Quality management in public administration. Application of quality management systems in local governments. QMS in the state structure: works or not

Manage should be the one who knows how to manage and for what to manage.
F.W. Taylor.

As Russia joins world economy, the development of market institutions, the strengthening of economic and political competition, the behavior of the elements of the management environment changes dramatically. A dynamic, uncertain external environment enhances the dependence of the achievement of the development goals of the municipality on the conditions and action of the factors of this environment. What entails a change in the behavior of elements of the management environment, an increase in the ability of local governments to carry out strategic management and partnership with government bodies and city-forming enterprises.

Modern management provides an opportunity to significantly improve the efficiency of municipal management. For this, organizations in both the commercial and municipal sectors are applying new management methods.

The requirements for the development of the municipal formation lead to the fact that many principles and methods, means and forms of modern management, which have shown their effectiveness in the commercial sector, are gradually transferred into the practice of municipal management under the general concept of "municipal management". As a result, the differences between the management of commercial and municipal organizations are narrowing. Now all over the world there is a change in the management model, both in public administration and in regional and municipal ones. These changes follow the changes in the management of the commercial sector.

One of the new technologies of modern management, which is being successfully applied in municipal management, is quality management. Currently, there is a process of combining quality management with the principles of general management in the activities of non-profit institutions and organizations, which include municipal ones. A new fourth generation management is taking shape, which is aimed at the quality of products (services) and the quality of management.

The level of competence of municipal employees in modern management, their ability to actively, consistently and responsibly implement quality management in practice, determines the degree of achievement of the goal of socio-economic development of the municipality: improving the level and quality of life of each resident, socio-economic development of the municipality and the region as a whole ...

By the end of the eighties, the processes of release and control of quality products acquire the property of a system, and quality management begins to widely use management tools of general management, the concepts of TQM (Total Quality Management), MBO (Management by Objectives) and MBQ appear. (Management by Quality - management based on quality).

But quality metrics don't just apply to a product or service. The international standard gives a broader concept - the object of quality. The quality object can be:

1. activity or process;
2. product (result of an activity or process);
3. organization, system or individual;
4. any combination of them.

The produced product, in turn, can be presented both in tangible and intangible form, as well as a combination of them. Quality is a set of characteristics of an object that show its ability to satisfy certain needs.

Currently, the most common and effective quality model is Total Quality Management ( Total Quality Manadement - TQM).

TQM is a comprehensive system focused on continuous improvement of the quality of the entire organization, minimizing costs. The main ideology of this system is the principle - "continuous quality improvement", ie there is no limit to quality improvement.

Compared to the traditional quality control system, TQM shifts the emphasis from result control to process control. To strengthen quality control, it is not necessary to increase the number of inspections or to expand the staff of inspectors. The quality management system leads to the fact that everyone can check and evaluate the work of anyone. Quality must be embedded in the product, and from the first stages of its conceptual development. Professor Joseph M. Juran has proved that only 15-20% of product quality problems arise through the fault of the direct executors, and 80-85% - through the fault of management systems, the responsibility for the functioning of which is borne by the top management. Solving these problems requires targeted adjustments, not “fire measures”. Product quality is formed in the course of all activities of the organization and can be ensured only if all personnel participate with the necessary measure of responsibility.

TQM, as a technology, is a fundamentally new approach to managing any organization. TQM's capabilities are much broader than simply ensuring the quality of a product or service. This management technology is based on the participation of all personnel of the organization in this process and is aimed at achieving the long-term success of the organization through meeting the needs and benefits of both the members of this organization and the whole society.

This quality system - TQM, is based on the following basic principles formulated by W. Edwards Deming, one of the founders of the "Japanese economic miracle", which for regional and municipal government looks like this:

1. Observe the constancy of purpose. Make processes for improving the quality of goods or services a permanent goal. At the same time, it is necessary to ensure: rational allocation of resources, satisfaction of long-term needs, competitiveness, business growth, employment and the creation of new jobs.

2. Adopt a new philosophy - rejection of low quality in everything. It is necessary to change the management style to improve the efficiency of the regional and municipal economy; constantly improve the quality of all systems, processes of activity within the regional and municipal administrations.

3. Abandonment of ubiquitous control. Quality cannot depend on inspection. Mass inspections must be eliminated as a way to achieve quality. Achieving this goal is only possible if quality issues come first at all levels of management.

4. Refusal from partnerships based only on product prices. It is necessary to stop the practice of providing regional and municipal orders based on low prices. When concluding contracts, it is necessary to measure the quality against the price (the price does not matter if it is not compared with the quality of the purchased products).

5. Improve the management system constantly. Constant and continuous improvement of the system, provides for the prompt solution of emerging problems, continuous improvement of the quality of goods and services, and increased productivity. The result of improving the system is a constant reduction in the cost of resources, plans and projects, training and retraining of personnel.

6. Practice mentoring and teaching. Staff must be trained in best practices and practices in the workplace. In this case, it is necessary to use active teaching methods. The leader should become the main mentor and teacher for subordinates.

7. Introduce modern management methods. Management functions should shift from controlling quantitative indicators to qualitative ones. It also refers to management with the aim of assisting personnel in solving assigned tasks, i.e. it implies the ability of managers to establish two-way communication between the leader and subordinates to increase the efficiency and productivity of their work.

8. Eliminate fear. Encourage employees to speak openly. The personnel of the organization should not be afraid of changes, they should strive for them.

9. Eliminate barriers between departments and employees of the organization. Professional and qualification barriers should not serve as a basis for dividing the team into separate groups. The organization's people must act as a team. Only then can the continuous quality assurance process be implemented.

10. Refusal from slogans, banners and instructions for workers. Empty slogans are effective only for a short period of time. The low quality of work exists not because the staff is not able to work well, but because the existing system in the organization has not provided them with high-quality conditions for professional activity for a long time.

11. Refusal from quantitative assessments of work. Exclude digital parameters for operation control. It is necessary that the old system of accounting for the contribution to overall results be replaced by a system that ensures the growth of quality and productivity in a team working as a single team.

12. Maintain a sense of professional pride in employees. It is necessary to give the staff the opportunity to be proud of belonging to a particular organization. It is difficult to have a sense of pride in your work if the products or services you produce are not in good standing and in demand.

13. Introduce a continuous system of education and self-improvement of personnel. Further training and self-improvement should be encouraged. An independent process of climbing to the top of professional excellence, and, accordingly, an employee's career should be determined by his competence, level of knowledge and skills.

14. A clear commitment of the management of the organization to the idea of ​​quality. It is necessary to involve each specialist in the work of transforming the organization. A strong management conviction in the process of achieving quality is one of the main conditions for success. Management should act and not be limited to just declaring quality and performance improvement processes.

Overall quality management is carried out using a quality system. A quality system is a collection of structures and procedures, processes and resources required to implement quality management. General quality management includes the following concepts of "quality management" and "quality assurance, improvement", "quality policy" and "quality planning".

One of the key features of the quality system is the use of collective forms and methods of searching, analyzing and solving problems, the constant participation of the entire team in improving quality (in the so-called quality circles).

TQM technology is still poorly applied at the federal, regional and local levels, which can hardly be considered positive, given the ineffectiveness of governance in Russia. An official in Russia is a bureaucrat at its worst. In fact, this is the same "extreme" or "switchman" on which the nationwide search for a "scapegoat" converges. Practically no one who is looking for an extreme in the person of a state or municipal official, when they are not satisfied with the quality of the service provided by the authorities, does this on the basis of a deep analysis of the causes and processes taking place in public administration. At the same time, in almost all sectors of the economy, consumers clearly react to the poor quality of goods or services more and more critically. The shortcomings in state and municipal administration are systemic, and reasonable demands on the part of the population for the quality of services oblige the authorities to take responsibility for correcting them, as is done abroad.

For example, municipal services in developed countries have undergone fundamental changes in recent years. Here the process of perception of new management technologies takes place, employees of institutions are concerned about reducing costs, increasing efficiency, they began to take into account changes in the external environment and the changing demands of consumers of services of municipal structures. The emphasis is on group work and methods of collective management decision making.

Currently, the theory and practical methods of TQM are widely used in the federal executive structures of the USA, Japan and other developed countries. Moreover, some governments and local authorities have begun to use quality management methods as a way to increase efficiency and reduce costs in the face of budget cuts. According to Professor Michael E. Mailakovich, currently TQM in the United States has the status of an official system for improving management in all federal executive bodies.

New technologies of modern management are especially vividly manifested in those areas where changes in the socio-economic situation (globalization, informatization, etc.) force us to constantly seek optimal solutions to newly emerging problems. In Russia, this tendency is reinforced by the fact that the system of state and municipal administration as a whole is being transformed from command-administrative methods to economic and socio-psychological ones.

Privatization reduces the monopoly of municipal institutions in the provision of services to the population and business. This is especially evident in municipal services: organizations that provide municipal services are privatized; this applies to the construction and operation of housing, garbage collection and road construction, the provision of transport and communication services, and other types of municipal services.

In this regard, the traditional bureaucratic management system is gradually replaced by a new one, in which market elements begin to dominate. In such a system, a resident is viewed as a client and consumer of municipal services. The openness of municipal institutions is actively combined with a consumer orientation. A resident is considered here as a consumer of services provided by municipal institutions and organizations, and in this regard, all their activities are considered through the degree of satisfaction of their needs. The source of success for a municipal enterprise or organization is the performance of additional functions and the introduction of new types of services that improve the result.

Professor of the Civil Registry Office Gaponenko A.L. argues that the modern concept of regional and municipal government, implemented in a number of Western countries, represents each citizen as a client. This concept has some limitations, since it narrows the functions of a citizen - a participant in a social partnership to a client - a participant only in a market relationship. But this concept, focused on achieving a fuller satisfaction of people's needs, has already proven its feasibility and effectiveness. In 1991, the UK published the Citizen's Charter, which includes many indicators and indicators of the quality of the performance by local governments of their functions of serving clients, that is, citizens. When used in the context of a new model of regional and municipal government, the charter provides a framework for building appropriate service standards and for evaluating local government performance. These indicators formed the basis for competitions among local authorities and institutions. social sphere in the process of which awards in the field of quality of local government are awarded by independent commissions

The practice of the activities of local governments in European states shows that the adoption of such a Charter provides a criterion for assessing the activities of all institutions at the local level.

The charter is no longer just a declaration of the rights and obligations of a citizen and the state, but also a list of the necessary properties and qualities of services provided to every citizen. This is precisely the direction the Charter of the British Citizen has, built not so much on the descriptions of the citizen-state relationship as on the disclosure of the supplier-client relationship.

IN foreign experience one of the quality management tools is used to increase the efficiency of using budget funds. This is the concept of Value for money, implemented in the activities of municipal organizations in the UK and other countries. This concept has become a key in all government and municipal organizations in the UK in increasing the productivity of their work. The content of Value for money lies in the fact that when using budget funds, a comparison of the amount of funds spent and the resulting beneficial effect occurs. It turns out that Value for money is a kind of concept for increasing the efficiency of spending budget funds. It is used not only in budgetary organizations, but also in commercial organizations, being implemented in such processes as business process reengineering and benchmarking.

