Quality management system in public administration. Methods and models of quality management in the field of state and municipal administration in the Russian Federation. From the quality of power to the quality of life: state initiatives and points of growth

0 0 20/11/2018

QMS in the state structure: works or not

CIBO specialists described the experience of introducing certain quality management tools in government organizations ambiguous. Opinions were divided. On the one hand, the experts highlighted the formal approach, lack of motivation, labor input, resource consumption, substitution of concepts.

On the other hand, they noted the improvement in the quality of the result, the validity of the profile application, i.e. by sectoral areas of activity. The approach was found to be especially relevant for companies that offer a certain final “product” or “service” to a specific consumer, which has its own specific consumers.

I absolutely disagree that the QMS in government agencies is a “substitution of concepts”. The QMS can be implemented in relation to the result of a specific process, for example, the provision of a certain public service, or to the activities of a certain subdivision in the structure of a public authority. However, in any case, the principles of the QMS are applied comprehensively to a certain management system of an organization that produces a product or service.

As you know, the quality system is a general paradigm, within which it is possible to effectively implement and correctly coordinate various tools and methods that can help in improving performance and proactively meeting customer requirements (0.1 - ISO 9001: 2015). The CIBO experts spoke about the experience of applying various practices implemented in various state institutions within the framework of the QMS: it was - it was. The results were mixed.

Case 1. Budgeting with an eye to results

The RBB project, one of the management system tools, was implemented in the mid-2000s. Its implementation, from the point of view of federal executive authorities, is the calculation of the costs of maintaining the authorities.

In these calculations, according to the ideologists of the BOR, in addition to the financial support of officials, the costs of material support should have been included.

Costing was planned for a three-year period. As a result, each separate function of federal executive authorities received a cost estimate.

The costs of "supporting" units were added to the costs of maintaining "branch" ones, directly implementing the powers of federal executive authorities and performing a specific function.

As a result, the budget, calculated according to this methodology, was several times higher than the amount of funds provided for the maintenance of federal executive authorities.

Case 2. Methodologies for monitoring the quality of financial management in subordinate organizations of federal executive authorities

At one time, through the efforts of federal executive authorities, a methodology for monitoring the quality of financial management of subordinate organizations was developed. In fact, it was a copy of the methodology developed by the Russian Ministry of Finance for assessing federal executive authorities. The financial management quality monitoring system included a list of indicators by which subordinate organizations were assessed. Based on the monitoring results, the central office of federal executive authorities formed a rating of the quality of financial management of organizations. As a result, the organizations that took the first places were encouraged.

This assessment was of a formal nature, since:

for all types of subordinate organizations, a unified system of monitoring indicators was applied. However, subordinate structures are not comparable due to differences in functions and budgetary powers;

the monitoring methodology did not take into account changes in legislation;

analysis of the quality of the initial data provided by organizations in the central office of federal executive authorities was not carried out to calculate monitoring indicators. It was possible to transmit distorted / incomplete information in order to get higher positions in the rating;

the final results of assessing the quality of financial management were calculated by the central office of the federal executive authority without the use of automated information systems;

the final results of assessing the quality of financial management were not analyzed. Accordingly, no management decisions were made to address the deficiencies in processes and procedures;

heads and employees of structural divisions of the central office, as well as subordinate organizations were not interested in the results of monitoring. They considered this tool to interfere with their direct job responsibilities.

CIBO created a new methodology for monitoring the quality of financial management. It complied with the legal requirements and included a number of promising areas.

By analyzing the reasons for the failure to achieve indicators of the quality of financial management and timely adoption management decisions the quality of the observed processes and procedures has improved.

However, a number of disadvantages still remain:

weak interaction between structural subdivisions of the central office of federal executive authorities;
heads of some structural divisions of the central office and subordinate organizations remained uninterested in monitoring the quality of financial management, since they did not understand the purpose of the tool;
long stages of approval of changes / adjustments to the methodology and assessment results.

However, the work done is assessed positively: an in-depth analysis of processes and procedures was carried out, shortcomings were identified, which were partially eliminated "in hot pursuit". The most significant and systemic shortcomings formed the basis of indicators for monitoring the quality of financial management. Thus, they are constantly monitored, the causes of their occurrence are identified and measures are taken to eliminate these shortcomings. It is important that the heads of the financial and economic structural unit were interested in the methodology.

Case 3. Organization of the public and business center "City of the Future"

Interesting from the point of view of the idea and approach to the implementation of the case for the implementation and certification of the QMS of the administration of the city of Shakhty, Rostov region. The main result of the implementation of the QMS was the creation of the country's only public and business center "City of the Future" (ODC), opened in November 2009 in Shakhty.

The goal of the project is to locate services providing state and municipal services to the population in one building. The result is the optimization of work processes, the rejection of intermediaries in the provision of services and, to a large extent, an improvement in the quality of public services.

At the first stage, by the end of 2009, it was planned to place 11 services in the building of the City of the Future. These are structural divisions of the administration, federal and municipal organizations, utilities.

Due to the introduction of the QMS, the heads of the administration already at the first stage achieved the following results:

reduction of the term for the execution of official documents by two or three times;
reducing the time for consideration of citizens' requests (115 reception windows serving up to 2500 people per day);
improving the traceability and transparency of workflow;
unification of the system of the office work process;
increasing the executive discipline and responsibility of employees.

Difficulties in implementing the QMS in federal executive authorities

Among the typical problems that arise when introducing quality management tools in the public sector are the following nine.

Inertia in decision making and low initiative. On the one hand, the state structure is characterized by inert decision-making. This is due to the need for constant coordination of even the simplest changes. On the other hand, there is a strong dependence on the decisions of higher managers and lack of independence in decision-making, there is no internal interest of the staff, as well as an adequate system of motivation. Low initiative is due to constraining factors in the form of prosecutorial supervision, excessive regulation of the issues of organizing the activities of governing bodies.

