Chapter 1. Theoretical and methodological foundations of labor motivation for civil servants.
1.1. Labor motivation: essence, basic concepts and mechanisms.
1.2. Historical retrospective of theoretical developments on the problem of labor motivation of civil servants.
Chapter 2. Motivation of the work of civil servants in the framework of the regulation of professional service activities.
2.1. Features of the regulation of the activities of public civil servants (on the example of the Ministry of Emergency Situations of Russia and the Ministry of Health and Social Development of the Russian Federation).
2.2. Ergonomic aspects of the work of public civil servants.
Chapter 3. Improving the mechanisms for motivating personnel in the federal state civil service.
3.1. Conceptual approaches to the organization of motivation mechanisms.
3.2. State social guarantees in motivating the work of civil servants.
Recommended list of dissertations
Social guarantees of federal state civil servants: Status and implementation mechanism 2005, Candidate of Economic Sciences Malkovskaya, Alla Olegovna
Labor motivation of civil servants in the context of reforming the Russian civil service 2011, candidate of sociological sciences Fomichev, Evgeny Vladimirovich
Features of legal regulation of labor and social protection of civil servants: theory and practice 2005, candidate of legal sciences Kirpatenko, Vladislav Vladimirovich
Features and incentives for the work of public civil servants 2007, Candidate of Economic Sciences Dolgiev, Magomed Muratbekovich
Social factors of professional and labor activity of civil servants 1999, candidate of sociological sciences Morozkov, Sergey Vladislavovich
Dissertation introduction (part of the abstract) on the topic "Improving the system of labor motivation for civil servants: theoretical and methodological aspects"
One of the priority areas of state building is administrative reform, which involves reforming the civil service system in order to increase its efficiency, ensure transparency, create confidence in it and improve the services provided by public authorities. The civil service must be oriented towards meeting the interests of society and individual citizens in order to ensure the socio-economic development of the country.
Changes in the institutional environment (which is a system of institutions that regulate socio-economic processes and socio-labor relations arising in these processes) set new goals and objectives for state bodies and their employees. The quality of making managerial decisions and their implementation depends on the efficiency of civil servants, their level of competence, professional knowledge, and high motivation.
The main task of civil service personnel management is the orientation of employees to achieve the goals of the organization, to get the most out of them. The reasons why a person devotes maximum effort to work are very diverse. Motivation determines the incentive choice by civil servants of various types of behavior and becomes one of the most important elements of management. If we take into account what prompts a person to take action, what he strives for, it is possible to build the management of the work activity of a civil servant in such a way that he will perform his duties effectively, in the best way.
Recently, the content of managerial work has become more complex: a highly intellectual worker is controlled by more and more complex motives. The organization of the work of such employees is impossible only with the help of labor rationing, job descriptions and control. We need other, more modern approaches to personnel management, new forms of motivation, leading to high results.
During the period of modern Russian reforms and the accompanying crisis phenomena in the economy and society, the attitude of many people to work has changed. Labor has lost its meaning-making function, its alienation from the welfare of the employee has occurred, since its importance in the formation of a person's income is underestimated, and moral incentives for conscientious work have practically ceased to play an important role.
The listed problems also affected the state civil service. The motivation of employees, including government civil servants, has been significantly deformed. In addition, for this civil service, the problem of labor motivation has become urgent and, in this light, the outflow of qualified personnel to the non-state sector of the economy.
According to Rosstat1, in 2000, almost half of all employees of federal executive bodies (federal level) were civil servants over the age of 50 (43%), young people under 30 - 14.5%. In 2008, the number of civil servants of pre-retirement age (55-59 years old) decreased to 7.8%, while younger employees accounted for 23.8%. Attraction of young specialists who are ready to work in new, modern conditions allows to implement the tasks of public administration in accordance with the goals of the administrative reform. The situation with the staffing of government agencies has changed towards rejuvenation as a result of the implementation of administrative measures. However, another problem remained - the outflow of qualified personnel from the state bodies, aged 30 to 50 years (in 2008 their number was 38.0%), which is facilitated by the decline in the prestige of the civil service, frequent transformations, unsystematic structural reorganizations, unmotivated personnel changes, but what is especially important is the non-transparent differentiation of wages and social guarantees of different categories of civil servants.
In the process of reorganization of government agencies, attempts are repeatedly made to solve this problem by transforming the procedures for selecting, hiring, and training personnel. However, there are no significant changes. All this necessitated the search for new approaches to improving the system of motivation for the work of civil servants.
The Federal Law of July 27, 2004 No. 79-FZ "On the State Civil Service of the Russian Federation" lays down regulatory legal prerequisites for the introduction of a special procedure for remuneration of civil servants, depending on the results of their activities, and also defines measures of social protection of civil servants, applied as compensation for established restrictions on the civil service.
For the effective performance of their duties, civil servants are endowed with a special legal status, which includes rights, duties, prohibitions, restrictions and other elements. These rights are established by the Constitution of the Russian Federation (art. 7, clause 2), according to which any citizen has the right to social protection: “in the Russian Federation * labor and health of people are protected, a guaranteed minimum wage is established, and state support is provided. family, motherhood, fatherhood and childhood, disabled and elderly citizens, the system of social services is developing, state pensions, benefits and other guarantees of social protection are established ”3. It is obvious that the measures taken by the legislator are aimed at increasing the motivation of civil servants, which is directly related to increasing the productivity of their work.
In modern Russian studies, the topic of increasing efficiency professional activity and strengthening the labor motivation of employees of state bodies is not sufficiently disclosed, not all issues of the functioning of the civil service are touched upon, not all factors that contribute to improving performance are identified labor activity.
The foregoing indicates the need for a scientific study of the system of labor motivation for civil servants in order to scientifically substantiate proposals for its improvement. Until now, in this problem, its theoretical aspects have not been sufficiently developed, the need for generalization and systematization of information remains significant; clarification of the specifics of labor of employees of federal bodies "of the executive power (federal level), as well as the development of tools for the influence of labor motivation on the efficiency of civil servants. Lack of comprehensive research in this area, as well as many years personal experience the author's work with government civil servants at the federal level determined the relevance and choice of the topic of this dissertation work, its theoretical and practical significance.
The degree of scientific sophistication! Problems. The problems of motivating and stimulating the work of managerial personnel, including civil servants, have been dealt with by many domestic and foreign scientists, in whose works various aspects of labor motivation are reflected, which differ due to its
3 Constitution of the Russian Federation M .: Kodeks, 2003. S. 4. specificity by a significant variety of scientific views, concepts, schools, both at the micro and at the macroeconomic level.
Studies that study the theoretical foundations of labor motivation, methodological substantiation of the category of "motivation" and its essence, the problem of material incentives are reflected in the works of O.S. Vikhanskiy, N.A. Volgina, B.M. Genkin, A.A. Dikareva, A.JI. Zhukova, T.I. Zaslavskaya, N.I. Zakharova, A. Ya. Kibanova, M.I. Mirskaya, Yu.G. Odegova, A.N. Onoprienko, P.S. Osipenkov, K.S. Mikulsky, S.G. Strumilina, E.A. Utkin, S.V. Shekshni, as well as in the works of Western scientists: S. Adams, K. Alderfer, M. Weber, V. Vroom, R. Likert, E. Lawler, E. Locke, D. McGregor, M Mescona, A. Maslow, E. Mayo, D. W. Oachie, L. Porter, B. F. Skinner, F. Taylor, A. Fayol, F. Hedowry, F. Herzberg.
The works of A.N. Ananyev, L.A. Vasilenko, H.A. Volgina, A.L. Gaponenko, V.E. Gimpelson, T.S. Emelyanova, V.P. Ivanov, A.I. Kazannik, Yu.P. Kokin, V.B. Laptev, V.I. Lukyanenko, B.V. Lytova, Yu.V. Omelyanenko, V.L. Romanova, G.E. Slezinger, A.I. Turchinov, A.V. Sharov, R.A. Yakovleva and others.
Belkin E.V., L.V. Vagina.
In the works of A.N. Averina, AM Babich, V.N. Bobkov, L.V. Vagina, N.V. Volgin, A. B. Doktorovich, V. I. Zhiltsova, G. V. Zhukevich, M. I. Lepikhova, V. D. Royka , G. Ya. Rakitskaya, T.S. Sulimova, L.P. Khrapylina4,
4 L.P. Khrapylina. The relationship between the efficiency of remuneration of Russian officials and the modernization of the civil service. / How much to pay a Russian official? Conference materials. M .; RAGS, 2001.S. 66-67.
A.I. Shcherbakov, the theory and practice of ensuring the growth of the quality of life, reproduction of the labor force are considered, ideas are given about the essence and mechanisms of the formation of the social protection system as a form of implementation of the state's social policy.
The study of domestic and foreign experience in the formation of a system of social protection of civil servants and the possibilities of its use in Russian conditions was carried out in the works of K.O. Magomedova, M.D. Neupokoeva, A.I. Turchinov and others 5
At the same time, a number of issues remain insufficiently studied, in particular, there are no studies of the labor motivation of public civil servants as economic category, it is also necessary to analyze the elements of the mechanism of labor motivation and specific tools for improving the mechanism of its payment and incentives in order to increase the efficiency of the activities of civil servants.
Insufficient theoretical, methodological and applied development of these problems led to the choice of the topic, goal, main directions and tasks of this research.
5 Vagina JI.B. Mechanisms for the implementation of guarantees of civil servants: Study guide. -M., 2005; Magomedov K.O., Turchinov A.I. Public service and personnel policy. - Ulyanovsk, 2007; Tupikin A.P., Mikhailenko A.N. The principle of openness and transparency in foreign management systems. - M., 2005; Litvintseva E.A. Public service in foreign countries. -M., 2003; Lobanov V.V. Working with senior administrative personnel in the United States and other foreign countries. -M., 2005; Neupokoev M.D. Social guarantees of civil servants (sociological analysis). Abstract of the thesis. diss. ... Cand. social sciences. M., 2004 .; Melnikov V.P., Nechiporenko B.C. Public service in Russia: domestic experience of organization and modernity: Textbook. allowance. -M., 2003; Panin I.N., Vagina L.V. Social protection of personnel in the process of reforming the civil service // Labor and social relations. 2003. No. 2; L.P. Khrapylina. The relationship between the efficiency of remuneration of Russian officials and the modernization of the civil service. / How much to pay a Russian official, M .: RAGS, 2001.
The purpose of the thesis is a comprehensive study of the system of labor motivation for civil servants of the federal state civil service for the development of scientifically based theoretical and practical recommendations for its improvement.
In accordance with the set goal, the following tasks have been identified for solving:
Reveal the features of labor motivation in the system of the state civil service;
Determine and theoretically substantiate the patterns in the motivation of the work of public civil servants in modern Russia;
Identify the features of differentiation of working conditions and maintenance of civil servants (on the example of individual federal ministries);
Conduct an ergonomic study of the parameters of the labor process of civil servants;
In accordance with the goal and objectives, the main characteristics of the study are indicated.
Object of research: the system of labor motivation for civil servants of the federal state civil service.
The subject of the research is the socio-economic relations that develop in the process of motivating the work of civil servants.
The theoretical and methodological basis of the research was determined by the economic approach used in this dissertation and the multifaceted nature of the problem under study.
The main research methods were the analysis of scientific fundamental literature of domestic and foreign authors on the problems of motivation and stimulation of labor, situational and systemic approaches, general economic and specific laws of labor economics, logical, comparative, structural and functional analysis, methods of statistical and sociological research, expert assessments.
The information base of the study was legislative and regulatory acts of federal authorities, decrees of the President of the Russian Federation, decrees of the Government of the Russian Federation, Rosstat data, scientific developments of the RAGS under the President of the Russian Federation, Research Institute of Labor and Social Insurance, materials of monographs and periodicals, dissertations, scientific articles, electronic Internet resources, materials of scientific and practical seminars, etc. conferences, the results of research conducted by the author in 2006-2009, in order to obtain primary information, official publications on civil service issues.
The scientific novelty of the dissertation research consists in the development of theoretical and methodological provisions and practical recommendations for improving the system of labor motivation for civil servants (federal level).
The following provisions of the dissertation research have elements of scientific novelty:
It was revealed that the features of the motivation of work of public civil servants are determined by:
The specifics of their work and the imperativeness of the institution of civil service;
The use of administrative-command incentives associated with a clear regulation of labor, which is a complex system of socio-economic relations between civil servants.
The author's definition of the labor motivation of a civil servant is given as a process of a conscious choice by civil servants of an active type of behavior aimed at serving the state and implementing state activities, as well as focused on the achievement of socially significant goals with adequate material remuneration. This process is determined by the complex impact of external driving forces and various personal reasons. It has been proved that the patterns in the motivation of civil servants' work are determined differentially in relation to categories and groups of positions, gender and age differences; the most important are material motives, career growth, social guarantees, employment stability.
It has been established that the features of differentiation of the content and working conditions of civil servants depend on the category and group of positions. The use of the system, job regulations in the state civil service allows you to consolidate the basic requirements for the content and results of the work of civil servants, to introduce new approaches to regulation and control, and their activities. The proposition has been proved that it is possible to improve the work of civil servants on the basis of integrated analysis, including the delineation of the scope of activity between different qualification and job groups, the compliance of the work performed with one or another level of management, a clear delineation of powers for the preparation, execution, decision-making and assessment of their implementation. Based on the analysis, the official regulations of various federal executive bodies, it was established that improving the regulation of the activities of civil servants also consists in creating the regulation of material and technical support, certification of jobs, which today are generally absent.
It was revealed that in a constantly changing institutional environment (which is a system of institutions that regulate socio-economic processes and socio-labor relations arising in these processes), the neuropsychic load on the employee increases, associated with an increase in working hours, a service area, an unmet need in safety due to frequent layoffs, the requirements for his nervous and intellectual output are increasing: the health and efficiency of civil servants directly affect the productivity and quality of labor results.
It is clarified that by using ergonomics tools in relation to the assessment and improvement of the work of civil servants, it is possible to ensure the rationalization of labor processes, taking into account the peculiarities of the functions performed.
Recommendations for improving the mechanisms of motivating civil servants have been developed and substantiated: the use of a mixed wage system, a special procedure for remuneration, its regulation depending on the position and the quality of performance public services; the introduction of performance-based remuneration, including the alignment of the goals of the organization with the goals of the individual; simplicity, brevity and fairness of the remuneration system; wider application of forms of non-material motivation (social package, measures of psychological incentives, flexible hours).
It has been proven that social guarantees established for public civil servants form an important component of labor motivation; they are related to their official duties, since they represent state compensation for the restriction of a number of rights provided for by the current Russian legislation. It is substantiated that the development of the social protection system for civil servants should be aimed at improving their working conditions, improving the quality of services in the field of advanced training. The need to increase guarantees related to health care has been established, since at present there is no certainty of guaranteed medical insurance, its cost, volume, quality of service provision for each position. Depending on changes in the institutional environment, social guarantees may change.