The implementation of quality management systems in state and municipal government organizations is extremely widespread in European practice. In 1998, the European Union decided to launch an initiative to improve the quality of governance based on best practices (benchmarking). During the last 5 years state organizations gradually switched to this method of evaluating their services. A European network of best practice assessment has been formed and is effectively operating, providing a free exchange of best management experience across all EU member states. The construction of a similar quality management system is laid down and implemented in the Concept of the reform of the Latvian civil service, adopted in March 1995.

Benchmarking should be seen as a tool for overall quality management. This tool has been used with success in many organizations. Benchmarking focuses on quality management standards and, above all, the ISO 9000 series standards. The quality of the services provided becomes the main focus in the work of municipal authorities and regional authorities. Taking into account the practice of quality management in commercial organizations, the achievement of quality here is based on the relevant standards, and the quality assessment presupposes an external audit procedure (by independent audit companies). One of the possible approaches to the use of benchmarking is participation in various ratings (by type of educational institutions) and assessments of the quality of management systems. Assessment of the quality of municipal governance, carried out by independent commissions or public organizations and received public recognition, contributes to the improvement of the quality of governance of the relevant regional and municipal authorities. Any public assessments, ratings and public competitions make the process of regional and municipal governance more transparent and efficient. In this regard, at the first stages of using benchmarking in the domestic practice of regional and municipal government, it is necessary to organize various competitions and ratings of regional and municipal government bodies, as well as assess the efficiency of resource use.

Municipal institutions in many developed countries are being transformed in order to improve their efficiency, provide a higher level of service and transparency in their activities, giving us a good example to follow.

In general, the implementation of quality management at the municipal level not only increases the efficiency of municipal management, but also serves as an obstacle to corruption and bureaucracy.

Vasiliev A.A., Associate Professor, Department of Regional Economics and Management, VVAGS

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Maslov D.V., Candidate of Economic Sciences, Associate Professor of the Department of Management and Marketing, Ivanovo Power Engineering University.

Russian society expects from the civil service effective and responsible management aimed at meeting its needs as a whole and each citizen individually. An effective civil service must ensure that the leadership of the state is trained and fulfilled. political decisions... Achievement of the listed goals largely depends on the existing state of the state apparatus, its competence and readiness to solve current and strategic tasks, and the availability of a mechanism for assessing the level of maturity of the public administration system and diagnosing the activities of state authorities is a prerequisite for the effective organization of the state.

The article presents a system for assessing the effectiveness of the apparatus of state authorities and local self-government "Effective Public Service" (EPUS), developed to facilitate the implementation of administrative reform in the Russian Federation, increase the efficiency of the public service at all levels and improve the quality of public services provided to the population by the apparatus. bodies of state power and local self-government.

1. Review of methods for assessing the quality of public administration

Indicators of the quality and efficiency of public administration<1>have been the subject of numerous discussions in Europe and the world over the past decade. From 1996 to the present, the generally accepted integral indicator of public administration GRICS, which was developed by the World Bank Institute (D. Kaufman et al.<2>) and includes six indices reflecting the key parameters of public administration:

<1>The review draws on materials from the World Bank: Relationship between Administrative Reform and Economic Growth. Review of Research Methods and Results / Department of Economic Management and Poverty Reduction. World Bank, February 2005;

Integral Indicators of the Effectiveness of Public Administration Reform: Reference Materials for the Ministry of Economic Development of Russia / Donor Secretariat for Civil Service Reform in Russia, UK Department for International Development. World Bank, July 2004

<2>Kaufmann D., Kraay A., Mastruzzi M. Governance Matters IV: Governance Indicators for 1996 - 2004. The World Bank, May 2005.

1. Voice and public accountability (government readiness for external accountability through citizen feedback mechanisms, democratic institutions and a competitive press).
2. Political stability and absence of violence, crime and terrorism.
3. The effectiveness of public administration (including the quality of the policy-making process, the level of bureaucracy and the delivery of public services).
4. The burden of administrative pressure.
5. Rule of law (protection of property rights, independence of the judiciary, etc.).
6. Anti-corruption.

Each of the six indicators is scored by measuring data from a large number of secondary sources, as well as targeted surveys and perception measurements by risk assessment companies and opinion research agencies such as Gallop International.

Obviously, for a specific task of assessing the effectiveness of government bodies and local self-government, the key indicators will be such indicators as "government performance", "fight against corruption" and "quality regulatory framework"(measuring the results of the implementation of the political strategy of the state).

The disadvantages of this method of assessing public administration are, firstly, the inability to track the dynamics of changes in any one country (only interstate assessment is assumed); secondly, the fact that the assessment is based solely on subjective and perception-based indicators, which increases the risk of confusion in the ratings (as a rule, countries with a high level of economic development are often perceived as countries with better systems of government).

Similar problems are inherent in the approach of S. Nack, M. Kagler and N. Manning, who propose indicators of the so-called "second generation"<3>more suitable for measuring the ability of states to achieve their goals. The indicators are based on an assessment of the constraints and capabilities of the executive branch.

<3>Knack S., Kugler M., Manning N. Second-Generation Governance Indicators // International Review of Administrative Sciences. 2003. Vol. 69. P. 345 - 364.

Restrictions:

formal horizontal (time of presentation of the external audit of budget execution to the Parliament; time of consideration in court of claims brought against the actions of executive authorities);

informal horizontal (the number of "political appointees" in senior positions in the civil service);

internal vertical (share of expenditures of subnational budgets in general structure expenses of the consolidated budget; revenues of regional and local budgets as a percentage of GDP);

external vertical (level of literacy of the population).

Possibilities:

process indicators (payroll of the central government as a percentage of GDP; average salaries of civil servants to GDP per capita);

performance indicators (waiting time for a response when contacting government agencies; quality of government services).

The indicators shown are easy to collect and measure. Additional indicators can be added to these, for example, the duration of the legislative process.

The main disadvantage of the "second generation" indicators is that discussions on them are still ongoing, therefore, a set of benchmarks has not yet been formed, in comparison with which performance efficiency can be measured.

The indicators of the quality of public administration discussed above relate to governance in a broad sense, but there are also special tools for analyzing the effectiveness of public service. Conducting polls of government officials using the methodology of N. Manning, R. Mukherjee and O. Gokekus<4>allows you to trace the relationship between the quality of the institutional environment (which is measured by such criteria as trust in the rules, trust in the policies pursued by the authorities and the adequacy of resources) and the effectiveness of public administration (which is measured by such indicators as focus on results, accountability, morale of employees). The results of the application of this approach in almost 20 countries of the world revealed a significant interdependence between the quality of the institutional environment and the effectiveness of public authorities.

<4>Manning N., Mukherjee R., Gokcekus O. Public officials and their institutional environment: An analytical model for assessing the impact of institutional change on public sector performance. The World Bank. 2001.

Along with the considered quantitative methods for assessing the effectiveness of public administration, there are systems of qualitative assessment. For example, baseline assessment of the current state of SIGMA (Support for Improvement in Governance and Management) is a joint program of the Organization for Economic Cooperation and Development (OECD) and the European Union to support the improvement of public administration in the countries of Central and Eastern Europe. With the help of a baseline survey for a number of indicators, it is possible to regularly monitor the dynamics in the development of the public administration system, conducting repeated assessments. In this regard, the experience of Ukraine can be useful, which in 2002 conducted pilot baseline research on two of the six aspects (state civil service and managing policy development and implementation). Under the auspices of the OECD, SIGMA is supporting administrative reform in Russia. In 2002, SIGMA participated in the development of the main provisions of the civil service and administrative reform programs. In 2003, SIGMA provided Russia with access to the experience of transition economies in public administration reform, including on topics such as public expenditure management, external audit and financial control.

An example of a mixed assessment of the effectiveness of public administration can be the approach of E. Campos<5>, which uses a quantitative assessment of public administration quality indicators (with an emphasis on indicators of the quality of administration and the nature of economic growth) to analyze the effectiveness of public systems, combined with a qualitative assessment of the effectiveness of public service, including an analysis of the actual application of meritocratic and career principles.

<5>Campos E., Edgardo J. Corruption: The Boom and Bust of East Asia. Quezon City, Philippines: Ateneode Manila University Press, 2001.

One of modern trends when assessing and confirming the conformity of quality in public authorities, it is necessary to build quality management systems in accordance with the requirements of the international standard ISO 9001: 2001. Poland, Latvia, Great Britain, Turkey and other countries have similar experience. In 2004, the Main Department of Civil Service of Ukraine developed and implemented a quality management system that meets the requirements of DSTU ISO 9001: 2001. In 2005, the Main Department of the Civil Service of Ukraine took all the main steps to build a quality management system<6>:

<6>Motrenko T. Problems of reforming civil service and service in local self-government bodies: Materials of the report "Problems of reforming public service and service in local self-government bodies". 2005 // http://www.center.gov.ua.

the services of the Glavgosluzhba, the main categories of consumers were determined, the criteria for the quality of services and the signs of their non-compliance were established;

the documents of the quality management system were developed and implemented;

personnel trained and systemic internal training implemented;

the beginning of a systematic study of the expectations and satisfaction of consumers of the services of the Main State Service of Ukraine;

a certification audit was carried out.

According to the results of the certification audit conducted in 2005, the quality management system of the Main State Service of Ukraine meets the requirements of DSTU ISO 9001: 2001.

In Russia, in recent years, there has also been an interest from government bodies in the ISO 9000 series standards. There are examples of implementation and certification of a quality management system (QMS) federal authorities executive power, for example, the Ministry of Economic Development of Russia, at the regional level - in the administration of the city of Shakhty in the Rostov region, in various state and municipal bodies of the Yaroslavl region<7>... The growth of interest in ISO 9001: 2000 standards in the field of public administration is most likely predictable, since the documentation of QMS in accordance with ISO 9000 fits well into the programs for the development of standards and regulations for public services within the framework of the administrative reform in the Russian Federation in 2006-2008.

<7>Nepryaev N.I. Management in state structures // Methods of quality management. 2006. N 10.

The Institute for Problems of State and Municipal Administration of the Higher School of Economics, by order of the Ministry of Economic Development of Russia, is implementing the project "Methodological Approaches to Assessing the Quality of Public Administration".

The proposed methodology is designed to assess the quality of public administration in the constituent entities of the Russian Federation and is based on the following prerequisites:

this methodology is designed to assess the quality of not the entire public administration system, but its important component - the executive authorities;

the assessment system should be based on official documents, objective information;

the main thing in the assessment was to establish the presence and degree of development of the main elements of the system of public administration of the constituent entities of the Russian Federation, emphasized in the sections of the concept of administrative reform in the Russian Federation in 2006-2008.

In the proposed approach, under the quality of public administration of an executive body, it is proposed to understand the effectiveness of the implementation of its administrative processes, and also there are three basic characteristics of the quality of public administration:

result orientation - the quality of the process of goal setting, budgeting;

internal organization of activities - how organized is the performance of functions and powers assigned to the executive authorities of the constituent entity of the Russian Federation;

interaction with consumers of public services - how comfortable it is for citizens to interact with the executive authorities of the constituent entities of the Russian Federation, how significant are the transaction costs of this interaction.

Each characteristic of the quality of public administration consists of a number of public administration processes that are directly related to it. So, the degree of focus on results can be judged by how the process of planning the activities of individual executive authorities, planning the activities of the region as a whole, implementing regional target programs, and so on is organized.

Based on the processing of the results of the questionnaire survey of the regions, the integral index of the quality of public administration for the subject of the Federation is determined ("C" - low quality; "B" - average; "A" - good and "A +" - high quality of public administration). There are also separate indexes for the above three characteristics.

