balance between work and family, as another possible manifestation of building a career. Through career anchors for each individual, it is possible to determine the criteria for career success: through a combination of a career anchor and career development, a person can achieve personal success. D. Hall's views were the next step. He considered a professional career from the point of view of its perception by an individual during his activity in an organization. They were offered 4 criteria for determining the success of a business career. The most common is financial and / or hierarchical success. The next criterion is the personal perception and assessment of the career by the employee himself. The other two are career identity and career adaptability. The emergence of this theory changed the perception of career, as soon as the vertical movement up the career ladder, adding to this the sum of the personal views and attitudes of the individual to his career. It is not only the advancement of the career ladder that becomes important, but the assessment of the career. D. Hall also notes that when assessing the success of a career for an individual, it is important both his personal opinion and the perception of his career by others. It can be concluded that all scientists have tried to solve the problem of moving a person up the career ladder within the organization, thus forming a "model of vocation development." Today, there are many approaches to understanding a career, dividing it into types based on certain characteristics. In a variety of dictionaries, you can find different definitions of the concept of career: for example - successful promotion in the field of social, service, scientific, etc. activities or running, life path, field. And also promotion in any field of activity, achievement of fame, fame, benefits, designation of an occupation, profession. As for the scientific literature, it should be noted that there is still no single approach to the definition of the concept of "career". Numerous researchers distinguish two general types of careers: Professional career; Intra-organizational (official) career. A professional career is characterized by the fact that a particular employee, in the course of his professional activity, goes through different stages of development: training, employment, professional growth, support of individual abilities, and finally, retirement. A specific employee can go through these stages sequentially in different organizations. Along with a professional career, an intra-organizational career should be distinguished. It covers the successive change in the stages of an employee's development within the same organization. Intra-organizational career is realized in three main directions. The career of civil servants includes the following features: It covers all the listed types of the career process, and includes all the properties inherent in a career in general. It can be expressed both in the promotion of the service along the hierarchy levels, and in the improvement of its professionalism when the employees move along the functional links. organizational structure; The profession itself is "civil servant" or "municipal employee", meaning the type of leader focused on working in the conditions market economy, is a complex formation. To master it, it is necessary to have the most highly organized of personal qualities and abilities, to possess the most complex of practical skills, and all this has a great influence on the characteristics of a career in this professional activity; Being an important figure in the organization, serving with his professional growth largely determines the growth of the organization as a whole, and the characteristics of the organization are largely interdependent on the characteristics of the employee's personality, which also leaves a strong imprint on the nature of the career. As agents in the life of programs to achieve the goals of the organization, responsible for the success of their implementation, state and municipal employees, in fact, personify the organization itself, being the bearers of its culture and image; A state or municipal employee, to a greater or lesser extent (it all depends on his position in the hierarchy) is both the creator and the consumer of the career movement system. He creates a social context, the meaning of work within the organization and for subordinates and for himself. Thus, the career of a state and municipal employee as a subject of research is a complex, complex, multidimensional phenomenon, and for its fullest, adequate study, it is necessary to rely on the listed principles, rules and requirements for the implementation of career research in general, taking into account the characteristics of the career of employees in particular Career is one of the most important social mechanisms of implementation Federal law about the state civil service of Russia. At the same time, career support should be carried out in accordance with the interests of both a civil servant and the state as a whole. Similar information.Send your good work in the knowledge base is simple. Use the form below
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