Weak relationship with subordinates. Even the most proactive and talented employees lose interest in the work process over time if they are not heard by the management.

Limited resources. Implementation of quality management tools requires additional resources and an increase in the burden on employees of government agencies.

Delayed result. To achieve a visible result, it is necessary to overcome many bureaucratic barriers and the lack of interest of the performers.

Insufficient organization of the retraining process. Not enough attention is paid to the coverage of the QMS topic. Outside the framework of personnel training and retraining, the study of “management tools and technologies” is the desire and initiative of the official himself.

Officially recognized irregular nature of the activity. A significant amount of instructions aimed at "satisfying curiosity" - various reports, certificates, the preparation of which is not formalized in the job regulations.

The effectiveness of the implementation of the tools is not monitored. The work of specialists is hampered by the lack of adequate calculations of the effectiveness of the implementation results management technologies... The situation for achieving the results of such an implementation worsens the lack of personal responsibility of the senior official who made the decision to introduce the technology on a massive scale.

Lack of terminology. There is no single glossary for all government agencies.

Disinterest of the heads of state structures. Misunderstanding of the goals of implementation and the lack of choice (an order came from above) lead to the fact that the QMS becomes a formality. Hence, insufficient staffing and resource support for the design and implementation of technologies.

Perspectives

Despite the shortcomings, more and more modern tools are being integrated into the public sector of management, for example, the so-called program-targeted tools. Unfortunately, many government programs are still formal in nature. However, the first steps to solve the problems have been made.

At the same time, the experience of government agencies in a number of countries can be positive. For example, not so long ago, the government of India made a decision to undergo certification for compliance with ISO 9001. Dozens of government agencies in Poland have implemented various management standards. This was one of the requirements for joining the European Union.

The International Organization for Standardization is actively developing standards for government agencies. Specialized standards have already been released that adapt the requirements of ISO 9001 to the needs of public services. The trend cannot but capture Russia in the end.

Expert opinion: the main problem is the lack of a process approach

Mikhail Dmitriev, head of the non-profit organization "New Economic Partnership", in the past - the head of the Center strategic developments:

“To date, the results of the implementation of the QMS in the public administration system cannot be considered unequivocally successful. One of the main reasons for this is attempts to use the QMS to manage poorly structured activities that are not organized in the form of full-fledged formalized processes.

Our experience in analyzing current activities in federal executive authorities shows that most functions and services are performed not in a process format. In these conditions, it is difficult to manage the performance, apply statistical methods for analyzing performance and, moreover, reliably assess the objective needs for resources and funding.

There is a widespread opinion of civil servants that this or that activity in federal executive authorities is already a process (at least on the grounds that there is an approved administrative regulation). But upon careful study, almost never did we come across administrative regulations that would adequately reflect the real content of the activity.

For the same reason, it is difficult to recognize the successful implementation of RBB, which in most cases results in bureaucratic imitation. It is necessary, at a minimum, to clearly separate the issues of budgeting process and project activities. Each of these activities requires specific rules for planning and executing budget expenditures. These features should be taken into account in the normative regulation of the budgetary process. But until recently, this was not given importance.

Only during the last one and a half years, pilot testing of new budgeting mechanisms within the framework of government programs has begun. They take into account the specifics of budgeting of process and project activities and set the task of normative consolidation of these differences. In any case, for the successful implementation of the QMS, it is necessary to translate the current activity of the federal executive body into a process format. Taking into account the existing extremely unsatisfactory level of application of process methods, it may take at least 4-5 years to solve this problem ”.

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 evaluating 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.

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.

Improvement of activities government agencies and local governments. StandardsISO and innovative models. Foreign experience in the practical application of quality management principles in management bodies.

The development of management science has been going on for decades. New tools and models of effective management are being developed, which make it possible to more effectively manage the goals and costs of organizations, to steadily increase the quality indicators of services and products. At the same time, the accumulated experience and knowledge in the field of advanced management is becoming more and more in demand in state authorities and local (municipal) self-government.

Growing cross-border competition and the need to effectively manage problems in social sphere stimulate progressive countries to actively search for system solutions that ensure high quality of work of all branches of government. Obviously, in such conditions, the sphere of public administration, interested in the development and improvement of its activities, could not stay away from the innovative models proposed by the International Organization for Standardization.

Similarly to business, municipal and state administration bodies in various countries of the world, first of all, give preference to standards that determine the requirements for quality management systems (ISO 9001: 2008), occupational health and safety (OHSAS 18001), information security (ISO 27001), social responsibility (ISO 26000), environmental management (ISO 14001).

However, the undisputed leader among the standards implemented in state and local authorities is ISO 9001: 2008, which is rightfully included in the Guinness Book of Records as the most used in the world practice of standardizing management systems. The growing popularity of this standard is clearly visible in the annual reviews published by ISO.

Quality management in state institutions and self-government bodies. USA

Today, most of the municipalities (including state capitals) in the United States are certified. Thanks to the introduction of the QMS, the number of civil servants in the state apparatus has been significantly reduced on the basis of a well-founded program.

Since 1988, there has been an annual President's Quality Award Program. The prize is awarded to the most effective organizations in the Federal Government. The key goal of the program is to stimulate efforts to develop systematic methodologies for assessing and planning improvements in the performance of federal agencies, state governments, local governments and organizations representing private sector and to facilitate the exchange of best practices on the application of such.

Within the framework of the program, two prizes are awarded:

Presidential Quality Improvement Award.
Presidential Quality Award.

Quality management in state institutions and self-government bodies. Japan, Israel, Poland

The principles of quality management, laid down in the ISO 9001 standard, have found wide application in the authorities of the administrative districts and prefectures of Japan, which contributed to an increase in their efficiency and authority.

Since 1999, in Poland, along with the United Nations Development Program, there has been a program called “Quality Management in Authorities”. More than 100 local self-government bodies have become its participants. At the same time, the QMS is being actively implemented in government agencies and departments, among which the Ministry of Justice, which was certified in 2003, became the first holder of the ISO 9001 international certificate.