The theoretical and practical significance of the work. The main theoretical provisions of the dissertation are brought to methodological and practical recommendations that can be used:
For further theoretical, methodological and applied developments on the problems of motivational management in federal executive bodies;
In the system of training personnel for the state civil service;
In the practical activities of managers at various levels to influence the motivation of subordinates;
In the process of development and implementation curricula in the specialties "State and Municipal Administration", "Management", "Personnel Management".
Approbation of the main provisions of the dissertation. Basic theoretical concepts, conceptual provisions, conclusions and practical advice dissertation research was presented in the speeches of the author at the annual conference of graduate students and teachers of the Institute for Advanced Studies of Civil Servants (IPKgosluzhba) (June, 2006), the jubilee conference for the 55th anniversary of the IPKgosluzhba (November, 2007), the IX International Scientific Conference “Russia : Key Problems and Solutions "held at the Institute scientific information on social sciences of the Russian Academy of Sciences (December, 2008), were reported at the meetings of the departments: "Labor and Social Policy" of the Russian Academy of State Service under the President of the Russian Federation, "State and Municipal Administration" of the IPC of the State Service.
Some of the results of the dissertation research were used in the educational process of the Department of State and Municipal Management of the IPK State Service in the programs “State regulation of the market economy. Management and Marketing for Civil Servants ”,“ Personnel Management of a Modern Organization ”.
In the course of work on the dissertation research, 3 original questionnaires were developed and tested using the author's methods: "The structure of motives of civil servants", "What incentives have the greatest impact on you?", "Irregular working day" (Appendices Nos. 2, 3, 4 ).
The main theoretical provisions, methodological approaches and practical recommendations contained in the dissertation are reflected in eight publications with a total volume of 21.5 pp. Two articles were published in a journal included in the list of printed publications recommended by the Higher Attestation Commission of the Russian Federation.
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Conclusion of the thesis on the topic “Economics and management of the national economy: the theory of management of economic systems; macroeconomics; economics, organization and management of enterprises, industries, complexes; innovation management; regional economy; logistics; labor economics ", Gorshkova, Elena Viktorovna
1.Clear regulation, streamlining of social guarantees by groups of positions of civil servants will increase the transparency and accountability of the civil service, strengthen the public's confidence in it, and will also be an additional incentive for the high-quality work of the apparatus. Depending on changes in the institutional environment, social guarantees may change.
2. The effectiveness of the activities of civil servants is influenced by many factors of motivation, taking into account which allows you to determine the methods of its increase: competitive selection for the civil service, contributing to a fair distribution of positions in government bodies; dependence of the size of material remuneration on the results of labor; the use of non-material incentives, modern approaches to labor motivation: motivation with free time, horizontal rotation of personnel, participation of lower-level civil servants in the management of their unit (in terms of social policy and corporate events); career growth of civil servants, the inclusion of each employee who has achieved high results in work, from the moment of entering the civil service, into the career advancement scheme for the next 3-5 years; distribution of work among employees in accordance with job regulations, fair assessment of work results.
H. To improve the performance of civil servants, it is necessary to optimize remuneration based on improving the scientific, methodological and regulatory framework for remuneration; establishing the size of wages depending on the personal contribution of the employee, reducing the differentiation in the remuneration of "higher" and "lower" categories of positions, strengthening the social protection of civil servants.
Conclusion
Russia's entry into the market economy led to a change in property relations, and, as a consequence, to a change in the motivations of economic agents. A transformation of the structure of human value orientations has taken place in society, labor has turned from the basis of a way of life into a means of survival, and has lost its meaning-forming function. The current situation had a very negative impact on the quality of public administration; measures were required to reform the civil service, in the light of which special attention is paid to attracting qualified specialists to the civil service. One of the significant directions for solving this problem, as justified in this study, is the improvement of the system of labor motivation for civil servants. The motivation of civil servants must be formed to achieve the goals of the civil service.
One of the central problems of labor motivation is motivational relations, interconnected with labor relations arising in the process of production, exchange, distribution and consumption of material goods. Since professional labor activity as an object of motivation is a process of consumption of labor, the main economic meaning of motivational relations is management through motivation by economic agents and labor processes.
Changes in the institutional environment of the modern world lead to a significant transformation, the motivations of economic agents, the complication of the structure of the elements of the labor motivation mechanism: needs, interests, motives, incentives.
Motivation is described by various theories, according to most of them, it depends on individual characteristics personality. The latest theories of motivation operate in a changing institutional environment, when the motives and incentives that guide the actions of workers are subject to multiple changes, and an increase in labor productivity is impossible without activating the “human factor”.
When studying the labor motivation of civil servants, it is necessary to take into account the peculiarities of their labor activity, since labor motivation is closely related to the form of its implementation. The only of the newest theories that can be recommended for the practical development of the motivation of civil servants is the theory of participation in the management of an organization. Employees of federal executive bodies can be involved in solving various kinds of tactical tasks: drawing up plans for the current period, monitoring labor discipline, determination of labor participation rates, distribution of bonuses based on labor results, implementation of innovative projects and proposals, compilation of personnel reserve lists.
The legal, organizational, financial and economic foundations of the state civil service are established by the Federal Law "On the State Civil Service of the Russian Federation" No. 79-FZ of July 27, 2004. The work of civil servants is carried out in accordance with the regulations, which contain the requirements for the state an employee holding a corresponding position in the state civil service. The work of a civil servant can be characterized as the totality of all relations in the civil service, their occurrence, termination and change when a civil servant is assigned official powers. The regulation of the activities of civil servants is one of the main directions of increasing the effectiveness of their work, as a result of which it is possible to abandon the bureaucratic system of civil service personnel management to determine the requirements for the performance of official duties. Carrying out a study of approximate (standard) regulations, the author notes their advantages and disadvantages.
Based on the analysis of job regulations in a number of federal ministries, it was concluded that improving the regulation of the activities of public civil servants consists in the formation of mechanisms filled with specific content: a clearer goal setting, and the provision of an appropriate working environment for the high-quality performance of the task.
Improving the content of the work of civil servants is possible through the development of detailed regulations, based on a comprehensive analysis, including the delineation of the scope of activities between different qualification and official groups, the compliance of the work performed with one or another level of management, a clear delineation of powers for the preparation, execution, decision-making and assessment execution.
The use of ergonomics is considered as one of the ways to improve the efficiency of civil servants. The study of the influence of psychological tension, fatigue, emotional factors and the characteristics of the neuropsychic organization of the employee on the effectiveness of his activities, the study of the adaptive and creative capabilities of a person leads to a significant increase in labor productivity. With regard to civil servants engaged primarily in managerial activities, the rationalization of labor processes should be carried out depending on the functions they perform.
Qualification requirements for professional knowledge and skills necessary for the performance of duties in the civil service position being replaced are determined on the basis of standard qualification characteristics and are included in the official regulations of a civil servant. Job regulations should contain a list of specific duties for the position and qualification requirements for it, depending on the functional characteristics of this position and the subject matter of the relevant federal executive body. Streamlining the qualification requirements for each civil servant is designed to contribute to a more equitable distribution of job responsibilities and increase motivation to work.
The effectiveness of the activities of civil servants is influenced by many factors of motivation, the consideration of which makes it possible to determine the methods of its increase: competitive selection for the civil service, which contributes to a fair distribution of positions in government bodies; dependence of the size of material remuneration on the results of labor; the use of non-material incentives, modern approaches to labor motivation: motivation with free time, horizontal rotation of personnel, participation of lower-level civil servants in the management of their unit (in terms of social policy and corporate events); career growth of civil servants, the inclusion of each employee who has achieved high results in work, from the moment of entering the civil service, into the career advancement scheme for the next 3-5 years; distribution of work among employees in accordance with job regulations, fair assessment of work results.
To improve the performance of civil servants, it is necessary to optimize remuneration based on improving the scientific, methodological and regulatory framework for remuneration; establishing the size of wages depending on the personal contribution of the employee, reducing the differentiation in the remuneration of higher and lower categories of positions, strengthening the social protection of civil servants.
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2.4.1 Theoretical aspects
Approach for finding motivation ideas
Above, the author said that the source of ideas of motivation should be the environment of free competition, since it is the most dynamic, it is a breeding ground for the "cultivation" and testing of various psychological and economic theories.
Currently, methods of improving the work of the state apparatus are used, as a rule, borrowed from the practice of the private sector: total quality management, benchmarking, reengineering, project management, strategic management, organizational development, etc.
After all, the market sector, based on the principles of free competition, adequately responds to changes in a rapidly changing external environment, relies in its development on scientific knowledge, information technology and global markets. Such behavior competitive environment motivated by the desire to survive and develop. State structures are not motivated for the same logical existence. According to economists, the bulky, super-centralized public sector that has developed in the industrial era, characterized by waste of resources, hierarchical order of command, outdated regulation models, no longer meets the requirements of dynamic development, rapid structural changes, and global competition. Demidova L. Ways to improve the efficiency of the public sector. // Problems of theory and practice of management. No. 4. 1998. P.49 The imbalance grows more and more when, figuratively speaking, "the shepherd does not keep up with the flock." There was a need for fundamental changes in the sphere of state activity.
What ways of motivating the behavior of modern HS does modern management offer?
Motivation methods (historical aspect)
In Russia, in the post-revolutionary period, the nomenklatura had a very strong motivational factor to unite, to increase its importance in order not to slide into the endless "gray" sea of the working class and peasantry, to avoid exhausting physical labor, and of course, so as not to lose those easily created by forces "Working class" benefits and benefits, such as special distribution centers, special service stores, housing benefits, allowances and payments.
An article in the Pravda newspaper for May 25, 1975 states the following: “Labor has not yet become the first vital need of all Soviet people. All this determines the need to stimulate labor. " The logic of this would require saying that material stimulation is not necessary for labor in general, but only for those for whom it has not yet become the first vital need. Indeed, for some of the Soviet people, judging by the words of Pravda, he became her. For whom? Obviously, for the most conscious builders of communism, for the avant-garde, i.e. for the nomenclature (today - government bodies). Therefore, it is precisely her work that should not be stimulated.
Then, in the distant past, being in the nomenclature system was already a motive that determines behavior. Today, service in government bodies is just one of the types of work, moreover, it is not particularly rewarded, and therefore the motivation and stimulation of his work requires a special approach (see chapter "Differences between civil service and other forms of hired labor"). But these differences just require a look back - how was it? What were the roots of the mechanisms of motivation of the Soviet person.
Considering the historical aspects of work motivation used in Soviet Russia, one can shed light on the following elements:
- 1. Socialist competition... For officials, the results of their work almost defy formalization, so some performance marks were transformed into this form. For example, the number of products produced by a subordinate industry for different regions.
- 2. Slogans... For example, the DP slogan known in Soviet times: “Catch up and Overtake” America (the only economic competitor of the USSR). And also the desire to launch a satellite as quickly as possible, go into space, land on the moon, etc. Such slogans caused an extraordinary upsurge and increased productivity.
- 3. NOT- scientific organization of labor. In 1925, there were about 60 NOT institutes in the country, because the increase in labor productivity was declared by Lenin as the decisive condition for the victory of socialism over capitalism. Anyone who has studied Marxist political economy knows that there are two ways to increase the surplus value obtained in the production process: to lengthen the absolute work time or increase the intensity of labor. Voslensky M. Nomenclature. M., 1991.S. 203
- 4. Ideology... Here and the party card, and the "Stakhanov movement", and various titles, awards with symbols of Lenin, revolution, red flag, star ("Drummer" or "Hero of Socialist Labor" competitions"). Anyone who refused to fulfill the assigned task was declared an enemy of the law, an apostate, a henchman of the imperialists, he was expelled from the party, or even outlawed.
These and many other techniques consciously and, moreover, openly pursue one goal: to increase the intensity of labor in every possible way.
Unfortunately, none of the above methods of stimulation or motivation to work in modern society will not work without appropriate adaptation.
What ideas of labor motivation have arisen in management during the evolution of modern society?
At the international scientific conference "Management Science on the Threshold of the XXI Century" held in 1997 at the Ordzhonikidze State Academy of Management, for example, the following ideas were expressed: A. Filippov Problems of Motivation in Management in the XXI Century // Management Science on the Threshold of the XXI Century. Materials of the International Scientific Conference. State Academy of Management. S. Ordzhonikidze. 1997.
The main asset of any organization is its people, on whose behavior the success of its activities depends. Reliability of people management in any organizational structures is determined by the exact establishment of the ratio of motives and motivations, the balance between which is largely associated with the understanding of the type of modern person.
At present, the speaker noted, the world is going through an era of change in the social type of a person. There is a transition from an economic person to a corporate person. In Russia, in contrast to countries with developed market economies, the reverse process is taking place today - the transition from a corporate person to an economic person.
A corporate person, in contrast to an economic person, focused exclusively on his own success, creates, first of all, an environment (conditions) for himself in which he can live and develop. In general, a corporate person in terms of motivation is much more difficult, requires a more detailed motivational space. In addition, he is always worried about his future, which manifests itself, for example, in his concern about the economic cleanliness of the environment.
The speaker mentioned the well-known Japanese life-long employment system, which provides sustainable motivation for a person and allows them to be protective about their present and future. Today's return in Russia to an economic person is a consequence of the fact that a person is left to himself and, naturally, must rely only on his own strength. He is focused on achieving momentary personal success, often to the detriment of the collective cause and society as a whole.
Despite the fact that in the recent past, A. Filippov noted, Russia also staked on the creation of a favorable environment, which serves as the most important motivating factor, in our country it was not possible to implement the basic principle of a socialist society - pay according to work. This situation, according to the speaker, is largely due to the specifics of the Russian mentality: in practice, labor in Russia has never really been paid. The implementation of the principle of pay according to work will accelerate the transition from an economic person to a corporate person.
The foregoing looks quite logical: the absence of a complex, well-thought-out system of remuneration for work will never create conditions for motivating both government officials and any other employees.
Material remuneration for the work of the HS
From statistics we know the concept of "average family": husband, wife and two children. The statistical subsistence minimum in the United States (the so-called "Hiller's budget") is calculated for just such a family: at least for a person, if the head of the family can support all four. Zamfir K. Job satisfaction. M., 1983.S. 26
"To contain" here, of course, is understood as giving an opportunity to live fully and develop successfully. In reality, today in the Russian Federation this is impossible, given the cost of housing in large cities, as well as transport, education, the cost of medical services (which depends directly on the environmental situation), the cost of recreation, etc. The "middle hand" GS officially receives today hardly only four times the cost of living.
Spending a significant part of his life and energy on getting an education, on moving up the official ladder, an official at a certain stage of his life discovers that he is practically deprived of many material benefits, in contrast to, for example, a small businessman who owns three or four kiosks, whose children walk in prestigious schools, live in respectable areas of the city, and enjoy many other benefits that the TOS cannot afford. And this provision does not mean that the GE are inactive and unacceptable people. Against! But, as we have already discussed in detail above, the HS are legally limited in many manifestations of social and economic activity.