Since 2000, the Common Assessment Framework (hereinafter referred to as the CAF model) has been widely used in the EU member states, as well as in the EU candidate countries. The CAF model is an adaptation of the well-known business model for self-assessment of the European Foundation for Quality Management - the EFQM Excellence Model. The General Assessment Framework CAF is being developed for the public sector and public and municipal administration in Europe under the auspices of the European Commission.

The CAF model has established itself as a simple and effective tool for assessing, analyzing and improving the efficiency of public service, which is confirmed by the experience of more than 900 organizations in the sphere of state and municipal administration. In the period from 2003 to 2006. about 30 European countries have included CAF in their national strategic programs to improve the quality and effectiveness of public administration. In 15 countries, the use of CAF is advisory in nature for public authorities, and in three countries - the Czech Republic, Slovakia and Romania - it is mandatory.

The general assessment scheme CAF is recommended by the Department of Economic Management and Poverty Reduction of the World Bank to assess the relative progress in the implementation of administrative reform in Russia. Pilot projects for the implementation of the CAF model in our country appear<8>... Since February 2008, the All-Russian Organization for Quality has been the official national representative of CAF in the Russian Federation.

<8> For example, results of the TACIS project "Regional economic development and anti-crisis strategies"; subproject 2 "Recommendations for improving the efficiency of the regional administration and the Duma through strengthening vocational training personnel in the field of business administration "(see: Vasiliev S.V., Zhukovsky A.I., Tsurker K. Efficiency of work of organizations of state and municipal administration and their employees. Veliky Novgorod, 2002. 70 p.).

In 2006, the author proposed the concept of a system for assessing the effectiveness of the apparatus of state authorities and local self-government "Effective Public Service" (EPUS), based on the CAF model and developed taking into account the national specifics of the state structure and the legislation of the Russian Federation.

2. From the quality of power to the quality of life: state initiatives and points of growth

On March 14, 2006, at a meeting at the Russian Academy of Civil Service under the President of the Russian Federation, Chairman of the Federation Council Sergei Mironov began his speech with the following words: and to a separate municipality, that is, in fact, a new quality of power. "

Two months later, on May 10, 2006, Vladimir Putin begins his Address to the Federal Assembly of the Russian Federation with words about the quality of life, and invariably since 2003, the President of the Russian Federation has been talking about the need to improve the efficiency of public administration.

From the quality of power to the quality of life - such a vector for the development of modern Russia is set by the first persons of the state. The last few years have been marked by a number of reforms designed to improve the quality and efficiency of public administration, primarily administrative reform.

As part of the first stage of the administrative reform in 2003-2005. priorities called a radical reduction in the functions carried out by state bodies, and the formation of an efficient mechanism for resolving disputes between a citizen and the state by improving administrative procedures and judicial mechanisms.

It should be admitted that the first stage did not bring a breakthrough in the quality of public services: 72% of officials believe that they work well, are satisfied with their work, and 71% of their clients, citizens, on the contrary, are not satisfied with this work.<9>... To radically change this situation (namely, to increase the satisfaction of citizens by 2008 up to 50% and by 2010 - at least up to 70%)<10>the Concept of Administrative Reform in the Russian Federation in 2006 - 2010 was adopted, which established new guidelines: improving the quality and availability of public services; limiting state interference in the economic activity of business entities, including the termination of excessive government regulation; increasing the efficiency of the executive authorities.

<9>Administrative reform will not take place without the involvement of citizens and public organizations // Nezavisimaya gazeta. 2006.2 June.
<10>From the Concept of Administrative Reform in the Russian Federation in 2006-2008.

The Ministry of Economic Development of Russia, which is entrusted with the authority to launch the administrative reform, relies on administrative regulations designed to help optimize the process of performing state functions and introduce clear standards for serving the population by executive authorities. How correct the chosen course will turn out to be can be judged when these regulations work.

Another significant feature of the second round of administrative reform is the active involvement of the constituent entities of the Russian Federation in pilot projects for the deployment of administrative reform programs at the regional level. Below are some figures from the speech of A.V. Sharova at a meeting with representatives of federal executive authorities "On the results and prospects of the implementation of administrative reform at the federal and regional levels" on February 2, 2007

In 2006, 68 applications were submitted to the competition for programs, plans and projects of federal executive authorities and constituent entities of the Russian Federation for the implementation of administrative reform measures: 22 applications from federal executive authorities (25%) and 46 applications from constituent entities of the Russian Federation (more than 50%).

The total number of announced projects for the implementation of the administrative reform in 2006 is 253, including: in the federal executive authorities - 81 projects, in the constituent entities of the Russian Federation - 172 projects. The winners were 19 federal executive bodies and 29 constituent entities of the Russian Federation. The amount of funding for the year: in the federal executive authorities - 39 projects for a total amount of 186 million rubles, in the constituent entities of the Federation - 63 projects for a total amount of 215 million rubles.

The distribution of projects by main topics is as follows (data from the report of the head of the administrative reform department of the Department of State Regulation in the Economy of the Ministry of Economic Development of Russia M.V. Parshin at the same meeting):

Development and implementation of administrative regulations (50%);

Implementation of performance-based management mechanisms (20%);

Implementation of pre-trial appeal mechanisms (7%);

Implementation of mechanisms for outsourcing administrative processes (7%);

Development of anti-corruption programs (5%).

Typical examples of some approved projects and the amount of funding allocated for them are shown in Table. one<11>.

<11>Minutes of the meeting of the commission for the competitive selection of federal executive bodies and higher authorities at the Ministry of Economic Development of Russia executive bodies state authorities of the constituent entities of the Russian Federation to support the implementation of the administrative reform in 2006 from July 18, 2006 N 2 (Appendices 2, 4).

Table 1

Some proposals on the distribution of funds for the implementation of projects on the implementation of administrative reform in federal executive bodies and constituent entities of the Russian Federation in 2006 (first stage)

Federal executive body / constituent entity of the Russian Federation and funded projects	Sum, rub. (first stage)
Rostrud Pilot implementation of administrative regulations for the provision public services to promote citizens in search of suitable work, and employers - in the selection of the necessary workers and the implementation of social payments to citizens recognized in the established order of the unemployed	7472640
Rosregistratsiya Building organizational and functional models and systems of interagency interactions in the execution of functions on state registration right on real estate and transactions with it	2820720
Tula region Development and approval of priority public service standards, administrative regulations for the execution government functions and provision public services	3000000
Samara Region Implementation of software management mechanisms results in the system of interaction executive authorities of the subject RF, territorial bodies of federal executive authorities and bodies local government municipal entities (with approbation in the Ministry healthcare of the Samara region), territorial administration of the Federal health surveillance services and social development and local authorities self-government of Novokuibyshevsk	3600000
Saratov region Outsourcing system implementation administrative and managerial processes at the Ministry of Agriculture	1500000

Further, examples of successful practice of the regions in the field of improving the quality of state and municipal administration are considered, some of which are carried out within the framework of administrative reform, others are independent initiatives. At the same time, the growth points under consideration reflect the outlined guidelines for the further deployment of approaches to quality-based management in state executive bodies and municipalities.

Rostov Region, Shakhty: "Green Corridor"<12>

<12>The review is based on the materials of O. Kosmynina "The Don Formula. Will It Help Resist Corruption?" (Molot. 2006. 19 Dec.) And "Eurostandard of communication" (Molot. 2006. June 6), as well as the report of S. Ponamarenko "Quality management system in the Shakhty municipality" at the conference "Quality in the field of state and municipal administration" in the framework of International Forum "Best Experience for Better Life". M., November 8-9, 2006

In October 2005, the administration of the city of Shakhty in the Rostov region launched a project to develop, implement and certify a quality management system, and in April 2006 the Shakhty municipality received a certificate for compliance with the requirements of the international standard ISO 9001: 2000. In record time, the mayor of Shakhty, Sergei Ponamarenko, managed not only to obtain a certificate, but also to make the management system work for the benefit of consumers, i.e. citizens.

Optimization of the processes of providing services to the population was started with the most urgent (more than 1000 applications of citizens per year) - "the provision of land plots". The management of the city administration developed and introduced into the daily practice of officials a procedure for accelerated passage of documents according to the principle of the "green" corridor, which made it possible to reduce the time frame from 12 months to 21 days, and the number of contacts between the applicant and an official from 23 visits to various offices to 3 contacts with one and by the same specialist (ie the principle of "one window" is implemented).

Improvements to the process diagram included:

1. elimination:

unnecessary movements of the applicant between offices;

some stages due to the lack of the need for their implementation;

repeated requests for approval of various documents in the same service;

1. reduction:

terms of passage of documents at each stage;

1. Union:

procedures for issuing two orders into one;

repetitive stages of approval of various documents.

The process was reorganized as follows. We took a photo of the specialists' working day. We placed service workers in the same office, having previously tested for psychological compatibility. A commission visit of specialists from various departments to the sites was organized, for which a Gazelle car was purchased. We created a sector for controlling the passage of legal acts in the structure of the administration. And, finally, they did the main thing that the reform of self-government bodies gave the right to do: instead of the two orders that had been issued so far (the order approving the draft of the boundaries of the plot and the order for the provision of the land plot), they began to issue one with all the resulting conciliation procedures.

As a result of minimizing the applicant's contacts with an official and shortening the time required for the passage of documents, the cost of services in the "green" corridor has decreased by 40%. The principle of "one window" and tight deadlines for processing documents with the new approach practically ruled out the possibility of corruption on the part of officials. In fact, there is no one to give a bribe, there is no time and nothing for.

The plans of the Shakhty administration, despite the negative psychological attitude to the innovations of some of the officials, are to open a "green" corridor for all services provided to the population by the city authorities.

Yaroslavl region: in the wake of administrative reform<13>

<13>Based on materials from the site of the administrative reform in the Yaroslavl region: http://www.adm.yar.ru.

In 2006, the Yaroslavl Region was actively involved in the implementation of administrative reform programs. The Governor of the Yaroslavl Region Anatoly Lisitsyn said in an interview to Interfax that the goals of the administrative reform at the regional level would be to optimize the work of executive authorities and introduce anti-corruption mechanisms, increase the transparency of the regional administration, and modernize the information support system for executive authorities.

Here are selected facts from the report "On the progress of the implementation of the administrative reform in the Yaroslavl region" submitted to the Ministry of Economic Development of Russia<14>regional administration, which confirm the seriousness of the governor's intentions. The information is given in the context of key areas of the administrative reform and reflects a general characteristic picture of the activities carried out by the constituent entities of the Russian Federation within the framework of the administrative reform.

<14>The material is freely available on the Internet portal of the Yaroslavl Region: http://www.adm.yar.ru.

1. Results-based management.

Eight employees of the regional administration completed a training course at the North-West Academy of Civil Service under the TACIS program "Management by Results".

1. Standardization and regulation.

In the first half of the year, a set of measures was carried out for the participation of the administration of the Yaroslavl region in the competition of the Ministry of Economic Development of Russia for administrative reform. Including developed and submitted to the competition five projects and five administrative regulations of public services.