Serious attention is paid to the implementation of a quality management system based on ISO 9001 in government agencies and local government administrations in Israel. Studies of the effectiveness of this approach have shown that, subject to the implementation of the QMS, all employees of local government holding elective positions are usually elected for the next term.

All of the above facts indicate that the innovative models offered by ISO standards allow to ensure a high level of customer satisfaction and trust in authorities and local governments. Of course, the implementation of QMS in municipal and state institutions has its own characteristics. This is a complex and multi-step process. However, by adapting the requirements of the ISO 9001 standard to the specifics of the civil service, you can always achieve the desired result.

Consequently, in the authorities, the concepts used in business about efficient organization activities, including elements of a quality management system.

The quality management system is a management philosophy that focuses the overall management of the organization on the ideology of quality as the highest strategic goal... With this understanding, product quality assurance becomes not only the task of special services, but affects the organization of activities in all functional areas of management. The modern concept of organizing business activities, the integral expression of which is the ISO9004: 2000 standard, considers quality as the main factor in the competitiveness of a business, emphasizes the direct relationship between the quality of products and services of an enterprise and the quality of organizing its activities and states that "for successful management and management of a company, it is necessary systematic and visual management ”.

The requirements of the ISO 9000 series of standards have evolved since 1987 along with the evolution of ideas about the desirable ways of doing business for success. Any organization that sees its purpose in providing services demanded by consumers should follow the same path in its development. That is, in the course of improving its activities, it repeats the change of management paradigms that form the basis of quality management standards (see Table 1).

Table 1. Stages of transition to a modern management model and development ISO standards 9000

Stages of the organization's transition to an effective management model	Development of quality management standards
1. Initial structuring of activities based on a matrix model. Processes are identified in a "collapsed" form - in the form of a "tree of functions", the responsibility for their implementation is distributed.	Functional management through allocation of responsibilities
2. Horizontal description and optimization of "key" processes (as a rule - processes life cycle provision of products and services, as well as basic management loops).	An element-by-element approach to process management - 20 key processes have been identified.
3. Accurate formalization of mission and strategies. Transition to management of a dynamically changing structure and system of processes based on strategic intent and striving for excellence	ISO 9000: 2000/2008 Orientation to the principles of quality management as the basis of the strategy. Implementation of the philosophy of "continuous improvement" of activities and sustainable development

Compliance with ISO 9000 standards means that the achieved level of management meets a minimum set of standardized requirements that guarantee the production of products of predictable quality, and this, in turn, determines the competitiveness of the business system.

The competitive advantage of nations, according to the World Bank experts, in modern world depends on the quality of public administration, and therefore our "supercorporation" must become a customer-oriented firm through systemic improvements.

Due to the similarity of business systems and government bodies as “producers” of certain types of products (services), the setting of quality management systems in them is based on common approaches.

Let us consider these approaches in the context of the stages of management development presented in Table 1.

Establishment of a quality management system (QMS) at the first stage
in business begins with a description of the existing activities of the organization ("as is") in the format of the organizational-functional model.

The presence of such a description allows:

systematically present the activities of the organization - to unambiguously record all types of products and services, functionality (key processes in a "collapsed" form) and the existing organizational structure;
compare the activities of the organization with the requirements contained in the standard
ISO 9001: 2000 and identify areas of optimization in structure and function.

For the authority at the first stage of setting quality management, it is necessary to perform:

clarification of the state functions performed by this body (creation of a register of functions);
clarification of the list of rendered public services(creation of a register of public services);
identification and certification of key administrative processes that ensure the work of the authority.

After that, it becomes possible to analyze the existing organization of the activities of the authority for compliance with the requirements contained in the ISO 9001: 2000 standard and identify areas that require optimization.

Further work on the creation of the QMS ensures the transition of the organization from the state of "as is" to the state of "as it should" in order to eliminate the identified inconsistencies. In fact, the organization should undergo a systemic restructuring of activities aimed at setting and documenting the required system of processes.

At the second stage of QMS development at enterprises, a horizontal description of key processes is carried out - the processes of creating products and / or providing services. In addition, the basic processes in the supporting functional areas of management (marketing, financial management, logistics, etc.) are described and the primary optimization of processes is carried out using standardized techniques.

In the authorities at the second stage of the development of the QMS, it is necessary to carry out a description of all processes for the provision of public services and the implementation of public functions in the sphere of jurisdiction of the authority. There are already legal grounds for this. In addition, it is necessary to complete the description of the key supporting processes of the authority itself. If for ISO 9000: 1994 enterprises, 20 key processes are defined that are recommended for description in the framework of setting up a QMS, then between the authorities there is much more in common in organizing activities than between enterprises even in the same industry. Consequently, for public administration, it is possible to determine the key processes that will be described in the framework of the setting of the QMS. The same optimization techniques can be applied to these processes.

At the third stage of QMS development its scope includes the processes of setting goals, and the system of processes gains the ability to change rapidly in accordance with a proactive strategic design. The ISO 9000: 2000 standards contain 8 principles of quality management, as well as the requirement of "continuous improvement" as one of the regular activities. The introduction of these principles is the essence of the third stage of setting up the QMS in companies, and there is nothing in the principles themselves that would be “contraindicated” in the authorities.

Review of Russian experience

To date, there are examples of QMS implementation in government bodies in Russia. However, in our opinion, these were not full-fledged implementations in the sense that it follows from the standards themselves.

Here is a description of 4 projects.

“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 (QMS), and in April the Shakhty municipality received a certificate for compliance with the requirements of the international standard ISO 9001: 2000. In record time, the mayor of Shakht, 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 (over a thousand applications of citizens per year) “provision of land plots”. The leadership of the city administration developed and introduced into the daily bureaucratic practice a procedure for accelerating the passage of documents on the principle of the "green corridor".

