Quality management in public authorities. QMS in a state organization: to be or not to be

Consequently, in the authorities, the ideas used in business about the effective organization of activities, including the elements of the quality management system, are applicable.

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

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

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

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

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

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

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

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

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

The presence of such a description allows:

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

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

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

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

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

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

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

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

Review of Russian experience

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

Here is a description of 4 projects.

“In October 2005, in the administration of the city of Shakhty Rostov region launched a project for the development, implementation and certification of a quality management system (QMS), and in April the Shakhty municipality received a certificate for compliance with the requirements of the international standard ISO 9001: 2000. In record time, the mayor of Shakht, Sergei Ponamarenko, managed not only to obtain a certificate, but also to make the management system work for the benefit of consumers, i.e. citizens. Optimization of the processes of providing services to the population was started with the most relevant (over a thousand applications of citizens per year) “providing land plots". The leadership of the city administration has developed and introduced into the daily bureaucratic practice a procedure for the accelerated passage of documents on the principle of the "green corridor".

Improvements to the process diagram included:

• elimination of unnecessary movements of the applicant between departments, some stages due to the absence of the need for their implementation, repeated requests for approval of various documents in the same service;
• reduction of the time required for the passage of documents at each stage;
• combining the procedure for issuing two orders into one, repeating stages of coordinating various documents.

The process was reorganized as follows.

We took a photo of the specialists' working day. We placed service workers in the same office, having previously tested for psychological compatibility. We organized a commission visit of specialists from various departments to the facilities, for which we bought a Gazelle. We created a sector for controlling the passage of legal acts in the structure of the administration. And they did what the reform of the self-government bodies gave the right to do: instead of the two orders that land plot), began to publish one with all the ensuing conciliation procedures.

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

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

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

Second example.

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

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

What does this mean for government?

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

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

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

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

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

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

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

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

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

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

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

And one more project of setting quality management in government bodies.

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

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

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

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

The QMS of the Ministry is based on the software product DocsVision "Quality Management", a corporate system based on the platform electronic document management DocsVision, which solves the problems of building, maintaining and developing an organization's Quality Management System. "Quality Management" performs the functions of managing the QMS processes, and also solves the complex task of automating office work, including the issues of creating, routing and executing documents, maintaining an electronic archive and organizing office workflow.

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

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

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

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

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

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

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

What software is better to use for the creation, implementation and maintenance of the QMS?

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

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

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

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

This approach is carried over to the authority as follows.

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

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

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

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

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

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

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

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

The main purpose of the E-Master:

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

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

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

QMS staging project

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

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

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

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

"Guidelines for Performance Improvement"

Resolution of the Government of the Russian Federation of November 11 2005 year ... N 679 "On the procedure for the development and approval of administrative regulations for the execution of state functions and administrative regulations for the provision of public services." The text of the resolution was published in the Collected Legislation of the Russian Federation of November 21 2007 year ... No. 47 Art. 4933

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

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

Birzhan Zhantuarov,
director of the representative office
Certification Association "Russian Register" in Kazakhstan,
certified auditor RR according to ISO 9001,
expert auditor registered in the State Statistics Service of the Republic of Kazakhstan for QMS and ISMS, IRCA

Pavel Nikanorov,
Deputy Director for Development of the Association
according to certification "Russian Register",
lead auditor of РР and IQNet
according to ISO 9001, OHSAS 18001, SA 8000, BS 25999 standards,
official representative of Russia in IQNet

In the world, the use of control systems models laid down in the ISO 9000 series standards, as well as a number of other internationally recognized standards to improve the activities of local government bodies, is widespread everywhere. It should be noted that certification of local self-government bodies for compliance with the requirements of ISO 9001 as the main way to effectively implement this management model was put forward by the European Union for new members as one of the requirements for membership (Bulgaria, Bosnia and Herzegovina, Poland, etc.). Figure 1 shows information on the number of local authorities, state and municipal institutions certified by certification bodies - members of IQNet, the largest international association of certification bodies, uniting 36 certification bodies from 33 countries, which together occupy more than a quarter of the world. market for certification of management systems. It should be noted that this information is not comprehensive, but indicates how popular the ISO 9001 standard model is in the world.