Therefore, such limitedness should, as mentioned above, be compensated both in the form of wages and in the form of social guarantees, the size of which should in no way be compared with the size of wages and social guarantees of ordinary, economically and socially free citizens.
But, unfortunately, we see that the existing system of remuneration has many shortcomings. Depends, ultimately, on the strong-willed decision of the top management, On the state service of the Sverdlovsk region. Region Law of 18.10.95 N 26-OZ. Art. 32. “Monetary maintenance of civil servants” it does not make the results of a civil servant's work dependent on the general socio-economic development of the country (region), does not stimulate a civil servant to consciously, purposefully fulfill his official duties.
At the same time, the material stimulation of the GE should not go beyond certain framework(See p.2.3.4. "Optimum motivation"). It is necessary to keep tight and real the relationship between the activities of the civil service and the general results of economic development (following the example of the United States), and the solution of social problems of the region (since civil servants of the constituent entities of the Federation are simultaneously civil servants of the Russian Federation Federal Law No. 184-ФЗ dated 06.10.1999 and the executive bodies of state power of the constituent entities of the Russian Federation ":" In accordance with the Constitution of the Russian Federation, within the jurisdiction of the Russian Federation and the powers of the Russian Federation in matters of joint jurisdiction of the Russian Federation and the constituent entities of the Russian Federation, federal executive bodies and executive bodies of the constituent entities of the Russian Federation form a unified system of executive power in the Russian Federation. ") and the state as a whole, expressed in the material well-being of civil servants, as well as the establishment of salaries depending on the role of the state body, on the size of the personal labor contribution of a civil servant, his professionalism and qualifications, on the length of service, on the degree of tension, the complexity of work.
In addition, in terms of material stimulation and the creation of "hygienic" (according to Herzberg) factors, the following is important:
increasing the prestige of the work of civil servants;
regular payment of wages, the size of which should increase with experience, qualifications and level of responsibility;
creation of normal working conditions (premises, transport, communications, computing and office equipment);
compulsory state insurance, guaranteed high retirement benefits;
providing a career perspective: stability is necessary for normal operation service relations, raising the level of qualifications, increasing wages for work (see paragraph 2 above), promotion of ranks and categories.
Official salaries
Unfortunately, the system of official salaries existing in the civil service is to a greater extent consistent not with economic, but with administrative command methods of management. Until 1998, the resolution of the Presidium of the Supreme Soviet of the Russian Federation and the Government of the Russian Federation “On the regulation of remuneration for employees of representative and executive authorities” dated 30.12.1992 No. 4249-1 / 1042 was in force. In accordance with this document, the increase in the salary of a civil servant depends only on moving up the career ladder, and only in this way are salaries, bonus limits and official allowances, as well as grounds for one-time incentives determined. Such an organization of salary payments does not interest workers in highly productive work at a specific place in a specific position. Moreover, it does not correspond to the principle of distribution according to work in its classical understanding, since it allows equal remuneration for unequal work.
This is one of the reasons for the deliberate underutilization of employees of their physical and intellectual abilities.
In the practical study of this topic, the question "Do you fully realize your abilities at work?" a positive answer was received from only 28.6 percent of the respondents. Moreover, only 10.8 percent of those who participated in the survey are sure that if they work harder and better, their earnings will increase. State personnel policy and the mechanism of its implementation // Course of lectures. Moscow: RAGS Publishing House, 1997. P.191.
The experience of the civil service of foreign countries shows that a variety of systems of remuneration of civil servants can be effective.
In Germany, the issues of remuneration of officials are regulated by law. Salaries are set depending on the location and service life. In France, the salary of a civil servant is set depending on the availability of a diploma certifying a certain degree of qualification, since the entire system of tariff rates is tied to diplomas and certificates presented at the time of enrollment in the civil service. In England, the United States, France, the minimum wage of the first category is set in relation to the average wage in the private sector.
GS privileges and benefits
Now in Russia, just like at all times, the attitude towards civil servants is special.
It should be noted that one of the reasons for the special attitude of the population towards public service was and remains the problem of benefits and privileges. Privileges are an objective necessity for any management structure in any society. The desire of any forces to eliminate them is either demagoguery or a lack of understanding of the foundations of governance. The experience of democratically developed foreign countries shows that this is quite easy to avoid.
For this it is necessary, firstly, that all privileges be formalized by law. Secondly, they must be known to everyone. And, thirdly, there must be effective and transparent control over the observance of legislation on privileges.
Subject to these conditions, their negative impact on the moral assessment of the HS is significantly reduced, State personnel policy and the mechanism of its implementation // Course of lectures. Moscow: RAGS Publishing House, 1997. P.134 and the motivation and public appraisal increase accordingly.
motivation civil service
2.4.2 Optimum motivation
Any praise, material or any other reward can have both positive and diametrically opposite results.
In 1940, the American psychologist Freeman found that as motivation increases, the quality of performance increases, but up to a certain limit: if it is too high, performance deteriorates. This problem is known as the optimum motivation problem. Fress P., Piaget J., Experimental Psychology: Optimum Motivation. M., 1975. P.125.
The relationship between the degree of stimulation and the level of response can be observed in everyday life: students get lost in the exam, the military knows well that the troops perform better in exercises than in combat (for example, only a third of soldiers fire on command). In the same place. P.122.
With regard to public service, this study suggests that motivational and incentive mechanisms should have not only minimum boundaries, but also maximum boundaries.
For example, material incentives should be designed in such a way that the employee constantly lacks something, but this lack should not be critical. At the same time, the satisfaction of material needs should have a number of real legal ways. But an excess of various easily attainable material benefits will not give the desired result.
So, in a conversation, the owner of a large commercial firm told the author about his experiment: he paid one of the divisions a salary ten times higher than the average salary in other divisions of this firm. But this did not give, practically, any performance improvement results.
Speaking of motives, of course, one should not forget about a person's desire for growth, which is most often expressed among civil servants in the movement up the hierarchical ladder, an excessive enthusiasm for which can be fraught with. The author wants to say about the Peter Principle, known to all managers, the Peter Principle. Lawrence J. Peter. M., 1996. P.25-99, the main postulate of which is the following statement: in the hierarchy, each individual tends to rise to his own level of incompetence.
Interpreting the Peter Principle: The system encourages the individual to climb to the level of their incompetence. If you are able to do your job effectively and without stress, you will be told that in this job you cannot fully express yourself and therefore must rise higher. The problem is that when you finally end up with something that you can't really deal with, it is this activity that becomes your constant occupation, indulging in which you overwhelm your work, lead to despair of colleagues and undermine the effectiveness of your organization.
2.4.3 Human Resource Policy and Human Orientation Lobanov V. Administrative reforms - challenges and solutions. // Problems of theory and practice of management. No. 1. 1998. P.43
It is known that personnel are a key strategic resource for achieving public policy goals and providing quality services. The civil service should be reformed in the following areas: the system of remuneration and incentives for civil servants; system of training, professional development and personnel development; methods of selecting and hiring workers; forms of certification and assessment of the performance of duties; pension policy; formation of the service of senior officials.
In Canada, for example, the Public Service 2000 program has been developed to improve resource management, administrative and personnel policy... In the former socialist countries, the first stage of creating a new civil service system has been completed. Thus, Latvia has adopted a law on civil service, which is based on principles such as political neutrality, professionalism, universality, ethics and social security. 1994-1995 11.7 thousand employees passed certification.
Particular attention is paid to the development of indicators of the performance of duties by employees and managers. For example, Denmark has introduced new and relevant standards for government personnel, including objectives and results, targets and goals, training, managerial behavior, and the state of labor and social relations.
In the face of a departure from old bureaucratic rules and norms, the question of a new ethics of civil service, based on such fundamental principles as responsibility, accountability, openness and honesty, is becoming more acute.
Back in the 1930s, when Matsushita-denki had approximately 1,600 employees, Matsushita drew the attention of Japanese entrepreneurs to the human factor. Thanks to his ideas, a strictly hierarchical triad of priorities has developed in the Japanese management system - human, finance, technology... A superficial observer visiting a Japanese firm for the first time pays attention primarily to technology. He sees in her the root cause of success. However, this is a deceptive impression, although, of course, in the current conditions it is impossible to do without first-class technology and technology. Technology takes a subordinate position, and personnel comes first. This is how Matsushita always evaluated his role, and this is how all Japanese entrepreneurs now evaluate him. Pronnikov V.A., Ladanov I. D. Personnel management in Japan. 1988.S. 64
The quality of public administration largely depends on the activities of top managers, underestimation of work with whom has always led to negative consequences. Recognition of their special role in the state apparatus contributed to the emergence in a number of countries (USA, Australia) of a separate institution - a service of senior officials, which makes it possible to select the most talented and competent specialists, focused not on a career, but on the work being performed. Lobanov V. Reforming the state apparatus: world practice and Russian problems... // Problems of theory and practice of management. 1999. No. 1. P.12
For the same purpose, the standards of professional competence of senior officials in the field of management are being introduced, which are now required not only knowledge, but also new qualities of state leaders. It is about their ability to define strategic objectives and priorities; understand the political context and institutional factors inherent in any situation; take into account the positions and interests of various groups and change the balance of power in the right direction; evaluate the ethical aspects and social consequences of decisions; ensure respect for democratic norms and values; manage political and organizational changes taking into account cultural, national, institutional factors.
The professionalism of the state apparatus is ensured by the rational use of human resources and the development of the institution of civil service. In modern conditions, there is a transition from a unified to a differentiated system of civil service, work is underway to codify the activities of officials and to more clearly define their duties and rights.
While maintaining a long career service, more and more importance is attached to the vertical and horizontal mobility of officials (following the example of Matsushita Denki). The preference is given to mobility within the organization, since it is believed that it contributes to the exchange of experience, better incentives for employees, the development of a common culture, and improved coordination in the activities of the state apparatus.
The recruitment and promotion of officials is based on the “principle of merit”, i.e. depending on the business and personal qualities of the person. At the same time, another tendency is becoming increasingly apparent - the formation of the state apparatus on the basis of the “principle of equal opportunities” in order to make it more representative and accessible for various social and demographic groups of the population. Lobanov V. Reforming the state apparatus: world practice and Russian problems. // Problems of theory and practice of management. 1999. No. 1. P. 18.
2.4.4 Ideology, morality and ethics Savelenok E. Ideology of the company and changes in the organization. // Problems of theory and practice of management. No. 6. 1998. C32
Issues of ideology in its various aspects have traditionally been given and continue to receive great attention in the literature and scientific research. At the same time, the term “ideology” in terms of the multiplicity and ambiguity of the most diverse (up to opposite) interpretations and interpretations can be quite comparable with the term “culture”.
D. Mill, K. Marx, O. Comte, K. Manheim, G. Spencer, M. Weber and many other outstanding thinkers dealt with ideology in the context of cognition of social and psychological reality and from the point of view of the development of knowledge as such (ideology of knowledge, science, etc.). Today, in the study of ideology, the emphasis prevails on the analysis of functional characteristics and manifestations of ideology in society. In the center of attention of researchers is the question: not what is ideology, but how (in what form, form) and why (in the name of what, thanks to what) it manifests itself.
Based on the foregoing, we can conclude that, in a practical sense, ideology is essentially a method of collective reflection of reality and an instrument of its activity change.
In Soviet times, the function of uniting workers into a single organizational "mechanism" was performed by ideology. Today the ideological factor has been rejected, but in vain. It is no secret that today it will not surprise anyone and will not cause envy and admiration if your neighbor has a Diploma of the Governor of the region or a beautiful award of the Sverdlovsk region. Nobody knows about their existence. Their value is questionable After all, with the help of it, the super-tasks of a separate management structure were formulated and set, the “inner spirit” of the organization was transmitted. This technology is used with success in today's successful organizations. As one of the managers described him - "everything is like in a war, I want to put on a helmet and take a machine gun."
For them, ideology is internal energy, vitality, a positive development factor and a powerful resource on the way to achieving this goal. Ideologized companies are distinguished from ordinary ones, first of all, by the nature of motivation (along with traditional material and moral ones - incentives from the field of individual self-awareness, self-expression, job satisfaction, collectivist worldview, etc.), a creative and collectivist atmosphere, the ability and readiness of everyone to mobilization and concentration of efforts to ensure a breakthrough in the development of the company, etc.
The main “power” functions of ideology are mobilization, unification (in particular, rallying, inspiration in the face of difficulties, maintaining and compensating for an increased work rhythm, preserving and strengthening corporate culture).
Ideology, within the framework of motivation, performs the function of describing and explaining the necessary actions, describes goals and conveys them not at the external level, but at the level of internal understanding (as well as, if necessary, the function of justification, representation, compensation, etc.). As such, it is an instrumental part of the mechanism of movement of the organization, plays the role of a stabilizer.
Throughout the history of the development of Russian legislation, starting with the Book Pilot, the formation of which took place under the influence of Byzantine Christianity and ending with Article 6 of the USSR Constitution on the role of the CPSU, the effect of general ideological norms on the regulation of real social relations was traced. It is rather difficult to draw a conclusion about whether this influence was positive or negative, however, the absence of such a deterrent factor currently negatively affects the possibility of legal regulation of the fight against various violations of law by high-ranking officials. Despite the inconsistency of general ideological norms with real-life legal relations, norms of law, burdened by general moral and ethical prohibitions of a normative nature, actually influenced the level of corruption in the country... Preconditions for the emergence of corruption. Youth Union of Lawyers of the Russian Federation. 1999.S. 22
And in this regard, I would like to emphasize once again about the forgotten huge role of ideological, moral and moral stimulants. For our country, these are especially important levers of motivation, since we have lived with them for many decades.
So, in contrast to the Western approach, when secular power is separated from the spiritual, as well as the eastern, where many issues of government are decided by the spiritual authorities, the ideal norms of morality and morality (both spiritual (Christianity) and communist during the USSR period), in Russian reality was transformed into normative acts of secular government.
The formation of democratic states was accompanied by the formation of public institutions to control the moral image of government officials. In post-Soviet Russia, such institutions of public control over morality are in the process of formation and so far, unfortunately, cannot have a real impact on the state and municipal apparatus of power. In the same place. Page 28
But nevertheless, there is a process of managing the orientation towards value and cultural factors, and not towards bureaucratic rules and norms.
The processes of democratization and decentralization in a new way raise the question of the unity of the system of state power, the creation of a new mechanism for coordinating all parts of the state apparatus.
The old bureaucratic procedures have largely lost their effectiveness. Associated with this is an increased interest in the use of cultural and social factors. In the countries of North America and Europe, the process of forming an appropriate administrative culture is under way, which will ensure unity of action by understanding all civil servants of their social roles, understanding and accepting common values and norms.