1. Optimization of the functions of executive authorities and combating corruption.

As part of the implementation of this direction, an automated database "Passport of function" has been developed and put into operation, the purpose of which is to automate the process of examination of functions for redundancy, duplication and illegitimacy. The analytical center has accepted and entered into the database more than 1000 passports of functions and more than 500 powers of state authorities of the region. The first result of the started inventory of functions was the adoption of a decision by a number of structural divisions of the regional administration on a significant revision of their own regulations, preparation of proposals for the transfer of a number of functions to local governments, and improvement of the mechanism for the implementation of functions.

1. Improving the efficiency of interaction between executive authorities and society.

An Internet page was opened on the website of the analytical center of the regional administration, dedicated to the implementation of the administrative reform<15>... The page is constantly updated with relevant analytical, methodological and informational materials.

<15>http://www.adm.yar.ru/a_center/admref/admref.htm

1. Modernization of the information support system for executive authorities.

The project "Modernization of the information support system of the executive authorities of the Yaroslavl region" has been developed and is being implemented. Carried out sociological research, in particular, with the aim of studying the attitude of residents of the region to the reforms of housing and communal services, local self-government and administrative reform<16>.

<16>The results of the polls are posted on the website of the regional administration on administrative reform: http://www.adm.yar.ru/a_center/admref/04.htm.

1. Providing administrative reform. Planned and is in the implementation stage of the project of the organization on the server of the administration of the region of the system distance learning... Currently, a database of information and training and teaching materials, the technical interaction of the hardware and software complex of the Main Directorate "Center for Telecommunications and Information Systems in Education" and the Department of Informatization and Technical Means of the Regional Administration is being worked out.

Ivanovo region: self-esteem in a European way

In December 2006, in the apparatus of the election commission of the Ivanovo region, a self-assessment method was tested according to the EPUS model, the criteria of which were harmonized with the European CAF model and the criteria of the EFQM model. The assessment system is based on the approaches used in the competition for the RF Government Prize in the field of quality.

"Self-diagnostics using the EPUS method," says Viktor Smirnov, chairman of the election commission of the Ivanovo region, "allowed us to measure the level of efficiency and see the potential of our activities. As a result, we received an integrated assessment that combines qualitative and quantitative performance indicators, and this is very important." About 90% of the employees of the commission staff took part in the self-assessment. Since the employees are geographically located in different districts of the region, the GAS "Vybory" system was used for the survey, which made it possible to quickly receive and process the results. About 100 questions in the questionnaire were aligned with the nine performance indicators of the EDRM model, which, in fact, provide a snapshot of the entire management system: leadership leadership; planning; collaboration and resources; frames; results for citizens; for employees; for society; reporting results of activities.

Based on the score for each of the nine indicators and 28 evaluative components of the EPUS model, as well as wishes, comments and suggestions expressed by employees, an analysis of strengths and weaknesses was carried out, and opportunities for improvement were identified. In particular, for some indicators of the "Personnel" and "Results for employees" groups, the need for additional training of personnel was identified. Employees recognize the importance of improving their professional level and directly link their competence with job satisfaction. And increasing employee satisfaction, from a management point of view, is an increase in the efficiency of their work. Therefore, in 2007, the commission's leadership made an additional emphasis on training employees in various options: trainings, seminars, opportunities for interregional exchange of experience.

In addition to questioning employees, a self-assessment group was formed in the commission, which carried out detailed self-diagnostics of activities according to 28 components of the EPUS model. The group included heads of departments who, over three weeks, identified the best practices in the work of the commission, as well as areas requiring priority improvements.

The self-assessment report, formed based on the results of a survey of employees and a SWOT analysis by managers, allows you to systematically look at the activities of a state body, see inconsistencies, directions for improvement and objectively evaluate not only the reporting results, but also the efficiency reserves hidden directly in the management system. “Unfortunately,” notes Viktor Smirnov, “such local approbation at the level of one state body does not make it possible to feel the main advantages of the EPUS system, which involves the involvement of all state and municipal bodies of the Russian Federation. the ability to compare the performance of public authorities, in particular, I could compare my results with election commissions in other regions. federal base best practice data available to all authorities. If, for example, we lag behind in terms of the “Activity planning” indicator, then as a leader I can easily find successful experience, for example, in Lipetsk or Tver. At the same time, we, like any other organization, have our elements of best practice. For example, the council of system administrators is successfully functioning in the Ivanovo regional election commission, and we would be happy to share our experience with those who have problems in terms of the "Personnel" indicator. Now there is no systematic exchange of experience in the field of public administration - EPUS proposes such a system, which, by the way, is quite possible to implement on the platform of GAS "Vybory".

Better experience for better power

In 2007, within the framework of the administrative reform, it was planned to introduce models of best practice into the activities of state bodies, and priority was given to the standards of public services and administrative regulations of mass socially significant public functions and services. However, no really operating mechanisms for the dissemination of this experience, including IT solutions, have yet been proposed, a database of best practices has not been formed, and a resource center has not been created to ensure the systematization of information and access to it, including through telecommunication channels. It should also be noted that unregulated best practice in various aspects of state (municipal) management (work with personnel, motivation, activity planning, social responsibility, etc.) is not yet in demand from the state. Perhaps this demand has simply not formed yet. We hope that this will happen soon and the improvement of public administration will not be limited to regulation and standardization. The best practice in the form of paper regulations is unlikely to replace the "living" best practice of specific people and specific situations.

It is hard to imagine that it is possible to effectively manage the state machine in the 21st century. only on the basis of control over the implementation of regulations and standards, and to deal with the fight against bureaucracy exclusively by methods of strengthening a mechanistic bureaucracy, the signs of which are rigid functional specialization, a clear hierarchy, regulation and control of activities. It is even more difficult to imagine that officials will actively strive to improve the quality of their services if they have another regulation, especially for frontline officials who have direct contact with the consumer (citizen, organization).

If we ignore everything that was in the theory of management after Taylor and Fayol and in the theory of structures of power after Weber, if the age-old stock of knowledge about people in organizations, human relations and the theory of motivation does not matter to us, then it is quite possible to do with regulations. but then it is not worth talking about the quality of public services, and even more so about the satisfaction of consumers of these services.

Therefore, we urge specialists in the field of quality management to pay attention to the process of creating a state QMS, which is called "administrative reform", and specialists in state reform, in turn, to cooperate more closely with professionals in the field of quality in implementing such important initiatives for the country.

3. European experience in the application of the General Assessment Framework (CAF) in the practice of state and municipal administration

Since 2000, European countries have been using the Common Assessment Framework (CAF model) to improve the quality of public services and increase the efficiency of public and municipal administration. The CAF model is being developed by the European Institute for Public Administration (EIPA) under the auspices of the European Commission on the basis of two evaluation schemes:

a) the model of excellence of the European Foundation for Quality Management (EFQM Excellence Model), which since 1992 has successfully established itself in Europe as a model of the European Quality Award, as well as a tool for measuring the power of managerial potential, assessing the effectiveness of the management system of organizations, including public administration<17>;

<17>Since 1999, there has been a version of the model for the public sector and non-profit organizations.

b) the "Speyer" model, developed by the German University of Administrative Sciences, Speyer, specifically to assess the quality of government agencies.

The CAF model is positioned as a mechanism for surveying the activities of public authorities and local self-government based on diagnostic self-assessment, as a tool for comparative analysis of the institutional systems of European states, including the identification of best practices, as well as as part of programs for reforming the sphere of state and municipal government. The general assessment scheme is designed specifically for the public sector, taking into account its specifics and in order to achieve the following goals.

1. Introduce quality management principles into the public administration and assist in their deployment through a self-assessment method. Facilitate the transition from a plan-do chain to a plan-do-test-act cycle (PDCA continuous improvement cycle).
2. Provide a mechanism for self-assessment to diagnose strengths and weaknesses, and identify areas for improvement.
3. Become a connecting element between different approaches to quality-based management.
4. Provide exchange of experience and study of best management practices for the public sector.

The CAF model includes two groups of performance indicators:

the group "Opportunities" characterizes the approaches used by the organization to achieve results and improve performance;

the group "Results" characterizes the achievements of the organization.

Nine CAF Key Indicators aligned with criteria General scheme Assessment (CAF), combine 28 components and about 150 areas of assessment.

Stages of CAF development

CAF is the result of a collaboration of ministers responsible for public service in the EU member states. The model was created under the auspices of the Public Sector Innovation Group (IPSG) and working group national experts on the basis of cooperation, exchange of knowledge and experience to modernize the systems of state and municipal administration and improve the quality of public services in the EU countries.

The first experimental version of CAF was presented in May 2000 in Lisbon at the 1st Conference on the quality of public administration of the EU. Two years later, an updated version of the CAF-2002 model was presented in Copenhagen, and in the same year, the CAF resource center was created at the European Institute of Public Administration (EIPA) in Maastricht. At the 4th Conference on the Quality of EU Public Administration in Tampere in September 2006, the third version of the CAF was presented, revised taking into account 5 years of experience in applying the model in more than 900 European public service organizations, as well as in non-European countries such like China, Middle East countries, Dominican Republic, Brazil, etc.

Today, the development of CAF is facilitated by the cooperation of users of the model within the framework of the European network of public administration EUPAN, created at the CAF resource center.

Governmental support

Various initiatives in the public sector to build quality-based management systems receive continued support from the state in countries with rich experience in the field of TQM, such as Scandinavia, Anglo-Saxon countries, including the UK, where CAF is adopted by many senior government officials as a management tool. ...

In most EU countries, government support for CAF is growing and is expressed in specific government initiatives. The Cyprus Council of Ministers in September 2004 decided to promote the expansion of CAF at all levels of the civil service in order to increase its effectiveness. The Czech government in March 2004 approved the concept of reform and modernization of central public administration, where CAF is one of the recommended instruments. In Greece, the implementation of CAF was included in the "Politeia 2005-2006" administrative reform program. The Hungarian government, in its resolution 1113/2003, declares the need to apply CAF in the public sector. Italy develops a culture of quality in public services at the national level by conducting a national survey on the experience of implementing quality management systems in public authorities; in May 2005, a quality award was established for civil service institutions; the competitive evaluation system is based on the criteria of the CAF and EFQM models. Luxembourg has adopted a government quality program, where CAF is one of the main elements. In Lithuania, the annual plan for 2005-2006. for the implementation of the Civil Service Development Strategy until 2010 includes CAF and other TQM tools. On April 29, 2004, the Polish Cabinet of Civil Service held a conference in Warsaw "CAF as a tool for improving the quality of public institutions." The CAF model, along with other modern TQM tools, has been included by the Romanian Government in the Strategy for the Modernization of Civil Service at the Federal and Local Levels. In Spain, government support for CAF and other TQM tools is manifested to a greater extent at the level of local administrations.

It should be noted that government support for TQM initiatives in Lithuania has decreased, where the quality of public administration is not considered as an urgent problem, although in December 2001 the Government adopted Requirements and Recommendations for the implementation of quality management systems in public administration (based on the requirements of the ISO 9001 standard: 2000). Political changes in Estonia led to a decline in interest in CAF in autumn 2003, but recently this interest has been renewed.

In general, the current level of government support for quality management initiatives in the EU countries is quite comfortable for the implementation of CAF.

In 15 states, the use of CAF is advisory in nature, and in three states it is mandatory. Experience shows that the national organizations (agencies) responsible for the dissemination and promotion of CAF in European countries are governmental and, as a rule, belong to the ministries responsible for the reform and development of the civil service, as well as finance ministries. Belgium, Germany and Spain are taking a bottom-up approach and disseminating CAF at regional and local levels.