Recognizing the importance of implementing quality management systems based on the ISO 9001 model in local government, the International Organization for Standardization ISO has developed an International Working Agreement, IWA 4, Guidelines for the Application of ISO 9001 in Local Government.
The mechanism of International Working Agreements is used when it is necessary to issue a document in a short time, without going through the long enough formal procedure for agreeing on standards, which is adopted in ISO. An international working agreement was adopted in 2005. It was revised in 2009 to reflect the new ISO 9001 2008 version. This document includes a number of recommendations, examples and explanations on the implementation of the standard in local governments, as well as the "Check" system for local governments, which is aimed at helping local governments assess their activities, identify weak and strong sides of the body and take steps to improve.
IWA 4's Check System is an example of a methodology for performing self-assessments / diagnostics in local governments to assess current activities, improving the delivery of services to its customers / citizens as a “Trusted Local Government” (a term used in IWA 4). The proposed scheme correlates with the conclusions indicated at the end of Chapter 1 of this work that the main models for improving the performance of local governments are self-assessment and standardization in the field of management. IWA Developers 4 of The International Organization ISO standardization has combined both models in this document in relation to the activities of local governments.
The “Check” system is a self-assessment framework based on 39 management indicators, categorized into four main categories. These indicators are formed to determine the range of services that a typical local government should have, which is “reliable” in all areas when providing services to its consumers / citizens.
Figure 2 provides a general outline of the self-assessment model proposed in IWA4.

It is believed that the first local government to confirm the implementation of the ISO 9001 quality management system model and receive a recognized certificate for compliance with the ISO 9001 standard, version 1994, was the City Council of Saint-Augustine de Desmonres, Quebec, Canada, whose population was moment 15,000 people. Since then, the interest of local governments in the implementation of management systems based on the model of the ISO 9001 standard has grown continuously.

This model is very popular in Poland. As objective reason, which caused such popularity in this country, can be called the comprehensive support for the implementation and development of quality management systems based on the model of the ISO 9001 standard from the government of Poland, as well as the entry of Poland into the European Union, which forced local governments to adopt innovative management models widespread in Europe. Since 1999, the Administration of the Prime Minister of Poland has been developing the program "Quality Management in Government Bodies". This program is being implemented jointly with the United Nations Development Program (UNDP).
Since the beginning of the program, more than 100 local governments have submitted their applications for participation in this program. Also, work is underway to introduce quality management systems based on the model of the ISO 9001 standard in public authorities. The first government agency to receive official recognition for the standardization of the management system based on the quality management system was in 2003 the Ministry of Justice, having received an internationally recognized certificate of conformity. The innovative ISO 9001 model has become widespread among local governments in Australia. In addition to the ISO 9001 model, the models of the ISO 14001 and 18001 standards are also popular. So, in December 2005, the Banyule City Council certified its management system in the DLIQ Certification Services certification body for compliance with 3 standards:
- AS / NZS ISO 9001: 2000 Quality management systems;
- AS / NZS ISO 14001: 1996 Environmental management systems;
- AS / NZS 4801: 2001 Occupational health and safety management systems. (analogue of OHSAS 18001).

The practice of implementation and certification takes place in other states as well. As an example, consider Israel, where the administration of the city of Ra'anana, with a population of 15,000, has implemented and certified a management system for ISO compliance 9001: 2000 and ISO 14001: 2004. It should be noted that according to Israeli researchers, all local government administrations in Israel that have implemented systems based on models of international governance standards in their bodies were re-elected for the next term. This information, in our opinion, may be an indirect evidence of the effectiveness of standardization of the quality management system of a local government body based on the ISO 9001 standard. In particular, this fact may indicate that the introduction of these innovative models leads to the satisfaction of the population and other stakeholders with the activities of local governments ... It can be assumed that local self-government bodies, with the help of standardization based on models of international standards and, in particular, the ISO 9001 model, successfully cope with the functions and powers assigned to them and are able to effectively solve the tasks they face.
In the United States, most municipalities are certified, including capitals. In the United States, since 1988, the President's Quality Award Program has been running for high-performing organizations of the Federal Government for outstanding performance in the field of quality. This Program aims to facilitate the exchange of best practices and management strategies between federal agencies, as well as local governments, state governments and private sector organizations; to develop systematic approaches and methodologies for assessing, analyzing and planning performance improvements. The program includes two awards: the Presidential Quality Award and the Quality Improvement Award. The Presidential Quality Award is similar to the Malcolm Baldrige National Quality Award, and its criteria have been refined to reflect the specifics of government agencies.
A special situation with the introduction of international standards has developed in Japan. The number of local governments in Japan is 3301, divided into 47 prefectures, including 12 cities chosen by the ministry, which have the same rights and privileges as prefectures, 659 large cities (with a population of more than 50,000), 23 administrative districts (including the capital Tokyo ), 1987 cities (with less than 50,000 inhabitants) and 573 villages. Each prefecture has a population of up to 1 million people and includes 10-40 cities.
Most of the local authorities of prefectures and administrative districts are certified in accordance with the requirements of the international standard for environmental management ISO 14001, which is due to the high responsibility and understanding of environmental responsibility in Japan. Recent events in Japan related to the disaster on nuclear power plants caused by earthquakes, once again prove how much attention should be paid at all levels of government to environmental issues and to what disastrous consequences negligent or insufficient attention to environmental aspects can lead.