At the same time, a system for managing the process of improving administrative ethics is being created. For this, methods of ethical training are used, legal norms and codes of ethics are being developed, and special campaigns are being conducted to improve the image of state power. In 1998, the Organization for Economic Co-operation and Development published Guidelines for Improving Ethical Conduct in Public Service. They contain the basic principles of ethical behavior and measures to stimulate it, directions for the formation of an appropriate political, administrative and legal environment. Lobanov V. Reforming the state apparatus: world practice and Russian problems. // Problems of theory and practice of management. 1999. No. 1. P.17
2.4.5 Choosing the correct assessment of the work of the HS
Whereas previously the main focus was on monitoring the process of work and the use of public resources, now the emphasis is on monitoring and evaluating results and consequences. This frees the hands of employees who independently choose the ways and means to achieve their goals. Along with the effectiveness of activities, the ethical side is taken into account, as well as the ability to analyze problems, develop and implement an action plan, evaluate its results and consequences. Particular attention is paid to impact analysis, the meaning of which is to take into account possible impacts on individual organizations and groups, as well as various areas (political, social, economic and cultural) at the planning stage. Lobanov V. Reforming the state apparatus: world practice and Russian problems. // Problems of theory and practice of management. 1999. No. 1. P.10
In the United States, in the 70s and 80s, when commercial companies focused on short-term profits, which was caused by pressure from investors who demanded an increase in profitability from invested capital.
The directors of such companies were motivated to immediately increase profits in the interval of 3-6 months. But after a certain time, such firms fizzled out. The point is that the criterion for the success of a commercial firm was short-term profit, and not total profit, say, in the interval of 10-15 years.
The mistake was that the wrong way of assessing the performance of directors and managers was chosen.
Perhaps the best way to evaluate a manager’s performance is to ask him if he would have acted differently if he had been the owner of the company. Thus, the essence of good governance should be defined in accordance with criteria that would model the actions of the owner and would induce the manager to reproduce his behavior. More and more efforts are now being made to create a climate in which leaders, as well as an increasing number of employees, will behave in a way that how if would were owners organization by enhancing her well-being and on a long-term basis. Goldman M. Management theory in the USA and Russia: a comparative analysis. // Problems of theory and practice of management. 1997. No. 1. P. 56.
Subsequently, many companies switched to a mixed form of salary payments: part of the amount is paid in cash, and part - in shares of the given company. Thus, the employee becomes a small co-owner of the company and is fully interested in its prosperity.
Of course, this universal scheme cannot be transferred to public administration. But something can be borrowed from here. Currently, a civil servant moves up the hierarchical ladder, regardless of the facts of success or failure of his activities, only focusing on the length of service - the time of work. The author seems to be very interesting and profound idea of an approach to assessing intermediate success in the work of an official not in a short, but for a sufficiently long period of time, and on the basis of this analysis, the allocation of appropriate benefits, material goods and privileges.
Gradually, a new culture and a new style of work of state authorities are beginning to form, focusing on the demands and needs of the population, increasing responsibility for the distribution of services and resources. The assessment of their performance depends on the level of satisfaction of citizens with public services, the degree of their trust in the state and the real opportunity to participate in the development and adoption of decisions. Lobanov V. Reforming the state apparatus: world practice and Russian problems. // Problems of theory and practice of management. 1999. No. 1. P.17
2.4.6 Payroll management
It would be logical to see in Russia the remuneration of a civil servant and the benefits provided to him as simultaneously dependent on the average level of remuneration in the private sector and on his place in the nomenclature hierarchy.
The second is determined by the fact that as the GS moves vertically, the load increases and is characterized by increased complexity and tension, and the work of the management team is also responsible not only for personally made decisions, but also for the decisions and actions of subordinates; an increase in the volume of tasks to be solved, and so on.
2.4.7 Creating a value system for subordinates
This idea is embedded in the concept of training specialists in the field of personnel management. It contains modern concepts of personnel management.
The main function of the head of a modern organization is to create a system of values for subordinates. And in this vein, one can also express the following idea: an organization is effective only as effective as its value system.
Indeed, it is almost impossible to hide the landmarks towards which the most important person in the organization is directed during prolonged direct contact. After all, a leading person most often evokes sympathy from subordinates, some kind of hidden desire to imitate. Thus, the orders coming from the leader become, as it were, the personal desire of the subordinate, he tries his best to side with the leader.
If the leader makes efforts to transfer his own or a specially created system of values to subordinates, then the organization will transform from a system of disparate divisions into an integral organism living in a single rhythm.
Here is an interesting example: in our country, a bribe-taker and a bribe-giver DO NOT think that they are committing an immoral act. They are not ashamed. Moreover, it is now considered NORMAL in society. This is part of the code of conduct.
Moral norms, having no formal definition of the rules of behavior, are provided both by internal self-control and by the influence of authorities. Law, while possessing normative certainty, is ensured by the coercive power of the state to ensure that citizens comply with the rules of conduct. The combination of stability of law and morality gives stability both in society and in separate structure, organizations.
2.4.8 Globalization of world processes and the quality of public services
An increasing role is played by the globalization of world processes, which breaks the narrow framework of national-state borders and leads to the formation of common commodity markets, the formation of a worldwide information network, the creation of interstate unions and international organizations.
Therefore, it becomes important for a civil servant to be able to conduct a deep analysis of problems, develop and implement an action plan, assess its results and consequences. Particular attention is paid to the analysis of the impact of their influences on individual organizations and groups, as well as various spheres (political, social, economic and cultural). Lobanov V. Reforming the state apparatus: world practice and Russian problems. // Problems of theory and practice of management. 1999. No. 1. P.10
Government leaders are focusing their efforts in the following areas:
firstly, increasing the efficiency of the state apparatus and providing the population with better services;
second, the development of partnerships between the public and private sectors and a clearer division of their responsibility for solving emerging problems;
third, the establishment of multilateral relations between the state and civil society, the involvement of the population in the management of public affairs.
In developed countries, the need for the humanization of public administration is increasingly felt. This is due to the natural reaction to bureaucratization and technocratization. social environment that prevent a person from developing "vertically", to seek the disclosure of the creative possibilities inherent in him. Development "horizontally" due to the acquisition of ever greater material wealth, as experience shows, has its limits.
Improving the quality of public services and the mechanism for their distribution. Recently, the slogan "create consumer-oriented structures" has become popular. Behind it are the persistent attempts of the leaders to change the value orientations that have developed in the state apparatus, and to place the service of the interests and satisfaction of the needs of ordinary citizens at the center of the state's activities.
For this purpose, service standards are introduced, citizens themselves have the opportunity to influence the decisions of the authorities, the government guarantees the "transparency" of its activities, openness of information, etc. So, in the UK in 1991, the Citizens' Charter was adopted, which includes six principles that formed the basis for improving the work of government agencies: standards; information and openness; selection and consultation; honesty and helpfulness; cost savings; appeal against wrong actions. These principles are widely promoted in the states of the European Union.
The idea of this charter was taken up in Portugal, where a "Code of Administrative Procedures" was developed. Its main task is to rationalize and standardize the work of state organizations, to involve the population in the decision-making process (while the authorities are obliged to explain unpopular decisions).
In the United States, they are trying to solve the issues of improving the quality of services for citizens by introducing the principles and methods of the concept of total quality management into the activities of state institutions. In Xianggang (Hong Kong), even appearance official documents to create a more favorable psychological climate.
The reasons for this attention to the quality of public services lie not only in the desire to take into account the interests of the population, but also in the fuller use of the direct connection between the level of education, qualifications, health of citizens and competitiveness. national economies... Lobanov V. Administrative reforms - challenges and solutions. // Problems of theory and practice of management. No. 1. 1998. P.42
2.4.9 Social guarantees
In the UK, in the Ministry of Defense, there was a situation when the formation of corrupt ties was not only due to bribes, but also due to the promise of subsequent employment after resignation. Such promises are a great temptation for an official who has the prospect of receiving a fairly low pension. In addition, to be once again useful, to provide your rich professional and life experience for the good of some business can be a strong incentive.
2.4.10 Creation freedom adoption decisions (self-governing groups)
One of the most effective methods of motivation is the creation of self-governing groups. As an example, we can refer to the experience of the American company Digital Equipment, where such groups are formed in the general accounting and reporting department, which is part of one of 5 control centers. financial activities... The groups independently decide on the planning of work, hiring new employees, holding meetings, coordinating with other departments. Group members take turns attending central government meetings, sharing experiences and reporting on their results. Enterprise Economics / Ed. Semenova V.M. M. 1996.C.96
Carrying out serious social and economic transformations is impossible without a sharp improvement in the quality of public administration. An indispensable condition for this is the granting of greater freedom of action to the heads of state institutions in the disposal of state resources, the determination of tactical and operational goals, the conduct of personnel policy, etc. Lobanov V. Reforming the state apparatus: world practice and Russian problems. // Problems of theory and practice of management. 1999. No. 1. C.11
Bureaucratic dependence and hierarchical subordination are replaced by the principle of autonomy and responsibility for the implementation of the main mission entrusted to state structures. In this regard, organizational flexibility, innovation management, decentralization, and significant freedom of action for personnel come to the fore.
A number of Western experts believe that in the future the state apparatus will be based not on a strict bureaucratic hierarchy, but on a rational combination of centralized management with horizontal networks, many autonomous structures that have their own resources and are able to make decisions on their own. To this network along with government organizations and institutions will also include private structures and community groups... As a result, a political-state network will be formed, open to every citizen. In the same place. P.16
2.4.11 Reforming the state apparatus in developed countries
Reforming the state apparatus in developed countries is taking place in the following areas: Ibid. P.22
the system of relations between the executive authorities and other state institutions of power and administration, both horizontally and vertically (constitutional and political sphere);
organizational structures, coordination and control mechanisms, including central administration, regional and local government (organizational sphere);
management systems and methods, administrative procedures and processes (functional area ) ;
personnel policy and civil service (personnel sphere);
management of public finances and budget execution by departments (financial and economic sphere).
Introduction
The effectiveness of state regulation largely depends on the stability of the functioning of state institutions. Achievements in the activities of state bodies are a direct consequence of the results of the intellectual work of civil servants (hereinafter referred to as civil servants), in connection with which the formation of a professional staff is among the priority tasks of improving public administration.
The retention of highly professional personnel in the state body requires the introduction of technologies that stimulate civil servants to long-term activities focused on the achievement of specific results.
Among the important values that civil servants should aim at are professionalism and competence, honesty and impartiality.
The motivation of civil servants is an element of the personnel management system of the state body ("single personnel cycle") along with such elements as selection, professional development, personnel assessment, professional culture and anti-corruption.
The Methodology of intangible motivation of civil servants of the Russian Federation (hereinafter referred to as the Methodology) contains a general description of the system of intangible motivation of civil servants proposed for implementation in a state body on the basis of the provisions of the legislation on the state civil service of the Russian Federation (hereinafter referred to as the civil service) and using those disclosed in The methodology of non-financial measures to increase the motivation of civil servants, implemented as personnel technologies.
Considering that the motivation of civil servants is influenced by many factors associated with the passage of the civil service, the Methodology is focused on its use by heads and personnel services of state bodies, as well as by the immediate supervisor of a civil servant.
Basic concepts and definitions
Intangible motivation of civil servants is a set of measures aimed at encouraging effective, efficient and conscientious performance of official duties, which do not imply monetary and other material incentives.
1. Fundamentals of non-material motivation of civil servants
The basis for the formation of a system of non-material motivation of civil servants in a state body is the provisions of clause 6 of part 2 of article 60 of the Federal Law of July 27, 2004 N 79-FZ "On the State Civil Service of the Russian Federation" (hereinafter - Federal Law N 79-FZ), which among the priority directions of the formation of the civil service personnel include the use of modern personnel technologies when entering the civil service and its passage.
Measures to motivate civil servants are implemented as personnel technologies that contribute to the achievement of the following goals:
Obtaining positive results in the activities of a state body;
Ensuring continuous high-quality work of subdivisions of the state body through the effective and efficient professional activities of civil servants;
Increasing the commitment of civil servants to the values shared in the government body;
Attracting and retaining professional staff;
Increasing the effectiveness of the impact on civil servants of incentives and awards;
Increasing the attractiveness of the state body in the labor market;
Increasing the satisfaction of civil servants with their professional activities, the collective, the state body as an employer.
The system of non-material motivation, formed in a state body, is a means of developing its professional culture.
The influence of non-material motivation measures carried out in a state body on the motives of civil servants, which allows them to maintain their values, the adherence to which is designed to ensure the effective implementation of the tasks and functions of a state body, is displayed on.
Impact of non-material motivation measures on the motives of civil servants
1.1. Values of government civil servants
In accordance with Article 2 of the Constitution of the Russian Federation, a person, his rights and freedoms are the highest value. Recognition, observance and protection of the rights and freedoms of man and citizen of the Russian Federation is the duty of the state. This obligation, in accordance with Article 18 of the Constitution of the Russian Federation, determines the meaning, content and application of the provisions of the legislation of the Russian Federation, the activities of the legislative, executive authorities and is ensured by justice.
The highest value predetermines the following core values that should be inherent in every civil servant:
1) professionalism and competence;
2) honesty and impartiality.
In a generalized form, these values reflect the provisions of Articles 4 and 18 of Federal Law N 79-FZ, Decree of the President of the Russian Federation of August 12, 2002 N 885 "On the approval of general principles of official conduct of civil servants" and are guidelines for determining without changing their general meaning values of the state body, taking into account the specifics of the tasks and functions it implements.
The adherence of a civil servant to these values is supported provided that his motives are satisfied in the course of his professional activities.
To determine measures to satisfy the motives of civil servants, a recommended questionnaire for assessing the level of development of the professional culture of a state body by civil servants is presented. A shift in emphasis on the professional culture of a state body is provided to eliminate distortions that may arise in the event of excessive attraction of the attention of civil servants to the purposes of the survey.
1.2. Motives of civil servants and activities aimed at increasing their level of satisfaction
1.2.1. Creation of comfortable organizational, technical and psychophysiological conditions
The behavior of a civil servant in different periods of his professional career, including taking into account the level of the position being replaced and merit, is influenced by various motives. Nevertheless, one of the main motives influencing the behavior of the majority of civil servants is the need for comfortable conditions for the passage of civil service, including organizational, technical and psychophysiological conditions.
Organizational and technical conditions
In accordance with clause 1 of part 1 of article 14 of Federal Law N 79-FZ, a civil servant has the right to ensure proper organizational and technical conditions necessary for the performance of official duties.
Appropriate organizational and technical conditions have an impact on the performance of a civil servant and, as a result, are one of the factors in increasing the efficiency and effectiveness of his professional activities.
The determining factor in these conditions is the official position of a civil servant, which should not cause him discomfort.
In this regard, it is advisable for the head of a state body to pay attention to the provision of civil servants with appropriate organizational and technical conditions.
The head of the structural unit is recommended to organize working interaction with the administrative and economic unit of the state body on the maintenance of equipment, furniture, the provision of the necessary stationery, compliance with the standards of working conditions (lighting, ventilation, heating), the organization of places for eating and resting in time of business interruptions provided.