Financing

CAF funding is not foreseen in Estonia, Ireland and Latvia. In Spain, CAF expenditures are included in the budgets of various government agencies under Education.

In Finland, funding is declining due to the completion of regional pilot projects for CAF implementation.

Belgium plans to increase CAF funding by 200%. The Czech government allocates additional financial resources central government authorities, and also expects funds from the European Regional Development Fund for the implementation of CAF in municipalities. In Hungary, a new online version CAF will be funded by the government. The resources planned in Italy for the development of CAF significantly exceed the initial funding of the project. Romania is still in the planning stage for resources at CAF.

CAF promotion and support

Since the inception of CAF in 2000, many European countries have taken various actions to develop and support this instrument.

Let's take a closer look at the forms of CAF promotion initiatives.

Information about the CAF model. In Denmark, in order to disseminate CAF and position the model as a simple and affordable tool for improvement, the KVIK project was initiated, within which a DVD was released, which presented the experience of self-assessment of two organizations, the main stages of the self-assessment process were explained in an accessible form. 2000 copies of a brochure describing the CAF model were distributed in Finland, in Belgium 5000 brochures on CAF were published in Dutch and French.

Additional CAF tools. In Denmark, the KVIK project has developed an illustrated self-assessment guide that contains visual images and a host of tools and methods to make the self-assessment process as clear and effective as possible. Specific guides have been published in at least 10 countries, and many brochures have been supplemented with case studies and reports of CAF success stories. Portugal has developed a detailed manual on the structure of the model and the principles of assessment, as well as a description of the accompanying tools and methods. In some countries, adapted versions of the CAF have been developed for certain areas of the civil service. So, in Hungary, models have been developed for local government, police, security service, pension insurance; in Germany, different versions of CAF are used for church administration, legal services, police; Belgium has developed models for education and municipal government.

Education. CAF is an entry-level (basic) TQM tool, however training is an important factor in the effective application of the model. To date, CAF training is conducted on a regular basis in 18 states. In a 2005 survey of 14 countries, more than 1,300 organizations participated in various CAF study programs.

Individual advice and mentoring. About 70% of European public sector organizations use external consultations in the preparation, implementation and use of CAF.

Experience exchange. There is no doubt about the importance of conferences for the development of CAF and the exchange of experience between the users of the model. However, CAF's international partnerships are also beginning to play an important role, the first of which has been established between four countries: Austria, the Czech Republic, Hungary and Slovakia.

In Belgium, for the past three years, a National Quality Conference has been held, which brings together representatives from all levels of the civil service, including the police, justice and education authorities. The 3rd CAF User Conference was held in 2005 in Germany. National conferences on the quality of civil service are regularly held in the Czech Republic, Slovakia, Slovenia, Spain; a key topic of these conferences is the experience of using the CAF model.

Application information. Since the use of CAF involves comparing its results with others, finding the best solutions and sharing experience, gathering information about the application of CAF is one of the main items on the agenda of most users of the model. EIPA is developing a consolidated database of CAF practitioners. To date, eight countries have their own CAF databases and four countries (Italy, Latvia, Portugal, Slovakia) plan to start developing them. In Portugal, the civil service data bank project is funded by the European Social Fund. Belgium plans to develop software to create its own database, linked to the EIPA database, and proposes to combine national databases in one network in the future. Germany proposes to create national CAF-agencies through which it will be possible to get access to all CAF-based resources. The principles of formation and integration of CAF data banks, their functional content are currently the subject of discussion between the countries practicing CAF.

Electronic instruments. Most examples of the CAF electronic toolkit are listed above. A few more facts: the online service KVIK has been created in Denmark, which makes it possible to assess the level of development in relation to the criteria of the CAF model using the Internet; Hungary in 2003 introduced the online service KINGS, which compiled best practices and methods of public administration management.

Plans for the development of CAF in Europe

In some countries, plans for the further use of CAF have not been formed (Estonia, France) due to political and administrative changes, but it is highly likely that the governments of these countries will recommend the use of CAF in the future. Luxembourg is confident that the inclusion of CAF in the national quality program will be a good incentive for the development of the model. In Ireland, CAF is considered as one of the tools for public service development programs. The situation is similar in Latvia, where CAF is one of the instruments recommended by the government along with ISO 9001: 2000 standards and the model of the Latvian Quality Award. In the UK, the active development of the model is not envisaged, since along with CAF in the public sector, the EFQM model is widely used.

Countries such as Austria, Finland, Italy, Lithuania and Spain are planning to progressively implement the adopted CAF programs. In some countries, the development of CAF is a priority. In Belgium, it is planned to organize centralized CAF training twice a year. Cyprus intends to prepare a CAF training program at the level of the Council of Ministers. Greece, Portugal and Slovenia also plan to focus on CAF training. In Romania, training is foreseen for 4 to 6 members of the Central Office of Civil Service Reform at the European Institute EIPA in order to prepare trainers for CAF training domestically.

The Czech Republic plans to continue a pilot project to disseminate the CAF model at regional and local levels, including training a number of civil servants to work with “regional experts and assessors”, and developing CAF application guidelines for regional and local levels. Germany wants to complement the "easy CAF" tool with an information database, continue to organize CAF conferences and publish CAF publications. Denmark aims to increase the number of users of CAF and CAF tools. The Norwegian agency "Statskonsult", which is responsible for the development of CAF, will continue to position CAF as a tool for day-to-day work, and will conduct a series of surveys and surveys on the satisfaction of CAF users. Hungary is planning to create a new electronic CAF-pecypca with the aim of distributing the model in the regions. The Polish Department of Civil Service is going to host a series of information events, conferences and seminars to disseminate CAF. To support CAF users in Portugal, it was decided to establish a "CAF-mail" and to create electronic self-assessment tools, in addition, it is planned to conduct surveys of CAF users.

According to the results of CAF user surveys, 9 out of 10 start improvement activities as a result of self-assessment according to the criteria of the General Assessment Framework. If in 2003 the desire to reapply the General Assessment Scheme was noted by 82% of the users of the model, then in 2005 their share increased and amounted to about 95%.

In 2003, there were about 500 registered CAF users, by the middle of 2005 their number was more than 900, and by the end of 2006 it was already close to 2000. In the near future, our Ukrainian neighbors will join the ranks of CAF users, where under the auspices of the Main State Service evaluations are being tested.

4. Systems for assessing the effectiveness of the public service "EPUS"

The concept of the system for assessing the effectiveness of the apparatus of state authorities and local self-government "Effective public service" (EPUS system<18>) is designed to facilitate:

<18>Maslov D.V., Korolenko A.Yu., Smirnov V.V. The system for assessing the effectiveness of the apparatus of state power and local self-government bodies "Effective Public Service (EPUS)": Certificate of sectoral registration in the sectoral fund of algorithms and programs N 6995, 2006

carrying out administrative reform in the Russian Federation;

increasing the efficiency of the public service at all levels;

improving the quality of public services provided to the population by the apparatus of state authorities and local self-government.

The EPUS system takes into account the national specifics of the state structure and the legislation of the Russian Federation and is based on the following approaches to assessing and analyzing the quality of management systems and performance:

General Assessment Framework (CAF)<19>;

<19>The third version of the General Assessment Framework CAF-2006 was used in the development, which was presented at the 4th EU Civil Service Conference, held on September 27 - 29, 2006 in Tampere (Finland).

model of improvement of the European Foundation for Quality Management (EFQM Excellence Model);

model of awards of the Government of the Russian Federation in the field of quality;

the EPUS system is a complex mechanism for measuring the level of efficiency and potential of the state and municipal service in the Russian Federation on the basis of an integrated assessment that combines qualitative and quantitative indicators of the effectiveness of the apparatus of state authorities and local self-government.

In contrast to the approaches proposed today in Russia to achieve the goals of the administrative reform (improving the quality and accessibility of public services and increasing the efficiency of executive bodies), they are more likely aimed at monitoring the progress of public administration reforms, rather than supporting the processes of their implementation.<20>The proposed EDRP system includes not only indicators of performance (outcome) and achievement of immediate results (output), but also key indicators of capabilities that help assess the capacity of government agencies, their readiness and receptivity to change.

<20>Dobrolyubova E.I. Indicators of the effectiveness of public administration reforms in Russia: possible approaches (working papers). World Bank, October 2004

The lack of a mechanism for increasing the efficiency of government bodies with the necessary set of tools to date does not allow us to speak with full confidence about the successful implementation of programs for reforming the sphere of public administration. G. Gref, who was at that time the Minister of Economic Development and Trade of the Russian Federation, in an interview with the Russian Newsweek magazine, when asked about economic policy, answered that the quality of services provided by the state should have been improved by the administrative reform. But in reality this did not happen: "There are still conflicts of interest between ministries and their subordinate services, there is no clear policy in every sector of the economy, there is no system of setting goals for each level of executive power and indicators of achieving these goals."<21>.

<21>The hypocritical behavior of the authorities is hopeless // Russian Newsweek. 2005. N 12. March 28. S. 24 - 27.

Achievement of the tasks mentioned by G. Gref should be facilitated by the so-called "results-based management". Indeed, the implementation of the principles and procedures of results-based management in executive bodies is the first (in order, but not in importance) item among the tasks of administrative reform. Although, if we analyze the topics of most reports, presentations, speeches of officials responsible for the implementation of the reform<22>, one gets the impression that the introduction of "results-based management" is the only task of the administrative reform, and such tasks as the formation of the necessary organizational, informational, resource and personnel support of the administrative reform, improvement of mechanisms for the dissemination of successful experience in public administration, as if they do not exist.

<22>Materials of the expert seminar "Implementation of the Concept of Administrative Reform in the Russian Federation in 2006-2008: Coordination of Activities at the Federal and Regional Levels" (Ministry of Economic Development of Russia, CSR, December 15-16, 2005) // http://www.csr.ru /event/original_907.stm.

The EPUS system offers an integrated approach to solving the problems of administrative reform in the Russian Federation based on the implementation of the principles of continuous improvement of activities, customer orientation, employee involvement in improvement processes.<23>held in public authorities.

<23>According to the results of a survey of state and municipal civil servants in the regions, conducted by the Institute for Urban Economics Foundation and the Institute for Comparative Research of Labor Relations in 2005, more than 80% of civil servants believe that civil service reform and administrative reform are necessary to one degree or another. and 50% are confident in its success.

The EPUS system offers:

methods for conducting diagnostic self-assessment and expert assessment of the activities of the apparatus of state authorities and local self-government;

tools for determining the strengths and weaknesses in the activities of the apparatus of state authorities and local self-government, approaches to the development and implementation of measures to improve and increase the efficiency of activities;

methods for identifying the best examples of activities, collecting and processing information on successful experiences in the field of state and municipal administration and mechanisms for providing this information through a multi-level EPUS database.

The structure of the EPUS assessment system

The EPUS system is designed to assess the performance of state and municipal bodies at all levels, including:

federal level (F);

the level of the subject of the Federation (C);

local level (M).

Table 2 shows a simplified diagram of the apparatus of state authorities and local self-government, ranked according to the degree of their influence on the results of the state's activity. This public service tier diagram is taken as a basis in the EPUS assessment system.<24>.

<24>The proposed scheme of civil service levels is preliminary. Its more detailed elaboration and clarification of functional and hierarchical levels (sublevels) is supposed to be carried out during further discussion of the concept with experts in various fields of public service.