Improvements to the process diagram included:

elimination of unnecessary movements of the applicant between departments, some stages due to the lack of the need for their implementation, repeated requests for approval of various documents in the same service;
shortening the time required for the passage of documents at each stage;
combining the procedure for issuing two orders into one, repeating stages of coordinating 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. We organized a commission visit of specialists from various departments to the facilities, for which we bought a Gazelle. We created a sector for controlling the passage of legal acts in the structure of the administration. And they did what the reform of self-government bodies gave the right to do: instead of the two orders that land plot), began to publish one with all the ensuing 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 the service in the “green corridor” decreased by 40%. The principle of "one window" and tight deadlines for processing documents with the new approach made it possible to practically get rid of corruption on the part of officials. In fact, there is no one to give a bribe, there is no time and for nothing.

The plans of the Shakhty administration (despite the negative reaction of some of the officials to the innovations) are to open a “green corridor” for all services provided to the population by the city government ”.

Note that this is a local implementation of standards. Only one process has been certified - "the provision of land plots, and not the entire activity of the Shakhty mayor's office.

Second example.

“Currently in the Chuvash Republic at the expense of federal budget As part of the administrative reform measures in 2007, a project is being implemented to develop, implement and certify quality management systems that comply with the international standard ISO 9000 or the national standard GOST R ISO 9001-2001 in the executive authorities and local government of the Chuvash Republic. Its implementation will allow introducing a quality management system in all executive bodies of the Chuvash Republic and administrations of urban districts and municipal districts. Until August 31, 2007, representatives of all executive authorities and local self-government will undergo training on the development and implementation of a quality management system. On August 14-15, middle managers (deputy ministers and heads of departments) of the Ministry of Economic Development of Chuvashia took part in the second stage of training on the development, implementation and certification of quality management systems. During the training seminar, the participants not only got acquainted with the theoretical part and completed practical tasks on the development of maps and algorithms of processes in the executive authorities, but also underwent testing, as a result of which all participants will be issued appropriate certificates. With the maximum possible 12 points for the answers on the test, the employees of the ministry received high marks - from 10.5 to 11.5 points. "

Note that the participants completed practical tasks on the development of maps and algorithms of processes in the executive authorities, apparently on paper, because we are not talking about the use of any software tool.

What does this mean for government?

This means that if it is necessary to make changes in the business process, this will have to be done again on paper.

And if a reorganization occurs in the administration, which is often the case in government bodies, all documentation instantly loses its relevance and will simply cease to be used.

Another example is the description of the project for the implementation of the QMS in the authorities of the Yaroslavl region.

“The project will be implemented in three stages. At the first stage, a quality management system for the regional executive authorities will be created, at the second and third stage, organizational, advisory, expert and methodological support will be provided for the creation of quality management systems in the territorial divisions of federal executive authorities and local governments.

Implementation work begins with the adoption of a resolution by the Governor of the region. To determine the basic level of understanding and assess the quality of the work of the Regional Administration, a survey of its personnel is carried out according to the methods used, and in order to determine the effectiveness of work within the framework of the system, a cycle of surveys of the population is carried out in dynamics on indicators of the degree of trust in the executive authorities. Personnel training on quality management issues is conducted by a training organization that won the tender for the state order for the provision of training services ...

In structural divisions, the work on the creation of the QMS is led by their leaders, and the direct development of all required documents and ensuring interaction is carried out by the heads of the QMS appointed by orders.

In the course of the development of documents, several main directions are highlighted.

Firstly, function passports are issued for all public services provided and functions performed. The experience of this work is available. Certification of functions in the Regional Administration will allow conducting a primary analysis for duplication, reduction and the possibility of transferring it to non-governmental organizations for execution. Passports that have passed the analysis are the basis for the approval of the register of public services and public functions of the Regional Administration.

Secondly, in the process of development directly in structural divisions of administrative regulations for the provision of public services and administrative regulations for the execution of public functions, there will be a secondary screening out of services and functions for which it is not possible to create administrative regulations. Consulting and examination of the developed documents will be carried out by quality auditors assigned to departments. Pilot samples of administrative regulations and methods for their development have already been created in the Department state regulation economic activity.

The quality and timeliness of the entire complex of work on the project will be facilitated by the collections of normative legal documents, standards, methodological instructions purchased for each division. All developed documents of the quality management system are combined into a single electronic library of the quality management system of the Administration of the Yaroslavl region. "

Note that in financial plan of this draft, the articles “Increase in the value of fixed assets” and “Increase in the value of intangible assets” are equal to zero. This means that the created QMS will not be supported by special software. A single electronic library does not count, since it is just a repository of what is sent to it. Here everything is done not on paper, but in files, but there is no possibility of their synchronous change, because an electronic model of interaction between the subdivisions of the authority was not built.

And one more project of setting quality management in the authorities.

"Ministry economic development and Trade of the Russian Federation became the first ministry to certify its Quality Management System.

On September 10, 2004, Deputy Minister of Economic Development and Trade of the Russian Federation A. Sharonov took part in the ceremony of awarding certificates of conformity of the Quality Management System (QMS) of the Ministry of Economic Development of Russia to the requirements of the international standard ISO 9001: 2000 and the standard GOST R ISO 9001-2001.

Since April 2004, the Ministry of Economic Development of Russia has been working on the implementation of the QMS in the New Economy Division of the Corporate Governance Department of the Ministry of Economic Development of Russia. The area of distribution of the Quality Management System is the activities of the Ministry for the implementation of the FTP " Electronic Russia»In the part assigned to the Ministry of Economic Development of Russia.

In June 2004, the certification association audited the Quality Management System of the Ministry of Economic Development of Russia for compliance with the requirements of the international standard ISO 9001: 2000 and the standard GOST R ISO 9001-2001. During the audit, minor inconsistencies in the QMS of the Ministry were revealed. By the beginning of September, all inconsistencies were eliminated, and the certifying body made a decision to issue certificates on the conformity of the Quality Management System of the Ministry of Economic Development of Russia to the requirements of these standards.