Nutrition is a vital necessity and is of paramount importance for maintaining health and, as a consequence, increasing the efficiency and intensity of civil servants.
Dining room, equipped eating areas should be in demand among civil servants. Quality food that meets the needs of civil servants is part of the public authority's prestige as an employer caring for civil servants. Analysis of the attendance of the canteen by civil servants, their satisfaction with the services provided should also be taken into account when preparing proposals for the head of a state body on creating favorable working conditions.
It is important to discuss the personnel service of the state body and the trade union organization (if available in the state body) with a team of comments and suggestions on the interior design of the state body as a whole in accordance with the requirements of hygiene, sanitation, and aesthetics.
Psychophysiological conditions
Achieving satisfaction of the motives of a civil servant in a comfortable environment for civil service requires the creation and maintenance of comfortable psychophysiological conditions in the team.
Psychophysiological conditions are characterized by a set of relationships in the team and the maintenance of a favorable psychoemotional state of a civil servant by the management and the team, which contributes to his professional self-realization.
One of the necessary indicators of maintaining psychophysiological conditions in a state body is the implementation of the provisions of Part 1 of Article 14 and Part 1 of Article 52 of Federal Law N 79-FZ. These provisions of Federal Law N 79-FZ established that in order to increase the motivation for the effective performance of civil servants of official duties, to strengthen the stability of the professional staff of the civil service, civil servants are guaranteed the right to rest, provided by the establishment of a normal length of service time, the provision of days off and non-working holidays, as well as annual paid main and additional vacations.
The lack of rest of a civil servant can adversely affect the implementation of the tasks and functions of a state body due to a decrease in the efficiency of a civil servant.
In order to prevent these consequences, the head of the state body is advised to take into account that systemic processing of civil servants is not a way to increase the efficiency of professional activity, but on the contrary, spending a long time in an office outside the normal length of a working day leads to overwork, which can negatively affect the quality of the tasks they perform. ...
The head of a structural unit of a state body must provide conditions for the effective use of office time by civil servants, including planning and rational distribution of job duties and workload between subordinates, preventing the systematic involvement of a civil servant in the performance of his official duties outside the normal duration of office time.
It is important for the personnel service of a state body to monitor and timely inform the head of the structural unit about the inadmissibility of systemic overhauls of civil servants, the need to provide a civil servant with annual leave in accordance with the vacation schedule approved by the representative of the employer.
The head of the state body can initiate activities aimed at the development of physical culture and sports in the team (daily five-minute exercises - "physical culture breaks", sports days). If there are organizational and technical capabilities in a state body, places for sports can also be created.
To maintain psychophysiological conditions also important aspect is the creation and maintenance of a favorable psychological climate in the state body, characteristic features which is openness, trust, honesty in building relationships in a team.
The fundamental basis for the formation of a favorable psychological climate is the selection of candidates for civil service positions who share the values of a state body and possess professional and personal qualities, focused on building open and honest relationships in a team that exclude interpersonal conflicts.
To ensure that civil servants comply with the principles and rules of conduct established in accordance with the provisions of the legislation of the Russian Federation, it is necessary to create an environment in the team that will allow the civil servant to reveal his creative potential, to feel the importance and involvement in solving priority tasks.
It is advisable for the head of a state body, a structural unit of a state body to build informal interaction with subordinates and maintain friendly, open relationships in the team. At the same time, informal relationships should not exclude the need for strict observance of official discipline, as well as recognition of the authority of the official position of the head of a state body, structural unit, supported by personal example and high moral qualities of these persons.
Conducting a systematic survey of civil servants by the personnel service of the state body on the results of the implementation of measures for non-material motivation will increase the involvement of civil servants in the implementation of the goals and objectives of the state body.
The interaction of the personnel service with the civil servant through a survey contributes to an increase in the level of confidence of a civil servant in the head of a state body and an awareness of the importance of his individual contribution.
At the same time, this study should also be carried out in cases where there are:
High rates of staff turnover;
Low performance of individual civil servants;
Low motivation for the professional activities of individual civil servants.
The results of the survey, on the one hand, are the basis for the formation (adjustment) by the leader of the measures for non-material motivation included in the plan, on the other hand, for the civil servants to understand the priorities of the activities of the state body, its values, principles and rules of behavior.
2.3. Formation of a typical career trajectory of a civil servant and an individual plan for job growth
A typical career trajectory for a civil servant is a time-planned sequence of moving a civil servant through civil service positions, subject to his impeccable performance of official duties and maintaining a high level of qualifications.
When forming a typical career path of a civil servant, the presence / absence of opportunities for:
Career movements in various positions in a state body, territorial bodies, as well as subordinate organizations;
Taking into account the specifics of the activities of the state body, areas and types of professional activities of civil servants.
It is recommended to plan the replacement of civil servants for the next civil service position for the next 15 years from the date of appointment to the position, providing for annual measures for non-financial motivation.
The hierarchy of civil service positions specified in a typical career trajectory should create favorable conditions for realizing the career potential of a civil servant.
A typical career trajectory is a guideline for personnel planning in a state body, in particular, holding a competition for filling a vacant position in the civil service, including in the personnel reserve of a state body for the corresponding group of positions, a reserve of managerial personnel, as well as reducing civil service positions.
The structure of a typical career trajectory of a civil servant may contain recommended grade ranks in the civil service in accordance with the civil service position being replaced, as well as measures for professional development.
In order to raise awareness of citizens about the prospects for career growth in a state body, this trajectory should be published on the official website.
When appointed to a civil service position personnel service the government agency also needs to familiarize the civil servant with a typical career path.
At the same time, it is advisable for the personnel service of a state body to analyze the duration of a civil servant's stay in one civil service position, the reasons for the lack of promotion, as well as the possibility of filling a higher-level position, providing for compliance with the qualification requirements established for its replacement.
To make a decision on the need for the next promotion of a civil servant in a civil service position, provided for by a typical career path, the head of a structural unit of a state body is recommended to annually assess the results of his professional activity.
* Russian Sociological Encyclopedia.
** The specified concept is included for use when applying this Methodological Toolkit.
*** For more details on the components of the professional culture of a state body, see the Methodology for the Formation and Development of the Professional Culture of a State Body (https://rosmintrud.ru/ministry/programms/gossluzhba/16/15).
Before you is a questionnaire, which is aimed at identifying your opinion on the level of development of the professional culture of a state body. The survey is anonymous. Comparison of your answers with the views of other government civil servants will help determine the recommended measures for non-financial motivation in the government body.
When answering questions, try to be extremely careful. The questionnaire contains questions that involve the choice of one answer.
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| Introduced the personnel service | 1 | ||
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| 0 | |||
| 4. Where can I get acquainted with the principles and rules of conduct for a civil servant? | choose one of the options (fill in the number 1 - in the selected answer) | ||
| 0 | |||
| 1 | |||
| Ask the manager | 0 | ||
| Total score for 1 block (sum of values in column 4 for) | maximum value 4 | ||
| choose one of the options (fill in the number 1 - in the selected answer) | coefficient (score per answer) | ||
| Big family | 1 | ||
| 2 | |||
| 3 | |||
| Team of professionals | 4 | ||
| 5 | |||
| 6 | |||
| choose one of the options (fill in the number 1 - in the selected answer) | |||
| For me, as for most civil servants, the state body is a second family | 1 | ||
| 2 | |||
| 3 | |||
| 4 | |||
| 5 | |||
| 6 | |||
| choose one of the options (fill in the number 1 - in the selected answer) | |||
| 1 | |||
| 2 | |||
| 3 | |||
| 4 | |||
| 5 | |||
| 6 | |||
| choose one of the options (fill in the number 1 - in the selected answer) | |||
| 1 | |||
| 2 | |||
| 3 | |||
| 4 | |||
| 5 | |||
| My attitude to life | 6 | ||
| choose one of the options (fill in the number 1 - in the selected answer) | |||
| 1 | |||
| 2 | |||
| 3 | |||
| 4 | |||
| 5 | |||
| 6 | |||
| choose one of the options (fill in the number 1 - in the selected answer) | |||
| So we have it | 1 | ||
| 2 | |||
| 3 | |||
| 4 | |||
| 5 | |||
| 6 | |||
| choose one of the options (fill in the number 1 - in the selected answer) | |||
| 1 | |||
| 2 | |||
| 3 | |||
| 4 | |||
| 5 | |||
| 6 | |||
| choose one of the options (fill in the number 1 - in the selected answer) | |||
| Discussion and assistance in the best accomplishment of the task | 1 | ||
| Order, execution control | 2 | ||
| 3 | |||
| 4 | |||
| Discussions, brainstorming | 5 | ||
| 6 | |||
| choose one of the options (fill in the number 1 - in the selected answer) | |||
| 1 | |||
| 2 | |||
| 3 | |||
| All employees adhere to ethical rules of conduct and communication in the public civil service and outside it. | 4 | ||
| 5 | |||
| Support for the development of a professional level, professional and personal qualities | 6 | ||
| Average score for block 2 (arithmetic mean of the results of answers to) | maximum value 6 | ||
| choose one of the options (fill in the number 1 - in the selected answer) | |||
| 1 | |||
| 2 | |||
| 3 | |||
| 4 | |||
| 5 | |||
| 6 | |||
| 1 | |||
| 2 | |||
| 3 | |||
| 4 | |||
| 5 | |||
| 6 | |||
| Average score for block 3 (arithmetic mean of the results of answers to) | maximum value 6 | ||
| Block 4: satisfaction | |||
| Never or very rarely | 1 | ||
| Depends on a situation | 2 | ||
| 3 | |||
| Monthly | 4 | ||
| 5 | |||
| 6 | |||
| Never | 1 | ||
| 2 | |||
| For team work | 3 | ||
| 4 | |||
| For the initiative | 5 | ||
| 6 | |||
| Once every three years | 1 | ||
| Once a year | 2 | ||
| 3 | |||
| Remotely | 4 | ||
| On one's own | 5 | ||
| With the help of a mentor | 6 | ||
| Here is a friendly atmosphere | 1 | ||
| Strong leader | 2 | ||
| Clear rules and requirements | 3 | ||
| Strong team | 4 | ||
| 5 | |||
| 6 | |||
| Average score for block 4 (the arithmetic mean of the results of answers to) | maximum value 6 | ||
| Final result (sum of results for) | maximum value 22 | ||
| minimum value 3 | |||
The questionnaire is filled in by at least 30% of civil servants in a government agency.
The resulting value is calculated as the arithmetic average of the responses of all respondents.
The value of the final result characterizes the level of development of the professional culture of the state body:
| inefficiency | |
|---|---|
| low efficiency | |
| average efficiency | |
| high efficiency |
The procedure for analyzing the results of the questionnaire
The final result for each questionnaire Р - is calculated as the sum of the results of answers to questions for each block in:
The resulting value for the entire state body is calculated as the arithmetic mean of the responses of all respondents:
To determine the level of development of the professional culture of a state body, the following ranges of values are used:
| Maturity level | The final result | ||||
|---|---|---|---|---|---|
| inefficiency | <1 | <1,5 | <1,5 | <1,5 | |
| low efficiency | |||||
| average efficiency | |||||
| high efficiency | >3 | >4,5 | >4,5 | >4,5 |
For the analysis, you can use a summary table of the results of the questionnaire, with which you can assess not only the general level of development, but also the levels of development of professional culture for each block:
| Application code | Block 1 result - | Block 2 result - | Result for block 3 - | Result for block 4 - | Final result - P |
|---|---|---|---|---|---|
| Questionnaire 01 | |||||
| Questionnaire 02 | |||||
| ... | |||||
| Form 0L | |||||
Example of filling and calculating
| Questions | Answers | Processing of results (not displayed in the questionnaire) | |
|---|---|---|---|
| 1 | 2 | 3 | 4 |
| 1 block: assessment of awareness of the mission, values of the state body, accessibility of sources of information | Possible answer | Points for an answer | Result |
| 1. The mission of a state body is: | choose one of the options (fill in the number 1 - in the selected answer) | (the number of points awarded for answering a question) | (column 2 x column 3) |
| The state body coordinates and controls the activities of the services / agencies under its jurisdiction | 0 | ||
| Ensuring high quality services in the field of its activities | 1 | 0 | 0 |
| The mission of the state body, approved by the head of the state body, is indicated | 1 | ||
| 2. The values of a state body are: | choose one of the options (fill in the number 1 - in the selected answer) | ||
| My view of government body values | 0 | ||
| Rules of conduct outside professional activity | 0 | ||
| The values of the state body are indicated (approved by the head of the state body) | 1 | 1 | 1 |
| 3. The mission / values of the state body are you familiar with from which source? | |||
| Introduced the personnel service | 1 | ||
| Introduced the mission / values to a colleague | 1 | 0 | 0 |
| My vision of the mission / values of a government agency | 0 | ||
| 4. Where can I get acquainted with the principles and rules of conduct for a civil servant? | choose one of the options (fill in the number 1 - in the selected answer) | ||
| Posted on the website of a government agency | 0 | ||
| Included in the Code of Ethics and Official Conduct of State Civil Servants (other instructive documents of the state body) | 1 | 1 | 1 |
| Ask the manager | 0 | ||
| Total score for 1 block - (sum of values in column 4 for) | maximum value 4 | 2 | |
| 2nd block: determination of the current type of professional culture of the state body | choose one of the options (fill in the number 1 - in the selected answer) | coefficient (score per answer) | (column 2 x column 3) |
| 5. When you are asked what a state body is, you will say: it is - | |||
| Big family | 1 | ||
| Debugged mechanism - "clock" | 1 | 2 | 2 |
| A complex self-organized mechanism where everyone knows their business | 3 | ||
| Team of professionals | 4 | ||
| A friendly team ready to solve any complex problems | 5 | ||
| Self-developing team of proactive, responsible professionals | 6 | ||
| 6. Which statement do you agree with the most: | choose one of the options (fill in the number 1 - in the selected answer) | ||
| For me, as for most state civil servants, a state body is a second family | 1 | ||
| I begin to act if there is an order from the management and I am responsible only for my area of work | 2 | ||
| I begin to act within the framework of my job responsibilities | 3 | ||
| I help to achieve the result necessary for the entire government body | 1 | 4 | 4 |
| I feel like an equal member of a government agency team | 5 | ||
| I see and suggest that it is necessary to improve in the work of my department (or the state body as a whole) | 6 | ||
| 7. Continue the phrase: "I come to my work to ..." | choose one of the options (fill in the number 1 - in the selected answer) | ||
| Do everything that is important / required at the moment for the team | 1 | 1 | 1 |
| Execute orders from the head | 2 | ||
| Implement your planned affairs | 3 | ||
| Do my best to achieve the result on time | 4 | ||
| Do everything in my power to achieve a result for a common goal, which will be supported by the whole team | 5 | ||
| Do everything in my power to fulfill the tasks of the state body to respect the rights and legitimate interests of citizens and organizations | 6 | ||
| 8. In my understanding, "treating people / employer representative with respect and patience is ..." | choose one of the options (fill in the number 1 - in the selected answer) | ||
| The duty of any government civil servant | 1 | ||
| Duty of a civil servant | 2 | ||
| Ethical rule of the public civil servant | 1 | 3 | 3 |
| Responsibility of a public civil servant | 4 | ||
| The principle of my professional activity | 5 | ||
| My attitude to life | 6 | ||
| 9. The main thing for a civil servant is: | choose one of the options (fill in the number 1 - in the selected answer) | ||