The EPUS model has a structure aligned with the CAF model and includes two groups of main indicators (performance indicators):

Features: Results:
1. Leading role of management; 6. Results for citizens / consumers;
2. Planning activities; 7. Results for employees;
3. Personnel; 8. Results for society;
4. Collaboration and resources; 9. Reporting results of activities
5. Processes carried out by the apparatus

table 2

EPUS public service level diagram

Code	Apparatus of state authorities and local government
F	Federal government offices
F-I	Office of the Presidential Administration of the Russian Federation
F-II	RF Government Office
F-III	Office of the State Duma of the Federal Assembly of the Russian Federation
F-IV	Office of the Federation Council of the Federal Assembly of the Russian Federation
F-V	Departments of ministries and federal services, subordinate to the President of the Russian Federation
F-VI	Departments of the ministries of the Russian Federation subordinate to the Government of the Russian Federation
F-VII	Departments of federal services and federal agencies of the Russian Federation
F-VIII	Apparatus of the courts of the Russian Federation
F-IX	Apparatuses of other state bodies of the Russian Federation
F-X	Office of the Commissioner for Human Rights in the Russian Federation
C	State bodies of the constituent entities of the Russian Federation
C-I	Staff of the highest executive body of the state authorities of the constituent entity of the Russian Federation
C-II	Apparatus of the highest official of a constituent entity of the Russian Federation
C-III	Departments of executive bodies of the state authorities of the constituent entity of the Russian Federation
C-IV	State legislative body authorities of the constituent entity of the Russian Federation
C-V	Apparatuses of other state bodies of the constituent entity of the Russian Federation
C-VI	Office of Justices of the Peace
M	Local self-government bodies
M-I	Apparatus of the executive and administrative body local government
M-II	Apparatus of the representative body of local self-government

Indicator 1. Leading role of management: how the heads of the apparatus of the state power body (OGV) / local self-government body (LSG) determine the purpose of their structure in the system of state (municipal) governance, develop a development strategy and contribute to its implementation; how they form the values ​​needed to achieve long-term success and implement them through appropriate interventions and personal example; to what extent they are involved in the processes ensuring the development and improvement of the efficiency of the OGV / LSG activities.

1a. Determination by the leaders of the mission, development strategy and values ​​of the OGV / LSG apparatus headed by them, demonstration by personal examples of the desire to improve the efficiency of their activities:

the creation by the leaders of a regulatory framework for the activities of the OGV / LSG staff headed by them, highlighting the principles of this regulatory framework;

the formation and maintenance of ethical norms and values ​​by the leaders by their own example, on the basis of which the corporate culture is created;

the ability to incorporate the strategic goals and mission of UGA / LSG into current activities;

personal active participation of managers in activities to improve the efficiency of the OGV / OMSU apparatus;

encouragement and encouragement by leaders of creativity and innovation, for example, by allocating resources for learning and improvement, empowering employees in decision-making;

determination by the heads of priorities in activities to improve the efficiency of the OGV / LSG staff;

stimulation and encouragement by the leaders of the atmosphere of cooperation in the team, the ability to prevent conflict situations.

Indicator 7. Outcomes for employees: Outcomes in relation to meeting the interests and needs of employees.

7b. Indicators of employees' perception of their activities (indicators are determined on the basis of a survey of personnel, interviews, questionnaires, etc.):

satisfaction indicators (for example, missing work days, injury and sickness rates, number of complaints about working conditions, staff turnover, use of social benefits);

performance indicators (for example, audit results, compliance with norms and standards);

skills development indicators (for example, number of employees trained and retrained, training costs);

communication skills with citizens / consumers, feedback effectiveness;

the level of rotation (mobility) of employees within the OGV / OMSU apparatus;

indicators of motivation and involvement of employees (participation in surveys, surveys, corporate events, teamwork);

the number and frequency of incentives / penalties to employees / groups of employees;

the number of recorded cases of conflicts.

Assessment method

The EPUS assessment methodology is based on the RADAR European Foundation for Quality Management assessment scheme<25>.

<25>Results - Approach - Deployment - Assessment and Review. The criteria group "Results" of the EFQM model is evaluated, respectively, according to the indicator "Results", and the criteria group "Capabilities" are analyzed taking into account Approach, Deployment, Assessment and Review.

For more details see: D. Maslov, Yu. Vylgina Modern management tools: EFQM improvement model: Tutorial... Ivanovo: Ivanovo State Power Engineering University, 2006.S. 25 - 30.

A special feature of RADAR is the "right to left" rating<26>, i.e. from “Results” to “Opportunities”, when the diagnosis of activity begins with the identification of symptoms of organizational diseases, miscalculations in work, and then processes and systemic factors are analyzed in search of the causes of these diseases.

<26>See: T. Conti. Why the potential of self-assessment is not fully used // Methods of quality management. 2003. N 3.P. 4 - 11.

The toolkit for the assessment (self-assessment) of the EPUS indicators is based on the system of meters used in the competition for the awards of the Government of the Russian Federation in the field of quality<27>.

<27>See: Quality Awards of the Government of the Russian Federation: 2006 Guidelines for Participating Organizations. M .: VNIIS, 2006.S. 17 - 20.

1. Meters for the Results group include two elements:

achievements: indicators for assessing their own results, tendencies of change over the last three to five years, tendencies of changes in actually achieved indicators in comparison with planned ones, comparison of one's own indicators with similar indicators of others;

Completeness: data on the extent to which the indicators reported cover different areas of activity.

Percentage grades for each component (6a, 6b, 9a, 9b) are set separately for each element: achievement and coverage. On the basis of the given marks, the overall (average for the elements) mark is determined as a percentage of each component of indicators 6 - 9.

1. Meters for the Capabilities group include three elements:

perfection of the approach: forms and methods of work, justification of their application in the framework of the activities carried out;

completeness of the approach: how widely and systematically these forms and methods are applied: vertically - by management levels, horizontally - by divisions and areas of activity;

assessment and revision of the approach: how the analysis, adjustment and updating of the approach is carried out in order to improve it.

Percentage ratings for each component (1a, 1b, 5e) are set separately for each element: approach excellence, approach completeness, assessment and revision of the approach. On the basis of the given marks, the overall (average for the elements) mark is determined as a percentage of each component of indicators 1 - 5.

1. Final assessment of the level of effectiveness.

By overall assessments as a percentage of each component, the average score is calculated as a percentage of each indicator for the "Opportunities" group and for the "Results" group.

The assessment of each indicator in percentage is translated into the corresponding number of points, taking into account the weighting coefficient Ki, where i is one of 9 performance indicators.

The weighting factor for performance indicators in the structure of the EDRP model is set individually for each element of the public service levels scheme (see Table 3 - not shown). Such an adaptive approach is conditioned, on the one hand, by the different degree of influence of one or another indicator on the efficiency of the apparatus of the state authority (local government), on the other hand, by the unequal significance of each indicator relative to the expected results for different apparatuses of state authorities (local self-government), performing various functions and having a place strictly defined by law in the structure of state power.

The sum of the nine weighting factors Ki of the EPUS model for a separate level (sublevel) of the public service should be equal to 10 units, and the sums of Ki for the groups of indicators "Opportunities" and "Results" should be equal and amount to 5 units, respectively.

The final assessment of the effectiveness of the apparatus of the state authority (local self-government) is calculated in points and can amount to a maximum of 1000 points (500 points in the "Opportunities" group and 500 points in the "Results" group).

Depending on the number of points scored in the assessment (self-assessment), the degree of efficiency of the apparatus of the state authority (local self-government) is determined according to a five-stage scheme.

1. Ineffective performance (0-100 points): no or weak evidence of effectiveness.
2. Ineffective activity (101 - 250 points): some evidence of effectiveness and some signs of a desire to improve performance.
3. Effective performance (251 - 500 points): clear evidence of performance and sustained trends towards performance improvement.
4. Highly effective performance (501 - 750 points): recognized level of performance, trends of continuous improvement in most areas of activity.
5. Benchmark performance (751 or more): performance benchmark<28>.

<28>The methodology and assessment tools are described in more detail in the book: Maslov D.V., Korolenko A.Yu., Smirnov V.V. The system for evaluating the effectiveness of the apparatus of state authorities and local self-government. M., 2006.50 p.

Evaluation of the effectiveness of the apparatus of the state authority (OGV) and local self-government bodies (LSG) within the EPUS system involves a two-level diagnostics of the apparatus: self-assessment and expert assessment.

Database formation principles

"Administrative reform will develop at an insufficient pace and inconsistently, if a database of best examples and successful experience in public administration is not formed, a large-scale exchange of views is ensured in the development of solutions and the dissemination of successful experience in implementing administrative reform measures among its participants."<29>.

<29>From the Concept of Administrative Reform in the Russian Federation in 2006 - 2010.

On the basis of expert opinions to monitor performance indicators and measure the dynamics of improving the quality of public services provided by the government offices of various levels, as well as in order to disseminate the successful experience of state and municipal administration, a multi-level information database of the EPUS is formed, consisting of three blocks of information depending on the level the apparatus of the authority:

a block of apparatus of local self-government bodies;

a block of state authorities of the constituent entities of the Russian Federation;

a block of federal apparatuses of state power bodies.

Each block of the database contains scores of indicators of the effectiveness of the EPUS and information about best examples and successful experience of state and municipal administration.

To monitor and analyze the results of performance evaluation, collect and systematize information on the best practices of state and municipal administration, provide access to an information database, provide technical support for the dissemination of successful approaches and methods to improve the quality of public services provided by the apparatus of state and local government bodies, a federal network of information centers is being formed, uniting four levels:

municipal (database municipalities);

regional (databases of the constituent entities of the Federation);

district (databases of federal districts);

federal (all-Russian database).

At the municipal level, the formation of the database and the provision of access to it is supervised by the highest official of the constituent entity of the Russian Federation.

The technical support for the functioning of regional information centers in the EPUS system is assigned to the apparatus of the chief federal inspectors in each constituent entity of the Federation.

The processed information on regional and municipal administrations of the authorities is collected in the databases of the federal districts. At this level, the technical functioning of the EPUS system is provided by the offices of the plenipotentiary representatives of the President of the Russian Federation in the federal districts.

Technical support at the federal level is provided by the Administration of the President of the Russian Federation.

The implementation and organizational support for the functioning of the EPUS system is carried out by the coordination center under the Administration of the President of the Russian Federation.

***

Returning to G. Gref's interview for the Russian Newsweek magazine, let us pay attention to his remark that “according to the experience of other countries, it takes 10 years to build a transparent system for assessing the activities of the authorities and the response of society to them, using someone else's experience, to create such a system in Russia maybe three or four years. " The EPUS concept is aimed at realizing precisely this opportunity. The proposed "Effective Public Service" system, based on the recognized European CAF model, has been developed taking into account Russian specifics and includes a number of innovative features.

1. Two-tier assessment: a combination of diagnostic self-assessment and expert assessment (introduction of the institution of expert councils).
2. Adaptation of the model for various state and local government bodies:

• public service level diagram;
• weighting factors for model indicators.

1. Formation of a multilevel database based on the representations of the President of the Russian Federation in the federal districts.

The listed features make it possible to position the EPUS model as a federal projective program for increasing the efficiency of public service institutions and improving the quality of public services.<30>.

<30>For more information about the EPUS system and the author, see: http://benchmarking.economic.ispu.ru/epus.htm.