The Ministry's QMS is based on the DocsVision software product "Quality Management", a corporate system based on the DocsVision electronic document management platform, solving problem construction, support and development of the Organization's Quality Management System. "Quality Management" performs the functions of managing the QMS processes, and also solves the complex problem of office automation, including the creation, routing and execution of documents, maintaining an electronic archive and organizing office workflow.

Today, the area of distribution of the QMS is only one of the activities of the Ministry - project management of the federal target program "Electronic Russia (2002-2010)", in the part assigned to the Ministry of Economic Development of Russia.

According to the deputy. Department of Corporate Governance of the Ministry of Economic Development of Russia Ts. Tserenov, the need to implement and use the latest developments in the field of quality management arose several years ago, at the beginning of work on the Federal Target Program "Electronic Russia". “Then we were faced with the fact that only 6 employees of the Ministry were allocated for a huge number of FTP projects,” Tserenov said. “We were forced to look for ways to optimize not only the process of implementing the program, but also to control the quality of the results obtained, to assess the effectiveness of our activities. Clear operating procedures were needed at every stage so that the mechanism worked like a clock. The introduction of the QMS will allow us to better carry out work on the projects of "Electronic Russia", to show the best results of the Department's activities. Already now, the use of QMS with a general improvement in the quality of work allows you to save time spent on 1 project up to 5-7 times. With the receipt of quality certificates, work in this direction has just begun: every six months, independent international certification organizations will regularly check the Department for compliance with the Ministry's QMS to these standards. "

Note that this was also a local implementation. Only one process has been certified - project management under one of the many FTPs, and not all the activities of this ministry.

Thus, the following is typical for projects for the implementation of QMS in government bodies in Russia:

locality of implementations (QMS affects one or several processes),
backward technologies for implementing QMS - either by unrelated files electronic library, or even without an information technology platform, QMS documents are created on paper.

Meanwhile, one of the ideas that underlies modern ISO9000 standards goes back to the judgments of the ideologist of quality systems E. Deming on the priority of systemic tasks to achieve high quality products.

That is, the QMS should "capture" all the key processes of the authority. This is a management system based on a well-structured and up-to-date package of documents. Taking into account the fundamental principle of "continuous improvement", the model of the organization of activities laid down in the ISO 9000 standards is fundamentally unrealizable without the use of information technologies... There is a lot of necessary documentation in the QMS, and the constant correction of the document system "manually" turns into an "unsolvable" problem.

What software tools are best used to create, implement and maintain a QMS?

The main tasks that need informational support in the setting and regular functioning of the QMS are "organization of activities", support of "systemic and process approaches" as methods of managing an organization, be it a business or a government body. This is what the standard says.

This means that you need to represent the activities of the enterprise in the form of a model of interrelated processes:

processes focused on customer satisfaction,
processes supporting this activity,
management processes.

Then, eliminate the identified inconsistencies with the ISO 9000 standard and fix the optimized processes in the system of management regulations.

This approach is carried over to the authority as follows.

Let us imagine public administration as the governing system of the Russian Federation - a complex socio-economic system with goals, resources and surrounded by other countries-systems that create restrictions.
This governing system, in turn, consists of other complex systems - federal authorities and authorities at the level of a constituent entity of the Russian Federation. The authorities as a system consist of their subdivisions, have regular functions and business (administrative) processes, some of which begin and end within the authorities, and some of which go out into the external environment. These are the processes of interaction with other authorities and citizens. To give a complex system the ability to achieve its goals, it is necessary to streamline the key interactions, and for this it is necessary to “see” them in the system. This means that the system must be accurately represented in its essential features. How to do it?

It is known from systems theory that the only way to cognize and transform complex systems is modeling. Modeling has long been used in the practice of public administration in the United States, where the standard of the national development management model was legally approved, and this model is implemented in IT solutions.

A similar approach was recognized as promising in Russia. Within the framework of
Federal Target Program "Electronic Russia" 2004-2006 developed the necessary methodological and instrumental means. To increase the transparency of public administration, it was proposed in each government body to have in electronic form a complete systemic model, reflecting all essential aspects of activities in an explicit form (administrative model). In the future, these models are integrated into the complete model of the public administration system in Russia. In 2006, by order of the Ministry of Economic Development of Russia, an IT solution was created to support administrative modeling. This software tool was named GOS-Master 2.0, and according to the terms of the state contract for its creation, it is freely available.

As a result of building and optimizing the model of the activity of the authority
using the GOS-Master 2.0 program, an administrative model “as needed” will be obtained, in which all the main aspects of the organization of activities will comply with the requirements of the ISO 9000 standard. activity (execution of the powers established by the authority), which is one of the main requirements of management standards ISO quality 9000.

Thus, a modern solution that makes it relatively easy to solve the problem of "creation and constant updating" is to support not a system of interconnected documents, but information models of the organization which will generate the required documents. In addition, thanks to the technology of creating documents from a single model, they will not contradict each other.

The use of the GOS-Master allows, when creating and further supporting the QMS in a government body, to move to the implementation of the management approach: “model management instead of document management”.

For IT support of the QMS, you also need a tool for managing the documents created from the model, bringing them to the employees who use them in their activities. These are systems of the EDM (Electronic Data Management) class. In the QMS, they are entrusted with the functions of identifying status, storing documents, managing documents on the way from one user - an official to another, with the ability to control their movement with the fixation of all changes and accompanying resolutions.

The importance of these tasks for the QMS also directly follows from the requirements of the standard. GOS-Master integrates well with such a specially created EDM system as E-Master. This system complements the Intranet / Internet sites of the organization (or they can be built on its basis).

The main purpose of the E-Master:

support for the development and monitoring of organizational and administrative documents, including QMS documents;
storage of electronic versions of documents, identification of their status and work with them, taking into account user access rights.