| Submission to the rules / traditions of the government body | 1 | ||
| Complete all tasks set by the head on time | 2 | ||
| Complete everything within the framework of the legislation of the Russian Federation | 3 | ||
| Willingness to take personal responsibility for the result | 4 | ||
| Mutual understanding with colleagues for high-quality performance of a common task / project | 5 | ||
| Taking preventive measures to achieve the best result for citizens | 1 | 6 | 6 |
| 10. To the question: "Why are you doing this ... Did you do this?", As a rule, you answer: | choose one of the options (fill in the number 1 - in the selected answer) | ||
| So we have it | 1 | ||
| Because the leader said / decided so | 1 | 2 | 2 |
| Because we have such rules / regulations / procedures | 3 | ||
| Because it was so necessary for the result | 4 | ||
| Because we agreed / decided so at the meeting | 5 | ||
| Because it will help to achieve the long-term goals of the government body | 6 | ||
| 11. For the sake of achieving the mission, long-term goals and objectives of the state body, I am ready | choose one of the options (fill in the number 1 - in the selected answer) | ||
| Sacrificing personal time for a common cause | 1 | ||
| Follow the instructions of the head | 2 | ||
| Work within the framework of their job responsibilities | 3 | ||
| Constantly improve your professionalism | 1 | 4 | 4 |
| In addition to their direct responsibilities, participate in new projects for the implementation of changes | 5 | ||
| Offer new ideas and solutions to better achieve goals and objectives | 6 | ||
| 12. In a state body for the organization of work, the following predominate to a greater extent: | choose one of the options (fill in the number 1 - in the selected answer) | ||
| Discussion and help in the best we will accomplish tasks | 1 | ||
| Order, execution control | 2 | ||
| Work within the framework of procedures, regulations, rules | 1 | 3 | 3 |
| Diagnostics and analysis of problems, working groups on current tasks | 4 | ||
| Discussions, brainstorming | 5 | ||
| Strategic sessions, working groups on long-term projects | 6 | ||
| 13. In a state body, the attitude towards civil servants is structured as: | choose one of the options (fill in the number 1 - in the selected answer) | ||
| Friendly, warm communication | 1 | ||
| Tough, business-like interaction | 2 | ||
| Constructive, predictable | 3 | ||
| All employees adhere to ethical rules of conduct and communication in the civil service and outside it | 4 | ||
| Respectful and fair attitude to the individuality of each | 1 | 5 | 5 |
| Support for the development of professional level, professional and personal qualities | 6 | ||
| Average score for block 2 - (arithmetic mean of the results of answers to) | maximum value 6 | 3,33 | |
| Block 3: Assessment of Engagement | choose one of the options (fill in the number 1 - in the selected answer) | ||
| 14. I participated in working groups, meetings, brainstorms, focus groups on my professional activities | |||
| Over the past year did not participate | 1 | ||
| Participated in the last year no more than 3 times | 2 | ||
| Participated in the last year more than 4 or more times | 3 | ||
| I participate regularly once a month | 4 | ||
| I participate regularly once a week | 1 | 5 | 5 |
| I participate more than once a week | 6 | ||
| 15. An atmosphere of open communication and prompt exchange of necessary information has been created in the state body. | |||
| I find / receive the information I need within 2 weeks | 1 | ||
| I find / receive the information I need within 3-5 days | 2 | ||
| I find / receive the information I need within 2-3 days | 3 | ||
| I find / receive the necessary information during the working day | 1 | 4 | 4 |
| I find / receive the information I need within an hour | 5 | ||
| I find / receive the information I need online | 6 | ||
| Average score for block 3 - (arithmetic mean of the results of answers to) | maximum value 6 | 4,5 | |
| Block 4: satisfaction | choose one of the options - the most meaningful for you (fill in the number 1 - in the selected answer) | ||
| 16. The manager provides you with feedback on the results of your work for the period | |||
| Never or very rarely | 1 | ||
| Depends on a situation | 1 | 2 | 2 |
| Only during the attestation / evaluation period | 3 | ||
| Monthly | 4 | ||
| Based on the results of the work / project | 5 | ||
| When calculating (determining) the amount of the bonus or its payment | 6 | ||
| 17. The leader says "thank you", encourages you: | |||
| Never | 1 | ||
| For the quality performance of their duties | 1 | 2 | 2 |
| For team work | 3 | ||
| For helping a colleague / mentoring | 4 | ||
| For the initiative | 5 | ||
| For the development of a new idea / project | 6 | ||
| 18. You have the opportunity to improve your qualifications | |||
| Once every three years | 1 | ||
| Once a year | 2 | ||
| Continuously, through relevant internal training programs of the state body | 1 | 3 | 3 |
| Remotely | 4 | ||
| On one's own | 5 | ||
| With the help of a mentor | 6 | ||
| 19. Why would I recommend my friends to enroll in the government civil service in a government agency? | |||
| Here is a friendly atmosphere | 1 | ||
| Strong leader | 2 | ||
| Clear rules and requirements | 3 | ||
| Strong team | 1 | 4 | 4 |
| Fair remuneration for effective results | 5 | ||
| Perspective long-term work for the benefit of people | 6 | ||
| Average score for block 4 - (arithmetic mean of the results of answers to) | maximum value 6 | 2,75 | |
| Final result Р (sum of answers for) | 12,58 | ||
Summary table of survey results (example):
| Application code * | Block 1 result - | Block 2 result - | Result for block 3 - | Result for block 4 - | Final result - P |
|---|---|---|---|---|---|
| Questionnaire 01 | 2 | 3,33 | 4,5 | 2,75 | 12,58 |
| Questionnaire 02 | 3 | 3,5 | 4 | 2,75 | 13,25 |
| Questionnaire 03 | 2 | 3 | 3 | 2 | 10 |
| Questionnaire 04 | 3 | 4 | 5 | 3,5 | 15,5 |
| Questionnaire 05 | 2 | 3 | 4,5 | 2,5 | 12 |
In accordance with the established intervals of values, the level of development of professional culture in a state body
| Maturity level | Block 1 | Block 2 | Block 3 | Block 4 | The final result |
|---|---|---|---|---|---|
| inefficiency | <1 | <1,5 | <1,5 | <1,5 | |
| low efficiency | |||||
| average efficiency | |||||
| high efficiency | >3 | >4,5 | >4,5 | >4,5 |
An analysis of the responses of civil servants will make it possible to assess their commitment to the state body, satisfaction with the activities carried out in the state body to satisfy their motives, and determine further measures for non-material motivation recommended for use in the state body.
Appendix N 2
Recommendations to the head of a structural unit of a state body on the formation of comfortable organizational, technical and psychophysiological conditions for professional activity
In order to create comfortable organizational, technical and psychophysiological conditions for the professional activity of civil servants (hereinafter referred to as a civil servant), it is advisable for the head of the structural unit to:
Provide proper organizational and technical conditions. The determining factor in these conditions is the official position of a civil servant, which should not cause him discomfort;
Control the optimal ratio of official and free time of civil servants;
Help civil servants build positive relationships with the team (participation in the implementation of joint tasks, projects, mentoring young civil servants and off-duty activities, including those aimed at team building);
To foster a conscientious attitude of civil servants to official duties, a respectful attitude towards the representative of the employer (manager);
Support the initiative in the professional activities of civil servants;
Show interest in the professional development of civil servants. Give recommendations on knowledge, skills, professional and personal qualities that civil servants need to develop;
On a systematic basis, assess the results of the professional activities of civil servants;
Expand the range of duties in those areas and issues in which civil servants demonstrate ability and performance.
Conflict and emotional difficulties negatively affect professional performance. In this regard, the head of the structural unit, already at the stage of selecting candidates for the position of the state civil service (hereinafter referred to as candidates), must take into account, in addition to the professional level of candidates, their professional and personal qualities.
A favorable psychological climate in a structural unit of a state body can be formed on the basis of the following principles of team formation in a team:
Commitment to the values of the state body, the professional culture formed in it, motivating civil servants to joint activities, responsibility and initiative;
The absence of unproductive competition, the characteristic features of which are intrigues, gossip, the development of relationships "every man for himself";
Lack of intracollective conflicts, the main reason for which is misunderstanding between civil servants;
Mutual emotional support, creating an atmosphere of trust in the team (joint sharing by the team of successes, failures and difficulties in activity).
Considering that the possibility of career growth for the majority of civil servants is one of the main incentives for long-term civil service and effective performance of official duties, it is advisable for the head of the structural unit, together with the personnel service, to openly inform civil servants about the prospects for their career growth, the expected tenure in civilian positions. services and alternatives to their advancement along a career path.
Appendix N 3
Recommended formulas for calculating staff turnover and other indicators reflecting the dynamics of changes in the staff of a state body
The staff turnover rate (CTC) is estimated by the ratio of the number of civil servants (hereinafter referred to as civil servants) who quit the state body, including by structural divisions, on their own initiative and on the initiative of the employer's representative (Ruv) in the cases established by Article 37 of the Federal Law of July 27, 2004 N 79-FZ "On the state civil service of the Russian Federation", and the average number of civil servants of a state body (P) for the analyzed period.
,
where Ruv is the number of civil servants who quit on their own initiative and on the initiative of the employer's representative for the analyzed period;
P - the average number of civil servants (this information is at the disposal of the financial structural unit of the state body).
The decrease in this coefficient in comparison with its previous value characterizes a positive trend and indicates that the activities of the personnel service of the state body and the implemented personnel policy are effective.
The rate of retirement of civil servants Kvk, defined as the ratio of the number of civil servants dismissed on all grounds during the analyzed period Rvv to the average number of civil servants P for the same period:
,
Where Rvuv is the total number of those dismissed on all grounds.
This ratio characterizes the overall staff turnover associated with layoffs on all grounds.
The rate of admission of civil servants Kpk, defined as the ratio of the number of civil servants who entered the civil service in a state body for the analyzed period Ppk and the average number of civil servants P for the same period:
, where
Rpk - the number of hired civil servants.
This indicator characterizes the amount of compensation for the overall staff turnover.
Appendix N 4
A sample questionnaire for assessing the satisfaction of civil servants with non-material motivation activities carried out in a state body
Dear civil servant!
Before you is a questionnaire, which is aimed at identifying opinions on satisfaction with measures of non-material motivation, carried out in a state body. The survey is anonymous. Comparison of your answers with the opinions of other civil servants (hereinafter referred to as civil servants) will make it possible to draw conclusions about the organization of events for non-material motivation in a state body.
When answering questions, try to be extremely careful. The questionnaire contains questions that involve the choice of one or more answer options, as well as open-ended questions that suggest their own answer.
Thank you in advance for your participation!
| Questions | To be completed by civil servants |
|---|---|
| What, in your opinion, makes professional work in a government agency attractive? | 1. Stability 2. Opportunity to gain professional experience 3. Opportunity for job growth 4. The managerial nature of the activity 5. Service in a government body is prestigious 6. Other _________ |
| What can motivate you to the most effective professional activity? | 1. Mutual understanding and friendly environment in the team 2. Opportunity to take initiative, implement ideas and proposals 3. Recognition of achievements 4. Job growth 5. Increase the level of professionalism 6. Other ________ |
| What negatively affects the performance of professional activities? | 1. Poor organizational and technical conditions: uncomfortable tables, chairs, old office equipment, "overloaded" office rooms 2. Work in an emergency mode, systemic processing 3. Inability to go on vacation 4. Conflicts in the team 5. Lack of interaction with the manager |
| What values determine the direction of your professional activity in a government agency? | The values and (or) other guidelines for activities established in the state body are listed |
| What activities carried out in a state body do you consider the most effective for increasing the non-material motivation of civil servants? | Lists the activities (s) carried out in the state body |
| What innovations, in your opinion, are necessary in the system of non-material motivation operating in a state body? | Listed (are) activities (s), recommended (s) to be carried out in a state body |
| What are the main reasons for leaving a government agency? | 1. Low wages 2. Difficult psychological environment 3. Overtime workload, tight schedule 4. Lack of job growth prospects 5. Other ________ |
Processing the results of the questionnaire
It is necessary to carefully analyze the factors influencing the motivation of civil servants to the most effective professional activity, as well as to dismissal from the civil service.
In this connection, the maximum possible number of civil servants should take part in the survey.
Processing the results of the survey involves:
Analysis of responses to the presence of negative and positive proposals;
Grouping answers by similarity;
Ranking of responses according to the proportion of references (systematization of responses of civil servants according to the degree of their satisfaction with measures for non-material motivation);
Determination of the motives of civil servants, their adherence to the values of the state body, positive and negative opinions of civil servants on measures taken in the state body for non-material motivation;
Determination of measures for non-financial motivation, recommended for use in a government agency.
Appendix N 5
Recommended form of motivation card for public civil servants of a public authority
| p / p | Full name of a civil servant | Position | State civil service experience | Motives of professional activity | Recommended measures to satisfy the motives of a public civil servant | The result and conclusion about the effectiveness of motivation for the indicated motives |
|---|---|---|---|---|---|---|
| 1. | ||||||
| 2. | ||||||
| 3. | ||||||
| ... |
Appendix N 6
Example of a typical career path for government civil servants in federal ministries
| Possible for filling in the established period of the position of the state civil service | Corresponding class ranks | Recommended period of filling the position of the civil service | Required level of education | Additional professional program recommended for passing |
|---|---|---|---|---|
| The highest group of positions in the state civil service | ||||
| Deputy Federal Minister | Full State Councilor of the Russian Federation, 1st class | 6-10 years old | "Effective leader (top level)" | |
| Department Director | active state adviser of the Russian Federation, class 2 | |||
| Deputy Director of the Department | active state adviser of the Russian Federation, class 3 | |||
| Main group of civil service positions | ||||
| Head of department in the department | State Counselor of the Russian Federation, Grade 2 | 4-6 years old | higher education not lower than the level of specialist, master's degree | "Effective Leader (Entry Level)", "Leadership and Effective Team Building", "Public Speaking Skills" |
| Referent | State Counselor of the Russian Federation, Grade 3 | |||
| Leading group of civil service positions | ||||
| Deputy Head of Division in the Department | Advisor to the State Civil Service of the Russian Federation, 1st class | 2-4 years | "Ensuring information security in the work of public authorities when using digital technologies and using Internet services" | |
| Lead advisor, advisor | Advisor to the State Civil Service of the Russian Federation, 2nd class | |||
| Lead consultant, consultant | Advisor to the State Civil Service of the Russian Federation, Grade 3 | |||
| Senior group of civil service positions | ||||
| Chief specialist-expert | Referent of the State Civil Service of the Russian Federation, 1st class | 1-2 years | higher education not lower than the bachelor's level | "Improving the skills of effective communication and business writing" |
| Specialist expert | referent of the state civil service of the Russian Federation, class 2 | |||
| Referent of the State Civil Service of the Russian Federation, Grade 3 | ||||
| Junior group of civil service positions | ||||
| Specialist of the 1st category | Secretary of the State Civil Service of the Russian Federation, 1st class | 0.5-1 years | vocational education not lower than secondary vocational education | "Fundamentals of the state civil service" (for those who entered the civil service for the first time) |
| secretary of the state civil service of the Russian Federation, class 2 | ||||
| Secretary of the State Civil Service of the Russian Federation, 3rd class | ||||
______________________________
* The first class rank is assigned to a civil servant after the successful completion of the test, and if the test was not established, then no earlier than three months after the appointment of a civil servant to the position of the civil service.