The world science in the field of management has been developing for many decades, offering more and more new models and management tools in order to improve the quality of products and services, more effectively manage the goals of the organization and its costs. With the accumulation and development, this knowledge has become in demand in government bodies. The advanced countries, concerned about the growing interstate competition, on the one hand, and the need to effectively manage social problems, on the other hand, began to actively seek systemic solutions that would improve the quality of the work of institutions of all branches of government. So the solutions offered by the international standards of the ISO 9000 series began to come into the sphere of public administration.

Considering that one of the main tasks of the International Organization for Standardization (ISO) is to analyze and generalize best practices in the field of management, the authorities received additional innovative models - tools for developing and improving their activities and improving the quality of services provided.

The most common standards, models of which are used by authorities and local governments around the world, are: ISO 9001: 2008 (quality management); ISO 14001: 2004 (environmental management); SA 8000: 2008 (social responsibility); ISO 27001: 2005 (information security); OHSAS 18001: 2007 (Occupational Safety and Health), IWA 4 (Recommendations for the application of ISO 9001 in local government).

In addition to the above standards, there are a number of national ones, the models of which are successfully implemented by the authorities and local self-government. The Australian standards of the AS 8000 series can serve as a striking example of such national standards. However, the most popular is the model of quality management systems based on the requirements of the ISO 9001: 2008 standard.

ISO 9000 series standards are distributed in more than 90 countries around the world, having entered the Guinness Book of Records as the world's most used standard in the field of management systems.

The growing popularity of the ISO 9000 series in the service industry is clearly visible in the annual reviews of the management system certification market conducted by ISO. For example, back in 2005, about 33% of ISO 9001: 2000 certificates were issued to service organizations.

There is a growing number of government and local governments among service organizations using the ISO 9000 Series model.

According to IQNet (an international network of certification bodies, www.iqnetcertification.com), there are about 3,700 EA 36 (public administration) organizations in the register, of which more than half are local governments. Of these, 634 certificates were issued in Italy, 198 certificates in Spain, 120 certificates in Switzerland, 49 certificates in Germany, and 84 certificates in Portugal.

The ISO 9001 standard is already familiar to Russian organizations in the field of public administration, this mainly concerns local governments, but in terms of the number of certified organizations, Russia significantly lags behind many countries.

Most municipalities are certified in the United States, including state capitals. The introduction of quality management principles in the US government made it possible to carry out a well-founded program to reduce the number of civil servants. Since 1988, the President's Quality Award Program has been held to award high-performing organizations of the Federal Government for outstanding performance in the field of quality. This program aims to facilitate the exchange of best practices and management strategies between federal agencies, as well as local governments, state governments and private sector organizations, to develop systematic approaches and methodologies for assessing, analyzing and planning performance improvements. The program includes two awards: the Presidential Quality Award and the Quality Improvement Award. The Presidential Quality Award is similar to the Malcolm Baldridge National Quality Award, and its criteria have been refined to reflect the specifics of government agencies.

The standard is widely applied in Japan, where most bodies local authorities prefectures and administrative districts are certified. ISO 9000 series standards are being actively implemented in Poland and Israel.

The introduction of these innovative models leads to the satisfaction of the population's requirements for the quality of municipal government and authorities. The innovative ISO 9001 model has become widespread among local governments in Australia. In many cities of the CIS countries - Kazakhstan, Belarus, Ukraine - there is experience in applying the ISO 9000 series standard.

Implementation of the ISO 9001 standard in the authorities, modernization of the Standard.

Analyzing the requirements of the international standards ISO 9000 series, it can be noted that a number of requirements should be clarified, taking into account the specifics of the public service.

By introducing a quality management system in public authorities, it is necessary to solve at least three main tasks:

• 1. Create a system of public administration focused on the citizen, perceiving the citizen as a customer of public services, lay down appropriate mechanisms for assessing the effectiveness of such a system.
• 2. Create a system capable of self-development, change.
• 3. Implement the principle of an open, transparent system. For this, in addition to the implementation of the requirements of the ISO 9001 standard, it is necessary to adjust and adapt it.
• 1. In the field of politics, it is advisable for the authority to have two interrelated policies:
  • - policy in the field of public administration quality;
  • - personnel policy.

The main problem of the public administration system is the low quality of civil servants and the inability to effectively solve the problem of professional growth and personnel development. Human resources are the heart of the system. The quality of the frames determines the quality of the system.

The progressive minds of modern management are increasingly talking about managing not processes, goals, but values. The point is that if indifferent people work in a company, then no matter what goals you set, there will be no success. The situation was aggravated by the fact that over the past 70 years people have changed qualitatively. With the emergence of the middle class, people who earn not by physical labor, but by mental labor, an important process was launched in the modern world, namely: people began to think in large quantities. This is how a key event happened - the employee ceased to be a pure resource, he became a value. And it has become extremely difficult to manage such employees with simple motivational tools in the form of a social package and salary, and in the segment of the most talented specialists it is almost impossible.

E.G. Khmelchenko

QUALITY MANAGEMENT SYSTEM IN STATE AUTHORITIES AND LOCAL GOVERNMENT

Annotation. A series of international standards ISO (ISO) 9000 developed by the International Organization for Standardization (ISO - International Organization for Standardization), are a generalization of the world's best practices in the field of quality management. The ISO 9000 series standards are standards for the formation of a Quality Management System (QMS) applicable to any area of ​​the economy and applicable to enterprises with any type of activity. At present, in foreign practice, there is experience in the application of ISO 9000 series standards in government and local government bodies.

Keywords. Quality management system, government and local government bodies, ISO 9000 series standards, experience in applying ISO 9000 series standards in government and local government bodies, experience in applying ISO 9001: 2000 standard in local government bodies.

Is it possible to apply the ISO 9000 series standards in public authorities and local governments? Is there any experience in applying these standards in world practice?

IN market economy the problem of quality is the most important factor in improving the standard of living, economic, social and environmental security.

The world experience in the field of quality management offers more and more new models and management tools in order to improve the quality of products and services, to more effectively manage the goals of the organization and its costs. With the accumulation and development of this knowledge, it became in demand in government and local government bodies. The advanced countries, concerned about the growing interstate competition, on the one hand, and the need to effectively manage social problems, on the other hand, are actively looking for systemic solutions to improve the quality of the institutions of all branches of government. So the solutions offered by the international standards of the ISO 9000 series began to come into the sphere of public administration.

A series of international standards ISO (ISO) 9000 developed by the International Organization for Standardization (ISO - International Organization for Standardization), are a generalization of the world's best practices in the field of quality management.

Due to their versatility, these standards are considered the most popular in the world and are listed in the Guinness Book of Records.

The ISO 9000 series standards are standards for the formation of a Quality Management System (QMS) applicable to any area of ​​the economy and applicable to enterprises with any type of activity.

The family of international standards in the ISO 9000 series includes:

ISO 9000: 2005 Quality management systems - Fundamentals and vocabulary.

ISO 9001: 2008 Quality management systems - Requirements.

ISO 9004: 2009 Managing for the sustained success of an organization - A quality management approach.

© Khmelchenko E.G., 2013

The following standards are Russian analogues of the international standards of the ISO 9000 series.

GOST R ISO 9000-2008 Quality management systems. Fundamentals and vocabulary.

According to ISO 9000: 2005 (GOST R ISO 9000-2008), a quality management system is a management system for guiding and managing an organization in relation to quality.

GOST R ISO 9001-2008 Quality management systems. Requirements.

GOST R ISO 9004-2010 Management for sustainable organizational success. Quality management approach.

The ISO 9001 standard (GOST R ISO 9001) summarizes the useful experience and achievements of companies around the world in the field of quality management. A quality management system that meets the requirements of ISO 9001: 2008 is the most recognized, widespread, logical and rationally documented. It is necessary to understand that the ISO 9001: 2008 standard defines the requirements for the management of the organization's activities in the field of quality. Thus, a quality management system is a quality management system of an organization that combines: interacting processes and procedures, competent personnel, organizational and technological measures, plans, documentation. That is, everything that is vital for the organization to achieve the goals of its activities.

In order to implement a quality management system, it is necessary to carry out:

Audit of the existing management system, determining the degree of its compliance with the requirements of ISO 9001: 2008;

Personnel training in the basic requirements of ISO 9001: 2008, the procedure for the development and implementation of the QMS;

Consulting on the development of QMS documents, including the provision of templates and samples, and the QMS implementation process;

Training of internal auditors of the QMS from among the employees of the enterprise;

Selection of a certification body;

Conducting a surveillance audit of the company's QMS for compliance with the requirements of ISO 9001: 2008 and for readiness for certification.

Currently, the most widespread standards, the models of which are used by public authorities and local governments around the world, are: ISO 9001: 2008 (quality management); ISO 14001: 2004 (environmental management); SA 8000: 2008 (social responsibility); ISO 27001: 2005 (information security); OHSAS 18001: 2007 (Occupational Safety and Health). In addition to these standards, there are a number of national ones, the models of which are successfully implemented by state and local authorities. However, the most popular is the model of quality management systems based on the requirements of the ISO 9001: 2008 standard.

There is a growing number of government and local governments among service organizations using the ISO 9000 Series model.

The results of the certification market research, which is traditionally carried out by the International Organization for Standardization, and the analysis of the IQNet database, an international network of certification bodies, show that it contains more than 300,000 certificates issued for compliance with the ISO 9001 standard in more than 50 countries of the world, and in the register contains about 3,700 EA 36 (public administration) organizations, of which more than half are local governments. Of these, 634 were issued in Italy

certificate, in Spain - 198 certificates, in Switzerland - 120 certificates, in Germany - 49 certificates, in Portugal - 84 certificates.

Most municipalities are certified in the United States, including state capitals.

The introduction of quality management principles in the US government made it possible to carry out a well-founded program to reduce the number of civil servants. The President's Quality Award Program has been running since 1988 to promote the sharing of best practices and management strategies between federal agencies and local governments. state governments and private sector organizations to develop systematic approaches and methodologies for assessing, analyzing and planning performance improvements.The program includes two awards: the Presidential Quality Award and the Quality Improvement Award. The President's Quality Award is similar to the National Award for Quality quality of Malcolm Baldridge, its criteria have been finalized taking into account the specifics of government agencies.

The standard is widely used in Japan, where most of the local governments of prefectures and administrative districts are certified. An interesting example is the Administration of the Prime Minister of Poland, where, since 1999, the program "Quality Management in Government Bodies" has been developing. This program is being implemented jointly with the United Nations Development Program (UNDP). Since the beginning of the program, more than a hundred local governments have submitted their applications for participation in this program.

Also, work is underway to introduce quality management systems based on the model of the ISO 9001 standard in public authorities. The Ministry of Justice (Poland) was the first government agency in 2003 to receive official recognition for the implementation of the model and principles of the quality management system, having received an internationally recognized certificate of conformity. ISO 9000 series standards are being actively implemented in Israel. According to Israeli researchers, all local government administrations in Israel that have implemented systems based on models of international governance standards in their bodies have been re-elected for the next term.

Among other things, this fact indicates that the introduction of these innovative models leads to the satisfaction of the population's requirements for the quality of municipal government and authorities. The innovative ISO 9001 model has become widespread among local governments in Australia. In many cities of the CIS countries - Kazakhstan, Belarus, Ukraine - there is a positive experience in the application of the ISO 9000 series standard.