This method of storing updated QMS documents not only makes them available to employees, but also allows you to fulfill such a requirement
ISO 9001-2000 as clause 5.5.3. "Internal exchange of information". According to this requirement “ top management should ensure that the organization has developed appropriate processes for the exchange of information between different levels, departments and employees on the quality management system processes and their effectiveness. "

But in Russian practice, there are no projects for setting up a QMS on a scale of the entire state body using special software that simulates its activities on a modern information technology basis, perhaps because it is not very unknown that such means exist.

QMS staging project

The stages of the project for setting up the QMS in the executive authority (OIV) on the information technology platform using the GOS-Master software and methodological complex are presented in Table 2.

Table 2. Contents of the project for setting up the QMS in the OIV

	Target	Result
Preparation for the project
Conducting seminars for senior and middle-level civil servants. 1. About ISO 9000-2000 standards. 2. Technologies and tools used in the creation and operation of the QMS. 3. About the plan of the QMS project in the OIV	Acquaintance with modern technologies of quality management. Formation of a sense of responsibility for the implementation of the project.	Personnel who have mastered the concept of quality. Potential project participants from the OIV, who understand the composition and methods of solving problems
Training the participants of the working group in methods of working with the GOS-Master 2.0 program	Training of specialists who will maintain a system of quality documents	Trained staff
Project planning Formation of the revised scope of work, the composition of the working group, the schedule for the development of the QMS and its approval by the management of the OIV.	Coordination of the plan - project schedule	QMS creation plan
Implementation of the project
Construction of the initial organizational and functional model of the IW. Identification and initial certification of the OIP process system and its comparison with the requirements of the ISO9000 standard	Determination of the deficit of functions, processes, documents	Initial process specifications. Requirements for their optimization
Building a strategic model of IW. Development of a quality policy, a tree of goals, a preliminary system of quality indicators for processes and methods of their measurement	Creation of a communication mechanism between the strategic and process management levels	Formalized system of strategic objectives of the IW, operational goals and process indicators.
Building a process model of the IOP Assessment of the maturity level and development of process models: definition of goals and indicators, information support mechanisms, certification and documentation QMS processes	Complete identification and necessary development of the process system	Administrative model of OIV, which meets the requirements of the ISO 9000 standard
Development and implementation a complete set of QMS documentation using an electronic model. Delivery and configuration of a document management system and information portal(E-Masters).	Implementation of the system of QMS documents in accordance with the requirements of ISO 9001: 2000	A complete system of regulations of the OIV. Including, documented procedures for all key processes QMS documentation available for maintenance and use.
Final preparations for certification
Training of the Quality Commissioner and Internal Auditors	Availability of a specialist in the field of quality management. Creation of a group of auditors to launch internal audit processes	Certified specialist in the development, maintenance and improvement of QMS. Trained group of employees (2 people)
Trial operation of the QMS, internal audit on the fulfillment of the requirements of the ISO 9001: 2001 standard and corrective actions based on their results: elimination of deviations identified during the trial operation of the QMS	Checking and testing the functioning of the QMS of the OIV	Effectively functioning QMS
Final audit of documentation and preparation for QMS certification. Selection of an independent certification body.	Achieving the suitability of the created QMS for certification	Application for QMS certification

A fundamental feature of the proposed project: the use of the Russian software GOS-Master2.0, created specifically for the authorities, corresponds to the course of the country's leadership to reduce dependence on foreign software manufacturers.

Performance Improvement Guidelines

Resolution of the Government of the Russian Federation of November 11 2005 year ... N 679 "On the procedure for the development and approval of administrative regulations for the execution of state functions and administrative regulations for the provision of public services." The text of the resolution was published in the Collected Legislation of the Russian Federation of November 21 2007 year ... N 47 Art. 4933

Report early. of the Department of Administrative Reform of the Department of State Regulation in the Economy of the Ministry of Economic Development of Russia M.V. Parshin at the meeting "On the results and prospects of the implementation of administrative reform at the federal and regional levels", held on February 2, 2007.

See: O. Goncharova Quality Improvement municipal services- the requirement of the time! // Standards and quality. - 2006. - No. 10. - P. 78, 79 ..

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Introduction

The third millennium poses a challenge to public administration - its structures must increase their competitiveness and efficiency, while demonstrating high professionalism and strictly following the rule of law.

It is possible to achieve noticeable results in the public sphere only with modern training of management personnel, with a conscious modernization of leadership at all levels.

The relevance of the topic of this work is the need to modernize public administration, aimed at increasing the efficiency and effectiveness of government agencies, strengthening their responsibility for providing quality services to the population.

This makes it necessary to change the basic model of management in the civil service, which fulfills the main tasks of public administration.

The object of the research in this case is the state and municipal administration.

The subject of the research is the quality management system and features of its application in public administration.

The purpose of the work is to consider the features of the application of quality management in state and municipal administration and determine modern trends general management tactics in public administration.

Improvement problem organizational structures and the activities of government bodies, improving the quality of public services and the mechanism for their distribution is very relevant, since due to the inability of the bureaucracy to respond quickly and effectively to the challenges of today and especially tomorrow, there is an alienation of power from civil society and an increase in mistrust of various social strata ...

management state standardization

1. Implementation of the quality management system in state and municipal administration

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 the analysis and synthesis of 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 governments).

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 most used standard in the world in the field of management systems.

The growing popularity of the ISO 9000 series of standards in the service sector 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 lags far 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. 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 evaluating, 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. 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:

Public administration quality policy;

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 the 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 en masse. 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.

2. Monitoring customer satisfaction.

This process requires a radical rethinking. Over the past seventy years, this monitoring has mutated from the area of “satisfaction of needs” to the area of “creation of needs”.

How to form a new understanding of values, develop them, manage them - these are questions that require serious study, research, but most importantly - practical implementation. Perhaps this is the most important question modern society.