2. Day, month, year of birth
_________________________________________________________________________
3. Position to be replaced
_________________________________________________________________________
4. Information about the available professional education
_________________________________________________________________________
(when and what educational institution he graduated from, specialty and qualifications
by diploma, scientific degree, scientific title)
other professional development activities
_________________________________________________________________________
_________________________________________________________________________
_________________________________________________________________________
_________________________________________________________________________
6. An individual career plan is developed before - _________________
(the term is indicated)
Section 2. Scheme for the promotion of a civil servant
| Position to be replaced | The main qualification requirements | Period of holding a position | General length of service in civil service / other types of civil service and municipal service | Intermediate stages of career development (filling civil service positions) / basic qualification requirements for filling civil service positions through: | The name of the planned (target) position for replacement / basic qualification requirements for filling the planned (target) position | ||
|---|---|---|---|---|---|---|---|
| 1 year | 3 years | 5 years | |||||
| 1 | 2 | 3 | 4 | 5 | 6 | 7 | 8 |
1. B indicates the serial number of the event for the professional development of a civil servant;
2. The measures for the professional development of a civil servant (for example, professional retraining, advanced training, internship, self-training) necessary for filling civil service positions determined by the civil servant promotion scheme are indicated;
3. The directions of training of a civil servant are indicated (economic, legal, financial, etc.);
4. The periods of training are indicated, taking into account the filling of positions provided for by the civil servant promotion scheme;
5. The implementation (non-fulfillment) of measures for the professional development of a civil servant is indicated.
___________________________________
(signature, full name of a civil servant)
Agreed: ____________________________ _________ _________________
(position of direct (signature) (full name)
head)
"" _________________ 20___
Document overview
The Ministry of Labor has developed a methodology for non-material motivation of civil servants, which should be applied by managers and personnel services of government agencies, as well as direct managers of civil servants.
The behavior of a civil servant is influenced by various motives, among which are the presence of comfortable organizational, technical and psychophysiological working conditions, recognition of the results of professional activity and self-realization.
Leaders are encouraged to publicly express gratitude to civil servants for their effective work. Gratitude can be presented in the form of a certificate of honor, a valuable gift, entering a photograph of a civil servant in the book of honor, an advantage when choosing a vacation.
Leaders must avoid systematic overhaul. On the contrary, it is recommended to arrange daily five-minute exercises and, if possible, equip places for sports.
To create an effective system of non-material motivation, the personnel service is recommended to monitor the personnel motivation system operating in the state body at least once every 2 years. It is also important to identify individual needs and draw up a program of non-financial motivation for each civil servant, as well as develop a typical career path.
- Putkova Natalia Andreevna, master, student
- Chelyabinsk State University
- RECOMMENDATIONS FOR IMPROVEMENT
- FACTORS OF MOTIVATION
- MOTIVATION
- STATE AND MUNICIPAL SERVICE
The article discusses the improvement of the motivation system for state and municipal employees. The factors of motivation influencing the effective activity of employees are shown. Recommendations are put forward for improving the system of motivation for state and municipal employees.
- Efficiency of corporate investment management
- Development of anti-corruption technologies for personnel management in the public civil service
- Ensuring energy efficiency in the urban economy as one of the main tasks of its development
- State policy in the field of preschool education
In the modern personnel management system, motivational aspects are becoming increasingly important. Motivation and stimulation of the work of state and municipal employees is the main means of ensuring the optimal use of the resources of state and municipal institutions, mobilizing the available personnel potential.
Modern theories of personnel motivation and their use in practice prove that material incentives do not always induce a person to work harder. Only knowing what motivates a person, what prompts him to activity, what motives lie at the basis of his actions, one can try to develop an effective system of forms and methods of managing a person.
There is a large number of studies in the field of labor motivation, the authors of which differ significantly in understanding the essence of motivation and motives. In its most general form, a person's motivation for activity is understood as a set of driving forces that induce a person to carry out certain actions. These forces are outside and inside a person and make him consciously or unconsciously perform some actions.
Motivation must be distinguished from stimulation. Incentives are one of the means by which motivation can be carried out. Incentives can be any benefits that satisfy significant human needs, if their receipt involves work.
Thus, the common in motive and stimulus is the urge to action. The difference lies in the fact that motives are internal motives of an individual worker, while incentives are external motives in work, activity and work, which are addressed to them by the leader. A motive includes in its structure a stimulus as the main component (an incentive to action, the cause of which is interest), that is, the concept of "motive" is broader than the concept of "stimulus".
Features of labor motivation of state and municipal employees are associated with the specifics of their work and the imperativeness of the institution of state and municipal service. The mechanism of motivation in state bodies is mainly based on administrative-command incentives associated with a clear regulation of the labor of employees, and is a complex system of socio-economic relations between state and municipal employees.
At the moment, the problem of increasing the motivation of state and municipal employees is in the center of attention, both in Russia and in many other countries. The ability of the civil service as a system to effectively perform its functions depends directly on the motivation system that encourages civil servants to act within the framework of the law, providing high-quality public services to the population.
The specifics of the work of state and municipal employees is that they do not work “for themselves,” but for the benefit of the state, therefore, the mechanisms of motivation that are used in commercial organizations cannot be applied to them. And the existing prohibitions and restrictions associated with the passage of state (municipal) service impose many restrictions on the process of motivating state and municipal employees.
It is possible to study various sociological polls in the field of motivation of state and municipal employees and conclude that the current situation is characterized by an increasing shortage of qualified personnel in the state and municipal service, capable of long-term and effective performance of official activities. Especially noticeable is the shortage of young specialists focused on many years of state and municipal service and professional self-development. Short-term career aspirations breed instability in the system of government execution and corruption.
Corruption is a separate problem in the state and municipal service. It appears because of the great temptation to use their powers of power, as well as the rather low level of material incentives for labor in the state and municipal service. Therefore, the development of an effective motivation system can not only interest an employee in work, increase the efficiency of the state apparatus, but also reduce the level of corruption.
Therefore, the development of a multifactorial motivation system for civil servants is one of the most important directions of the Federal Program "Development of the State Civil Service of the Russian Federation for 2015-2018".
At present, in theoretical developments, the development of recommendations for improving the work (stimulating and increasing motivation) of the evaluated personnel in general, state and municipal employees in particular, is put forward almost in the first place.
Improving the content of the work of state and municipal employees is possible through the development of detailed regulations, based on a comprehensive analysis, including the delineation of the scope of activities between various qualification and job groups, the compliance of the work performed with one or another level of management, a clear delineation of powers for the preparation, execution, decision-making and assessment of their performance.
A clear regulation, streamlining of social guarantees by groups of positions of civil servants will increase the transparency and controllability of the state and municipal service, strengthen the public's confidence in it, and will also be an additional incentive for the high-quality work of the apparatus.
From the peculiarities of labor of employees of state and municipal administration (their professional and qualification composition and restrictions associated with state and municipal service), it follows that it is necessary and objectively conditioned to maintain the remuneration of state and municipal employees at a level acceptable for this category of workers, exceeding the average level in the extra-budgetary sector of the economy.
From the point of view of the professional service activity of a state and municipal employee, the main operating principle of its stimulation today is the relationship between the amount of payments that make up the salary of an employee and the position of the state and municipal service: the higher the official position, the higher the total amount of salary.
The problem of motivation is that both wages and careers have an objective "ceiling" in general and for each individual state and municipal employee in particular. Simultaneously with the growth of these factors vertically, it is necessary to ensure their growth horizontally. According to V.I. Sharin, class ranks within a group of positions should be automatically promoted (if an employee has no penalties and has passed a qualifying exam) under the statutory terms of tenure. For example, the establishment of the rate of transition to the next class rank every 2 years with 7 (instead of 3 now) class ranks within the position with a corresponding increase in the size of the official salary will provide employee motivation for 15-20 years of service.
The implementation of recommendations for improving the system of remuneration of state and municipal employees should provide for a change in the composition and structure of the payroll of employees, including to achieve an optimal relationship between the amount of remuneration, the volume and quality of work performed.
In this case, both individual achievements and the results of the activities of the entire authority should be taken into account. At the same time, the creation of a system and methodology for assessing individual and organizational effectiveness is of key importance in the development of a motivation system. .
Regardless of the amount of monetary remuneration for a state and municipal employee, it remains important to maintain his prestigious status needs, to confirm the professionalism and serious importance of his work for the entire team.
A Russian state and municipal employee is generally characterized by a desire for a sense of recognition and respect from colleagues, as well as belonging to a team. Each employee seeks to show what he is capable of and how important he is to others. Therefore, it is necessary to recognize the performance of each employee, as well as provide the opportunity to make decisions on issues related to his competence and advise other employees.
Motivation and stimulation of state and municipal employees in the modern conditions of the Russian Federation should be based on the desire to follow the norms and values of society, as well as on the prospects for career growth and on certain aspects related to self-realization, on the stability of the workplace, opportunities for professional development, as well as interesting content work.
In order for an employee to be satisfied with his work and show maximum efficiency, his results, among other things, must meet his expectations. In addition, you need to closely monitor subordinates in order to decide what active needs are driving them. Because these needs change over time, motivation that works once cannot be expected to work effectively all the time.
One of the expedient recommendations for improving the motivation system is the creation of special departments (groups) of personnel motivation through organizational changes in institutions. It goes without saying that such departments are not a novelty, and they are already successfully functioning at a number of Russian enterprises. Therefore, it is necessary to spread the process of introducing such departments of motivation in state and municipal institutions as much and as quickly as possible.
Thus, by developing, regulating and controlling the entire motivation system of the institution, the personnel motivation departments will significantly increase the effectiveness of such a system.
Also among the recommendations for improving the system of motivation of state and municipal employees can be attributed to the organization of corporate events for team building, public recognition of achievements, regular expression of gratitude.
Thus, a dense "network of motivations" will be formed, being in which each employee will know that effective, high-quality and honest work with a certain frequency will be additionally rewarded not only in material terms, but also in moral terms.
Another very effective way is to invite state and municipal employees as official guests or experts to various events. This will allow them to feel their own worth as specialists in their field, and will also help to enhance their reputation.
Lately special place in the system of motivation of civil servants is occupied by the opportunity to have a flexible work schedule, additional weekends and holidays, especially for women with preschool children.
So, an effective motivational mechanism in managing an institution should be based, first of all, on a system of material and non-material incentives, and also be consistent with the development strategy of the institution itself. The effectiveness of the remuneration system should be aimed at individualizing the employment relationship, i.e. establishment of working conditions, taking into account the content and nature of work duties, professional, business and personal qualities of state and municipal employees. At the same time, non-material methods of motivation should consist in the formation of the corporate spirit of employees, contributing to an increase in the interest of personnel in the quality of their work.
It can be concluded that there are a significant number of opportunities for the creation and implementation of various, both financial and non-financial, forms of motivation and incentives for state and municipal employees. However, these forms should be based on the rule that all of them should be aimed at awareness by state and municipal employees of their purpose, place and role in the state and municipal service.
Consequently, the result of the influence of stimulating factors should be the emergence of internal motivation, suppressing external. Moreover, it is necessary to agree that the use of any factors of motivation and incentives (both material and non-material) will not give the desired results until state and municipal employees independently realize the fact that their activity is really necessary and is in demand in the life of society as a whole.
Thus, observing these simple recommendations, the manager will be able to build the correct system of work motivations and incentives, establish trusting relationships with the team, achieve full return from employees and, as a result, get productive and effective performance of employee duties, which will ultimately lead to immediate success, development and prosperity of the institution.
Of course, the suggested recommendations are not standard and optimal for all institutions. Each manager, based on the specifics of his activities, personal and psychological characteristics of employees, must independently develop and implement a special individual system of motivations and incentives, or transfer these functions to the personnel motivation department, if there is one.
Bibliography
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This study examines the motivation of civil servants (not military or law enforcement). "State civil service is a type of public service, which is a professional service activity of citizens in positions of the state civil service to ensure the fulfillment of the powers of federal state bodies, state bodies of the constituent entities of the Russian Federation, persons holding public offices of the Russian Federation, and persons holding public offices of the constituent entities of the Russian Federation. Federation. " Federal Law "On the system of civil service in the Russian Federation" dated May 27, 2003 No. 58-FZ "A civil servant is a citizen of the Russian Federation who has undertaken obligations to undergo civil service. A civil servant carries out professional service activities in civil service positions in accordance with the act of appointment to the position and with a service contract and receives a salary from the federal budget or the budget of a constituent entity of the Russian Federation. " Federal Law "On State Civil Service in the Russian Federation" dated July 27, 2004 No. 79-FZ
Obviously, the civil service is different from working in a regular firm. What are the basic principles of passing the state civil service? Firstly, this is the principle of legality, which implies not only the supremacy of the Constitution of the Russian Federation, federal laws and other regulatory legal acts, but the fact that civil servants in their activities must strictly follow them, and also to some extent be law. Secondly, this is the democracy of the service, which implies the compliance of activities with the interests of citizens and the state, the general availability of the civil service, its transparency, etc. Thirdly, this is professionalism, here a distinctive feature is the fact that it is simply impossible to get into civil service without education, you also need managerial and leadership qualities, as well as diligence and discipline. Fourthly, this is the social and legal security of employees, it implies the creation of special legal and social conditions for the normal performance of their work by civil servants. Federal Law "On State Civil Service in the Russian Federation" dated July 27, 2004 No. 79-FZ; Bakhrakh D. N. State Service of Russia; study. allowance. - M. Prospect, 2009 .-- 152 p.
The very system of motivation of civil servants with a clear definition of this concept is not described. However, one can study the Russian regulatory framework, various sociological surveys and conclude that the motivation system consists of the following components (which have a direct impact on the motivation of civil servants): government guarantees, wages, career opportunities, certification, rotation, training and responsibility. Competitive selection can have an indirect effect on the motivation of employees. All these elements of the motivation system are based on the social and legal status and legal status of a civil servant, which consists of rights, duties, restrictions, prohibitions, responsibility, requirements, guarantees and economic support (in general, everything related to public service). The social and legal status of a civil servant is the measures established by the state for the proper and possible behavior of a civil servant. This status (which can also be interpreted as the position held, educational level and remuneration) not only determines the place of a civil servant in the administrative process, but can also satisfy his need for respect, recognition, etc., thus it is a strong motivating factor. Citizens V. D. State civil service: textbook. - M. :: YurknigaU 2005 .-- 480s.