The ISO 9001 standard is already familiar to Russian organizations in the field of public administration, this mainly concerns local governments, but in terms of the number of certified organizations, Russia significantly lags behind many countries.

One of the problems that society is currently facing is the problem of citizens' trust in state authorities and local self-government.

Ideally, local governments should play an important role in shaping civil society based on the provision of quality, economically sound services, taking into account legal requirements and compulsory observance of the principle of fairness. Legislation and fairness are the cornerstones in the entire management system of a local government.

ISO 9001: 2000 can be used to meet these challenges. In addition, the Guidelines for the Application of ISO 9001: 2000 by Local Governments (IWA 4: 2005) were developed and adopted. This guide is also interesting in that it provides typical processes for a quality management system, as well as a self-assessment procedure for a local government.

When fulfilling the requirements of the standard, it is very important to determine the scope of its requirements, or the scope of the quality management system. It is necessary to clearly answer the question of who will be the consumer of the management system.

Here it will not be superfluous to remember that management exists for the sake of the results that are achieved during external environment... Management must determine what results need to be achieved, what are the necessary resources (with resources in local government is quite difficult and problematic). And most importantly, management must ensure that its goals are achieved.

Ukraine already has experience in applying the ISO 9001: 2000 standard. A number of cities (Berdyansk, Komsomolsk, Lutsk, Chernivtsi, Alchevsk, Makeevka) took this model of management and improvement of their activities as a basis and even passed certification in foreign certification bodies. To our great regret, there is practically no information on this topic on the official websites of city councils. Some limited themselves to only quality policies and objectives.

Analysis of the available information allows us to say that management systems have been created that apply to the provision of administrative services to the population associated with the issuance of various permits, certificates, licenses, etc.

Monitoring mechanisms and criteria for evaluating service delivery processes have been developed. Centers for the provision of state and municipal services have been created and are being created (the “one-stop shop” principle). This can be clearly attributed to the achievements in these cities. The work of the administration becomes clear, understandable and predictable for the residents of the city.

One of the main provisions of the standard is customer satisfaction through the release of products or the provision of services with characteristics that meet the customer's requirements. When it comes to products, we can formulate what properties and characteristics we would like them to have. When we receive a service, we can also formulate our requirements and expectations. But it should always be remembered that the concept of "quality" is changeable and largely depends on personal perception. All documents were accepted from you, they were polite and helpful with you, you were provided with all the necessary consultations, you were prepared and provided with an answer on time. You were satisfied with the work of the employees. But only until the moment of receiving an answer. It turned out to be negative. And your positive assessment of the work becomes diametrically opposite.

What services do we want to receive from public authorities and local governments? We want to receive management services from a structure that is empowered to do so and is accountable for results.

The implementation of all the powers of state authorities and local self-government should ensure the receipt of the main service - comfortable living and finding residents in a city, town, village. They are all consumers management services... Each of these areas has its own performers, legal entities with their own management systems. Living conditions largely depend on the performance of their duties. How about

to them should be considered the management system of public authorities and local self-government? Should it be limited only to the generation of management decisions or be jointly and severally responsible for the services provided?

Analyzing the requirements of the international standards ISO 9000 series, it can be noted that a number of requirements should be clarified, taking into account the specifics of the state and municipal service in the Russian Federation.

To implement the QMS in state and local government bodies, it is necessary to solve the following tasks.

1. Create a management system focused on the citizens of the Russian Federation as customers of state and municipal services. Evaluation of the work of a particular department, its head is not tied to the opinion of direct consumers of the services of this department. Conclusions on the results of the work, as a rule, are based on macrostatistics; in most cases, there are no estimates of the real customer of the services of the department (citizens, business). It is necessary to orient the department to consumer requests, to the needs of citizens, to introduce methods of direct monitoring of consumer satisfaction, specific applicants, complainants, citizens, companies, with reference to specific departments of the department, heads.

2. To create a system for assessing the results of the activities of public authorities and local self-government. As a rule, the system of analysis of the activities of specific structural units, the system of assessing the results of their work, is poorly developed in the authorities, there is practically no practice of public reporting by the department on the work done for citizens. Therefore, it is necessary to introduce process management models with the development of a system for assessing the effectiveness and efficiency of all departments, to introduce rating tools in assessing the work of departments of the department, to introduce the practice of public reports to citizens on the results of work for the year, with information about the direct usefulness of the department for the development of the well-being of citizens.

3. Create a system capable of self-development, change. First of all, it is necessary to clarify that the sections of ISO 9001, devoted to the analysis of activities and planning, the creation of programs to improve the activities of departments, should be developed and implemented with the definition of indicators for assessing the effectiveness and efficiency of the authority.

In conditions when the effectiveness of the organization's work is increasingly dependent on human capital, and for the authority the level of competence of an official, the level of his personal qualities, completely determine the quality of the state and municipal services provided, it is necessary to determine the personnel policy of the organization as the main document of the personnel development system. The implementation of personnel policy should be carried out through the development of plans, programs in all its areas: development of professional skills and knowledge; development of values, personal qualities. Targets (quality objectives) should be set for these plans and programs. Analyze the achievement of these goals, develop proposals for improving work in these areas.

4. Implement the principle of an open, understandable and transparent system. For

For this, it is necessary to improve the system of informing the population by state authorities and local self-government. For this, the practice of video reports should be introduced, when the head gives video explanations on the website of the department for citizens about the results of the work of his unit for the reporting period, analyzing the questions of citizens, experts, and answering them. All these clarifications, explanations are extremely important for the establishment of a modern, adequate mechanism for quality management of state and municipal

services and should be reflected in the requirements of the public administration standard.

Bodies of state power and local self-government, as a rule, are closed for information: websites are weak; press conferences are rare; solutions and explanations are not posted on the site; expert advice either does not work at all or is weak; meetings with external experts, representatives of economic sectors, small and medium-sized businesses of all levels, public, non-profit organizations are either rarely held, or key, most complex issues affecting their life and development are not discussed with them. Meanwhile, all these people and organizations are consumers of government services, and building active interaction with them should be one of the main tasks.

Literature

1. Lifits I.M. Standardization, metrology and certification: a textbook for students. Universities. - 8th ed., Rev. and add. - M .: YURAYT, 2009 .-- 412 p.

2. Fedorenko M.V. Implementation of a quality management system in the activities of state authorities and local self-government [Electr. resource]: http://www.siora.ru.

T. T. Tsatkhlanova, S.V. Namysov

Annotation. The article is devoted to the insufficient study of the formation of instruments for sustainable development of regional policy in order to increase the efficiency and competitiveness of the region.

Keywords. Economy, region, regional policy, models, program.

The main goal of the regional policy is to create conditions for the entry into the market of all interested regions, enterprises and citizens, for the disclosure and development of their target abilities and entrepreneurship, taking into account the territorial specifics.

It is necessary to rely, at least, on a number of other technologies (policies), without the formation of which the task of increasing the efficiency of regional policy management will be impracticable.

First, there is a spatial development policy. The fact is that imbalances in the socio-economic development of territories will always exist. Objective differences in the geographical and socio-economic position of regions, especially in countries with a huge territory, as market relations develop, not only do not smooth out, but can even deepen. Accelerated development generates inequality, and there are no resources for equal development in the country and regions.

The obtained values ​​of private and complex indicators of economic potential indicate a significant uneven distribution of the regions of the Southern Federal District by the level of economic potential, which is one of the most important characteristics that attract investors. Analysis of private indicators of the economic potential of Kalmykia shows that they are all less than 0.05. This is

© Tsatkhlanova T.T., Namysov S.V., 2013

Keywords

FIRE SAFETY/ FIRE SAFETY / LOCAL GOVERNMENT BODIES/ LOCAL GOVERNMENT AUTHORITY / QUALITY MANAGEMENT SYSTEM/ QUALITY MANAGEMENT SYSTEM / MANAGEMENT / MANAGEMENT / CONSUMER / PROCESS MODEL/ PROCESS MODEL / PERFORMANCE CRITERIA / SOCIAL RESPONSIBILITY/ SOCIAL RESPONSIBILITY / EFFICIENCY CRITERION

annotation scientific article on economics and business, the author of the scientific work - Makarkin S.V., Vorobieva E.P., Sinyakova Yu.V., Latypov S.R.

Considered development issues quality management systems(QMS) in the field of fire safety and its introduction into the activities of local self-government bodies. The sequence of actions for creating quality management systems in providing fire safety... The main methods and tools used to organize the management of the activities of local self-government bodies, as well as the most significant criteria for assessing the effectiveness quality management systems... Based on the analysis of typical processes in accordance with the provisions of IWA 4: 2009, developed process model quality management systems bodies of local self-government of the municipality in the field of providing fire safety.

Related Topics scientific works on economics and business, the author of scientific work - Makarkin S.V., Vorobieva E.P., Sinyakova Yu.V., Latypov S.R.

• On the assessment of the effectiveness of the activities of local government bodies in the field of fire safety

  2014 / Makarkin S.V., Vorobieva E.P.

• Process approach to organizing the activities of local government bodies for the provision of municipal services

  2018 / S. N. Kostina, M. V. Kukartseva

• Innovative forms and mechanisms for the formation of the concept of effective municipal governance

  2016 / Natalia Mikhailova

• Selection of factors affecting the quality of provision of primary fire safety measures

  2014 / Tuzhikov E.N., Tyrsin A.N.

• Quality management system in state and local government bodies

  2013 / Elena G. Khmelchenko

• Conceptual approaches to assessing the social responsibility of local self-government bodies

  2014 / Kolpovskaya Antonina Mikhailovna

• Implementation of a quality management system in state and municipal authorities

  2017 / Alena Evgenievna Pogorelova, Vladimir Feliksovich Tarasenko

• Features of the implementation of quality management systems in government and local government

  2011 / Nikanorov Pavel Anatolievich

• Providing primary fire safety measures as a matter of local importance for municipalities (normative legal consolidation)

  2015 / Sergey Makarkin

• Implementation of infocommunication technologies in regional authorities

  2009 / Dmitry Sachkov

CREATION AND IMPLEMENTATION OF A QUALITY MANAGEMENT SYSTEM IN THE ACTIVITIES OF LOCAL GOVERNMENTS FOR ENSURE FIRE SAFETY

Questions of development and deployment in activity of local governments of quality management system in the field of ensuring fire safety are considered. Purposes of creation of SMQ (Quality Management System), and also consumers of services of local governments services and interested parties are defined. The sequence of actions for the creation of quality management system in the field of ensuring fire safety with a concretization of the planned actions, the expected result and responsibility of performers is presented. Responsibility and obligations of the management in quality are established. Long-term goals are formulated and possible measurable indicators of their achievement are offered. Specifics of activity of local government are reflected in studying of questions of management of documents and records on quality with allocation of their identifying signs. Ways of obtaining objective information on satisfaction of consumers are investigated. Forms of exchange of information taking into account productive functioning of SMK are defined. Questions of competence of staff of local governments and criteria of quality of the rendered administrative services are considered. The main methods and tools used for the organization of management of activity of local governments, and also the most significant criteria of an assessment of productivity of quality management system are defined. On the basis of the analysis of standard processes according to the provisions IWA 4: 2009 the process model of quality management system of local governments of municipality in the field of ensuring fire safety with allocation of processes of the management, the main and auxiliary processes is developed.