In this regard, it is necessary to deeply study the nature of needs, to form new concepts and methods for analyzing needs, at least, it is necessary to monitor not only satisfaction, but also the dynamics of the development of consumer well-being. Well-being in a broad sense: mental, material, well-being of relations with both the authority itself and the environment. In addition, it is important to describe the consumer groups.

A huge problem of modern management, business, government authorities is that only those groups that create demand, reputation or regulate activities (buyer, media, authorities) are perceived as consumers. Rarely does anyone go beyond these categories, forgetting that the world does not end there. So, few people understand that nature is an environment that can also be regarded not only as a supplier, but also as a consumer, it has its own demand from a person. Perhaps the elements of ISO 14000 are needed in the formation of quality management systems in government bodies.

The authorities need to introduce a separate chapter describing the types of consumers with an indication of the hierarchy of consumers, taking the citizen to the first place, and all the rest - to the second: business entities, government bodies (executive, legislative, judicial power, government apparatus, the President, territorial representations of government bodies ), Media, non-profit organizations, the international community.

At the same time, the citizen himself must be correctly described, highlighting various groups citizens by social characteristics, age, sex.

In this regard, it is necessary to reform the approaches to monitoring the satisfaction of all groups of consumers. So, for a citizen, it is necessary, first of all, to evaluate the data obtained from a direct survey of citizens who have come across with the authorities, then, according to the degree of importance, there are polls of citizens who have not encountered the authority, and then all the rest. The respondent must be described throughout the "classics" of sociology, that is, disclose the quality of a citizen (education, age, employment, etc.). The results of this monitoring should form the basis for planning the work of the department and assessing the effectiveness of its activities. All these requirements must be reflected in the standard describing the quality management system of public services, and also explained in guidelines on its implementation.

3. Planning and analysis of activities.

There are several problems in the current system for analyzing the activities of the executive branch:

Problem No. 1: 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.

Problem No. 2: as a rule, departments have a poorly developed system for analyzing the activities of a specific structural unit, a system for assessing the results of its work, there is practically no practice of publicly reporting the department on the work done for citizens.

It is necessary: to introduce process management models with the development of a system for assessing the effectiveness and efficiency of all departments. Introduce rating tools in assessing the performance of departments of the department. Introduce the practice of public reporting to citizens on the results of work for the year, with information on the direct usefulness of the department for the development of the well-being of citizens.

It is necessary: to create external, systemic incentives that encourage them to improve their activities: public monitoring of direct consumers; comparative ratings of departments. The entire rating system must be transparent, open and public.

Note: The problems of low quality planning of the department's activities, control of work, the lack of programs for improving the activities of departments are being solved and absorbed by the above three tasks.

How to solve these problems in the development and implementation of a quality management system in a government body?

First of all, it is necessary to clarify that the sections of ISO 9001 devoted to the analysis of activities and planning should be developed and implemented for all groups of consumers with the definition of indicators for assessing the effectiveness and efficiency of these groups. Evaluation of not only the effectiveness, but also the effectiveness of the authority should be considered without fail, the authority spends taxpayers' money, which means it should be accountable for spending to the "customer". It is obvious that for the authorities (as well as for any organization) the integration of ISO 9001 and ISO 9004 standards is one of the primary tasks.

When developing criteria for assessing its internal divisions, the government should formulate a methodology for determining the rating of these divisions. In the criteria for such a rating, it is advisable to include data on the degree of achievement of goals in the field of quality, the results of monitoring of external consumers and internal consumers.

To assess the degree of satisfaction of internal consumers with the quality of internal communications, surveys and questionnaires should be conducted, and there are two types of questionnaires: a survey of all employees and a survey of service experts - people who are the most authoritative carriers of maximum competence (as a rule, these are service management, heads of departments). These surveys should evaluate the quality of interaction with colleagues. Then the opinion of employees and experts is compared, conclusions are drawn about the presence of "gaps" in the opinion of experts-managers and ordinary employees. Often, outwardly favorable assessments of managers do not coincide with the vision of problems by subordinates, and in this contradiction it is necessary to look for the main basis for the development of the quality of interaction between departments.

For example, if in the healthcare sector the key performance indicators of the Ministry of Health and Social Development were precisely direct surveys of citizens who visited clinics and received (did not receive) medical care, and not statistics on healthcare costs and the opening of new diagnostic centers, then the picture would immediately become clear. Thus, the Ministry of Health and Social Development should report not only on the amount of money spent on health care, but also on quality characteristics, up to data on the reduction in the number of queues at polyclinics, the time spent by a citizen to receive services in health care, and assess the quality of work of each subordinate unit at all levels (subject , municipality).

In the United States, almost all government reports begin precisely with theses about how and where they have improved the lives of citizens, how much taxpayers' money has been saved, etc. We should learn to focus on the main customer of public services - the citizen. At the same time, it should be borne in mind that monitoring by departments of foreign countries, as a rule, is of a monetary, tax nature, for the most part does not describe the entire spectrum of a citizen's well-being. So, talking about saving taxes, they do not talk about the growth of the debt burden of citizens. That is, people are living more and more in debt. It seems that with visible well-being, everything is normal: they buy cars, houses, but at the same time they lose financial independence, independence, become hostages of banks and creditors. This fact led to the crisis of 2008, when a huge number of people could not fulfill their debt obligations on housing loans and the house of cards of the imaginary well-being of both citizens and banks and financial systems began to crumble. The conclusions highlighted by the crisis must be taken into account in the formation of new systems for monitoring the development of the well-being of citizens.

4. Process approach, human resource management.

The need to describe the processes is indisputable, but for the authorities it is also advisable to indicate the hierarchy of processes, highlighting the main ones. Thus, "Customer Satisfaction Monitoring" should become the main and mandatory process of the system. Besides, process approach should be made not recommendatory, but mandatory for describing the organization. The process approach itself is also subject to clarification. First of all, this is due to the need to reveal the concept of "human resources". In conditions when the cost of an organization, the effectiveness of its work, efficiency increasingly depends on the human capital that fills it, and for a government body, the level of competence of an official, the level of his personal qualities completely determine the quality of public services provided (“cadres decide everything”), consider an employee of the organization only from the position of a “resource” becomes insufficient for the formation of sustainable development, it is necessary to single out a Person in the Organization's Goals. “Personnel development” should be described and distinguished as a separate, large process (subsystem), which, in terms of importance, occupies the first step in the hierarchy of processes. The approaches to shaping such a process are described below.