The motivation system for civil servants is complex and complex. Here you can trace the relationship with the Porter-Lawler theory: the complexity and importance of the element of motivation in the management process, as well as the fact that wages are far from the only incentive, is indicated.
State guarantees
Government guarantees create normal working conditions and motivate employees to perform efficiently. They provide legal and social security for civil servants, a stable staff. Their purpose is to make the civil service more attractive in the eyes of both civil servants and potential employees, as well as ordinary citizens.
The main state guarantees include:
equal conditions of remuneration and comparability of assessments of the performance of civil servants;
the right to timely payment for labor in full;
awareness of comfortable working conditions: providing a working space, furniture, appliances, etc .;
normal working hours: normalized working day, the right to a lunch break, to rest, on weekends, to annual paid leave (for higher and main positions 35 calendar days, for other positions 30 calendar days) and other vacations (leave without pay no more than 1 years), including for length of service (the sum of days of paid leave and leave for seniority for senior and senior positions is not more than 45 calendar days, for other positions this number should not exceed 40 days), upon dismissal of a civil servant, he is paid for all unused vacations;
health insurance for civil servants and family members;
state social insurance in case of illness or disability during the period of state civil service;
payments for compulsory state insurance;
reimbursement of travel expenses;
reimbursement of expenses associated with the relocation of a civil servant and his family in connection with the transfer to another place of work in the civil service;
protection of a civil servant and his family from various manifestations of violence, threats, etc. in connection with the performance of his official duties;
state pension provision
housing subsidy.
There are also other state guarantees provided to civil servants in accordance with Federal laws. For example, maintaining a place of work, remuneration during the period of professional retraining, internships and other events, transport service, as well as a one-time subsidy for the purchase of housing once for the entire period of civil service. Work experience can also be considered a kind of guarantee, since the higher the length of service, the higher the seniority bonus to the paycheck. There are also rewards for excellent service, compensation for unused vouchers. Federal Law "On State Civil Service in the Russian Federation" dated July 27, 2004 No. 79-FZ; Bakhrakh D. N. State Service of Russia; study. allowance. - M. Prospect, 2009. - 152 p .; Citizens V. D. State civil service: textbook. - M. :: YurknigaU 2005. - 480s .; Cherepanov V.V. Fundamentals of public service and personnel policy: a textbook for students - 2nd edition, revised. and add. - M .: UNITI-DANA, 2010.-679 p.
Guarantees are a system of positive incentives because they provide proper working conditions for employees. Ideally, if all the conditions for work are created, then the responsibility rests with the employee: what are his skills, abilities, qualities.
This element of motivating civil servants is in line with Mayo's view that intangible motivation is as important as material motivation, and Taylor's view of daily output (normal work mode).
Salary
The remuneration of a civil servant is a more specific incentive. And it is the main means of its material support and stimulation of its activities.
The salary of a civil servant consists of 3 parts: a monthly salary in accordance with the position held, a salary for a class rank and other payments. The official salary is established by Presidential decrees; for individual positions, it can establish a single salary, which takes into account all payments (for class rank, for length of service, for special working conditions, for work with state secrets), except for bonuses and monthly monetary incentives.
Additional payments include:
seniority bonus from 10% to 30% for seniority from 5 to 15 years;
allowance for special working conditions in the amount of up to 200% of the monthly salary;
bonus for work with state secrets, as well as for work in a body for the protection of state secrets, then he additionally receives a bonus for work experience in such bodies (with 1-5 years of experience, the bonus is 10 percent, 5-10 years, then 15 percent, further - 20 percent This length of service also includes the time of work of these employees in the structural units of similar bodies, other government bodies, local government bodies);
bonuses for especially important and difficult tasks;
monthly incentives (from 1 official salary to 14, depending on the position);
a one-time payment when granting leave (in the amount of two monthly salaries) and material assistance.
regional coefficient (for regions of the Far North and hard-to-reach regions);
Salaries are indexed annually according to the inflation rate in the country. Federal Law "On State Civil Service in the Russian Federation" dated July 27, 2004 No. 79-FZ; Bakhrakh D. N. State Service of Russia; study. allowance. - M. Prospect, 2009. - 152 p .; Citizens V. D. State civil service: textbook. - M. :: YurknigaU 2005 .-- 480s. A sufficiently flexible remuneration was introduced, depending on the performance and efficiency of official activities, and the remuneration structure itself was improved. Now the base salary makes up an insignificant part of the remuneration, a significant share falls on additional payments based on the performance of a civil servant, which stimulates the civil servant to improve the quality of his work.
The system of remuneration of civil servants corresponds to Taylor's view in terms of various allowances (for overfulfilling the daily output). There is also a correspondence between the theory of expectation and the theory of justice, since the remuneration system is transparent, civil servants declare their income (a civil servant knows how much his colleague gets paid), an employee knows what remuneration he will receive for his efforts. There is also an indirect relationship with the theory of the psychological contract.
Encouragements and awards
Rewards and rewards are an important element in motivating civil servants. They allow to motivate employees to perform work, to increase loyalty to the executive authority in which they serve. They also have an impact on service discipline. Their use is based on gratitude for a job well done or an impeccable performance on duty.
Incentives and awards are of the following types:
announcement of official gratitude and payment of monetary incentives in accordance with this;
awarding a certificate of honor and payment of monetary incentives in accordance with this;
other types of incentives and awards;
payment of a one-time retirement incentive;
encouragement of the Government or the President of the Russian Federation;
conferring honorary titles;
rewarding with insignia or orders.
It is noteworthy that this element of the motivation system combines not only material methods, but also non-material ones. Non-financial incentives should not be ignored in the civil service, because wages and various incentives are paid from the federal budget, and it is not rubber, it is limited. Also, people are pleased when they are appreciated not only from the material side, when they are tritely respected, for example. Ovsyanko D.M. State Service of the Russian Federation: Textbook. - 4th ed. Revised and add. - M.: Yurist, 2008 .-- 447s.
This element of motivating civil servants, as well as providing government guarantees, is in line with Mayo's view that non-material motivation is as important as material motivation.
In general, government guarantees, wages, incentives and awards correspond to meaningful theories of motivation; they have a strong impact on various groups of employees' motives.
Competitive selection
Competitive selection has an indirect effect on motivation; rather, it can guarantee that a qualified and responsible employee will come to the civil service. This is the main way to fill positions in the civil service. The competition for filling a civil service position is a determination from among candidates of the position that best meets the requirements of the position (conditions of the competition). There are the following selection principles: professionalism and competence, the principle of equal access of citizens to the civil service
Competitive selection is not applicable when appointing to the categories of "managers" and "assistants (advisers)", when concluding a fixed-term service contract, when appointing to a civil service a citizen who is in the personnel reserve formed on a competitive basis. Federal Law "On State Civil Service in the Russian Federation" dated July 27, 2004 No. 79-FZ
Civil Service and Career Opportunities
Passage of civil service is the dynamics of the official position of a civil servant, his career growth or decline. This process is also a motive for entering and completing the civil service, or for improving the employee's performance. The main elements of the civil service are admission to the civil service, the adaptation period, certification, transfer to another position, assignment of ranks, encouragement, prosecution, termination of service. The employee is motivated to act in this case by raising or lowering the career ladder, rewards and responsibility, as well as certification to some extent.
Promotion is one of the most effective non-financial incentives because as a result, material incentives increase, the need for involvement in making more important decisions is satisfied, interest in activities increases, and, consequently, the effectiveness of the employee's activities.
Career growth is an intangible incentive in accordance with meaningful theories of motivation, and is also one of the ways to "enrich labor." Zankovsky A.N. Organizational Psychology: Textbook for universities in the specialty "Organizational Psychology". - 2nd ed. - M .: Flinta: MPSI, 2002 .-- 648 p.
From the point of view of motivation, rotation increases the knowledge base of the employee, in this way it is possible to increase the employee's interest in the work performed by him. The rotation is carried out in order to improve the efficiency of the civil service, and helps in combating corruption. It is carried out within one group of positions, taking into account the level of qualifications, education and length of service in the civil service.
Positions in rotation are filled for a period of 3 to 5 children.
A civil servant has the right to refuse to fill a position on a rotational basis in the event of a disease, in accordance with which the proposed position is contraindicated, as well as if it is impossible to live in another place in accordance with the proposed position.
Rotation is also one of the ways to “enrich labor”. Federal Law "On State Civil Service in the Russian Federation" dated July 27, 2004 No. 79-FZ
Attestation
Attestation is the process of determining whether an employee meets the requirements for him in accordance with the position he occupies. It allows you to increase the sense of responsibility for the work performed, as well as to get into the personnel reserve, which is a stimulating factor.
It is held every three years, and may be extraordinary. The certification is carried out earlier than the specified period for two reasons: there was a decision to reduce the staff or to change working conditions (for example, the transition to electronic document management).
Employees of the category "managers" and "assistants" ("adviser") are not subject to certification if they have a fixed-term service contract, have worked in the civil service position for less than one year, employees who have reached the age of 60, pregnant women on leave for pregnancy and childbirth and parental leave until the child reaches the age of three years (their certification of these civil servants is possible no earlier than one year after leaving the leave), within a year from the date of passing the qualifying exam.
Based on the results of certification, one of the decisions can be made: a person needs professional retraining, inclusion in the reserve to fill a vacant higher position, or it can simply be confirmation of compliance with the position held. A month after the certification, a normative legal act is issued, which can indicate which employees are demoted, which go to professional retraining, which are to be included in the personnel reserve. If a civil servant refuses to go for advanced training, then a representative of the employer's service can release him from his post and dismiss him from the civil service. Federal Law "On State Civil Service in the Russian Federation" dated July 27, 2004 No. 79-FZ; Decree of the President of the Russian Federation "On the certification of state civil servants of the Russian Federation" dated February 1, 2005 No. 110; Bakhrakh D. N. State Service of Russia; study. allowance. - M. Prospect, 2009. - 152 p .; Citizens V. D. State civil service: textbook. - M. :: YurknigaU 2005 .-- 480s
Another form of personnel assessment is a qualification examination. It is handed over by civil servants who have held positions of the category "managers", "specialists", "providing specialists" for an indefinite period. The exam is held when the question of conferring a class rank on a civil servant arises. It is noteworthy that an extraordinary qualification exam can be conducted only at the initiative of an employee.
This exam is also a kind of incentive to move up the career ladder. For example, if a civil servant takes an exam, then he is assigned a class rank, he starts earning more, his status rises. Federal Law "On State Civil Service in the Russian Federation" dated July 27, 2004 No. 79-FZ; Citizens V. D. State civil service: textbook. - M. :: YurknigaU 2005 .-- 480s
Education
The promotion process is closely related to training. If promotion is a motivating factor, then learning is indirectly related to motivation too. Thus, the better a person is educated, the more likely they are to be promoted. Here you can also judge the satisfaction of the need for self-realization.
There are two types of training - at the place of work, outside the place of work.
Despite the great efficiency of training in special place, this method involves a lot of temporary and financial costs... This type of training takes the employee away from work. But at the same time, this method best meets the needs of employees for personal and professional growth. Zankovsky A.N. Organizational Psychology: Textbook for universities in the specialty "Organizational Psychology". - 2nd ed. - M .: Flinta: MPSI, 2002 .-- 648 p.
On-the-job training can be more complex and rotational. It is also known to be less costly.
Education corresponds to the satisfaction of secondary needs for various meaningful theories of motivation, and can also act as one of the ways to "enrich" work.
A responsibility
Labor motivation of civil servants, like any other modern system of motivation, is a system consisting of positive and negative incentives. Responsibility is just a negative incentive. This incentive is expressed in the application of various kinds of sanctions established by law for the admission of misconduct and the commission of crimes while passing the state civil service. Prior to this, mainly positive incentives for work were described, which can be applied, for example, to a person of type "y" in McGregor's theory of motivation.
There are four types of responsibility.
Disciplinary responsibility. It is expressed in the application of disciplinary action for violation of the rules for passing the civil service. This can be a reprimand, a reprimand, a severe reprimand, a warning about incomplete compliance, dismissal from office and dismissal from public service. The employee may also be required to provide a written explanation, the refusal of which would only worsen the situation. When determining the sanctions, the degree of guilt and the severity of the offense are established. A disciplinary penalty is applied within one month from the date of discovery of the offense. A distinctive feature of disciplinary sanctions is that if within a year after the application of the disciplinary sanction there were no new disciplinary sanctions, then the first sanction “burns out”. If, upon dismissal of a civil servant due to disciplinary action, he must be included in the personnel reserve on the basis of a general competition. This type of responsibility makes civil servants equal before the law, on the one hand, and also takes into account the specifics of their activities, on the other. Today, due to the drop in the motivation of civil servants (work carelessly, delay in the execution of orders), disciplinary liability is increasingly resorted to, however, despite the application of penalties, the rules continue to be violated (corruption and abuse flourish). All this does not contribute to the creation of a positive image of the state apparatus.
Administrative responsibility. Its civil servant carries on a general basis in accordance with the Code of Administrative Offenses of the Russian Federation. This type of liability occurs in connection with administrative offenses. Administrative responsibility can be established by all authorities, and not only by the body where the civil servant is listed. The imposition of this responsibility is carried out by special bodies, incl. courts. Its occurrence does not depend on the degree of harm, but only on the very fact of the violation, it is more formal. It can be applied to entire organizations, not just to an individual. There are the following measures of administrative coercion: administrative preventive, administrative suppression and administrative penalty. The Code of Administrative Offenses regulates in detail the process of administrative responsibility, the rights of the injured party and the rights of the offender.
Material liability. Coming for causing material damage to the state or legal entity. Along with material compensation for damage in the event of a liability of this kind, a disciplinary sanction is imposed on a civil servant. Comes in an administrative order, or by a court decision. Unfortunately, the pack has not developed rules for the application of such liability specifically to civil servants, therefore it is regulated by labor legislation.
Criminal liability for civil servants comes on a general basis.
As you can see, the system of negative incentives in the form different types responsibility is highly developed. It is an educational and warning element in the behavior of civil servants. Bakhrakh D.N., Rossinsky B.V., Starilov Yu.N. Administrative law. 3rd ed., Revision. and add. - M .: Norma, 2008. - 816p .; Bakhrakh D. N. State Service of Russia; study. allowance. - M. Prospect, 2009 .-- 152 p.
The system of negative incentives corresponds to the sanctioning of the “x” person in the McGregor theory. But there are no clear types of people "x" and "y", so in real life positive incentives are used along with negative ones.
Having considered the main aspects of the labor motivation system for civil servants, one can analyze them and identify the problems of motivating civil servants. They will be described in the next part of this chapter.