As a result, the general classical principle of describing the process approach will remain, but with such modernization, where the development of employees will be highlighted as the main goal, which will be reflected in the process maps, organization orders and, finally, in training programs.

Based on the foregoing, the following steps are advisable to develop a personnel development system:

To define the personnel policy as the main document of the personnel development system. In the draft Personnel Policy, it is advisable to reflect the peculiarity of the approach to the development of the qualities of employees, which lies in the fact that an official must combine not only high professional, but also personal qualities!

The very idea of synthesis in an employee of high professional and personal qualities is extremely important, and it is important to highlight it as the main one in the personnel policy of any organization, including in a government body, since only such a synthesis gives stability to the team, guarantees its movement forward. Professional lawyers, economists with low human qualities destroy the team, as well as vice versa: “friendly” people without high professional knowledge are useless for the organization. Only a competent synthesis of values and professional knowledge gives the sustainable development of an organization.

The organization's key approach to personnel should be clear to staff, articulate, and preferably in a clear, concise document. In the quality management system, such a "top", the main document is the organization's quality policy. To form a system for the selection and rotation of personnel (development of employees), it is advisable to develop a Personnel Policy describing the basic principles and approaches of the organization in the field of personnel management (FAS Russia has begun to develop such a system; currently, the Personnel Policy of the Service has been developed and approved).

Personnel policy should be based on the Mission and the Values of the organization that it preaches. For example, the FAS Russia values are: cooperation, efficiency and openness.

In the appendix to the Personnel Policy, clarifications should be provided:

The values of the organization, describing what exactly we mean by cooperation, efficiency and openness;

Principles and approaches to recruiting;

Principles and approaches to personnel rotation (not so much formal, within the framework of the law, but based on the policy and values of the organization);

Principles and approaches to the formation of training programs.

Such an explanation is very important for both new and existing employees, it forms clear rules, allows you to understand your position in this system, assess the opportunities for your growth and the requirements that allow you to achieve such growth.

Implementation 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.

Thus, two Policies (Policy in the field of quality management of public services and Policy in the field of personnel management) will be adopted as the key documents of the organization, which is a logical and integral approach. The policies should be linked to each other and form a single integral quality management system.

Include in the Concept the need for a solution based on training centers three key tasks:

1. Development of professional knowledge in the field of execution of state functions.

2. Development of personal qualities, based on the values of the organization.

3. Formation of knowledge in the field of public administration management, based on the developed quality management system.

The synthesis of these three training areas will allow you to get an employee of the required quality, a professional, modern leader in the field of public administration. For each of the areas, both academic preparation and research work should be carried out.

5. Information openness, organization of work with the Consumer.

This is one of key points... Departments, 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 either they are rarely held, or the key, most complex issues affecting their life and development are not discussed with them. Meanwhile, all these people, organizations are consumers of public services, and building active interaction with them should be one of the main tasks of the department.

The requirements for information transparency of the department should be identified and spelled out, including as part of the monitoring of customer satisfaction.

Conclusion

For the development and implementation of a quality management system, adaptation of ISO 9001 requirements to public service, it is advisable:

1. Introduce the section “Principles of public service quality management”. In this document, set out the meaning and philosophy of the system as applied to the authorities.

2. Clarify terms and definitions. Describe new terms needed to clearly describe the quality management system for the authorities.

3. Expand the section on the Policy by describing the need to formulate two policies: in the field of quality management of public services and in the field of human resources development. At the same time, for each policy, describe its own list of requirements. So, for personnel policy, this will be an indication of the need to manage and develop two areas of competence: professional knowledge and skills, and personal qualities. The code of ethics of a civil servant, a set of values that are subject to constant updating, should be used as an application.

4. Introduce the section "Consumer of public services". In it, it is more clear to describe the hierarchy of consumers, highlighting the citizen as the main customer of the system, and the rest after him. In this regard, make an adjustment to the Customer Satisfaction Monitoring, indicating the monitoring priorities in accordance with the customer hierarchy. Determine the principles, approaches and methods of interaction with the external environment, based on the task of "transparency and information openness" for applicants, citizens of the Russian Federation.

5. Expand section 6 in terms of human resources. Describe the employee not only as a resource, but also as a goal of the organization, indicating that employee development belongs to the first level of the organization's tasks, along with the main goals in the field of quality. In the same section, describe the principles of organizing work with personnel, describing them as internal consumers of the system.

6. Expand the concept of the production environment, highlighting the concept of corporate culture, psychological climate, giving a list of recommended methods and approaches for the formation and creation of this environment.

7. Clarify the requirements for planning and analysis of activities with the development of the necessary clarifications on the specifics of the analysis of the activities of executive authorities, determination of the principles for the formation of levels of analysis of types of activities, the sufficiency of detailing the performance indicators of divisions, the definition of groups of indicators, including those related to the assessment of the quality of internal communications, based on the principle of focusing on the "internal consumer", the development of principles and approaches to the formation of reports on the work of divisions, methods for determining the ratings of divisions of the executive body, interdepartmental ratings.

8. Determine the principles, approaches and methods for the formation of reports at various levels: an internal report of the department on the effectiveness and efficiency of activities; public report for the expert community; public report for citizens of the Russian Federation, website creation

9. Introduce the concept of "efficiency" with a description of the specifics of performance management, including methods best practices, while showing the connection between efficiency and personnel development (Section 6).

10. Define approaches:? on the identification of hazards and the assessment of risks associated with the results of the activities of government agencies? on preparedness for natural, man-made disasters, military and social conflicts and the response to them.

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