The authors conducted a survey of a number of local governments (10 local governments in Australia, the United Kingdom, Canada, Ireland and Latvia took part in the survey). The following questions were asked:
1. What goals were set during the implementation and certification of the QMS of your body?
2. How effective was the implementation of the model and to what extent were the goals achieved?

Summarizing the received answers, we got the following results:
1) The objectives of the implementation of the quality management system of the interviewed local governments are to structure the internal processes of the bodies, improve the quality of services (including through the dissemination of innovative methods such as electronic services, payments, filing applications, etc.), increase the general level of knowledge municipal employees, demonstrating their commitment to citizens, representatives of the business community, regional authorities and investors innovative development, as well as its ability to ensure sustainable development of the region.
2) The effectiveness of the implementation of the model. All local authorities participating in the survey stated that the goals of introducing the quality management system have been generally achieved - public opinion polls show an increase in satisfaction with the quality of services, there has been an increase in the number of e-services provided through the websites of the bodies. Thus, due to the standardization of management systems and the introduction of innovative management methods, innovative methods the provision of services, which in turn leads to an increase in the satisfaction of citizens, the business community and other stakeholders. After the implementation of the quality management system based on the ISO 9001 standard, the heads of the four interviewed bodies were re-elected for a second term (in one case, they were appointed by the members of the City Council).

International management standards and, in particular, ISO 9001 are gaining popularity in Russia. Not only local governments, but also regional / federal authorities have already implemented or are considering the possibility of introducing international standards into their activities.

Below is a brief information with examples of QMS implementation in government bodies and local governments in Russia.

2010 year:
At the beginning of 2010, all executive authorities of the Kaliningrad region (34 in total) were successfully certified for compliance with the requirements of the ISO 9001 standard.

2008 year:
The quality management system is standardized and implemented in all 17 executive authorities and 26 local governments of the Chuvash Republic. It should be noted A complex approach used in the implementation of the system implementation project.
The international certificate of conformity to ISO 9001 requirements was received by the administration of the city of Bataysk, Rostov region. The system was introduced by the City Council of the city of Shakhty, Rostov Region. In Shakhty, both the executive and legislative authorities of local self-government operate in accordance with the international ISO model.

2007 year:
The requirements of ISO 9001 as part of the implementation of the departmental target program for reforming the municipal finance of the city of Tyumen for 2006-2008 were introduced by the administration of the city of Tyumen. The administration of the Nekrasovsky district of the city of Yaroslavl began to develop the system.

2006 year:
The decision to develop and implement the system was made in the Administration of Serpukhov (Moscow region). The system applies, in particular, to enterprises providing services in the field of housing and communal services.
The administration of the Stupinsky municipal district is one of the first among the regional executive authorities in Russia to introduce and certify a quality management system based on the ISO 9001 standard.

2005 year:
The Ministry of Economic Development and Trade of the Russian Federation became the first ministry to certify its quality management system.
Today, a number of authorities and local self-government in Russia are actively working to implement the ISO 9001 standard in their activities and are preparing to undergo certification. Also, many regional executive authorities come to understand the need to implement the QMS for successful reform and improvement of their activities.
In addition, we found that many regional authorities (for example, in St. Petersburg and the Leningrad region, in the Murmansk region, etc.) develop, within the framework of the budgets, programs to support the implementation of quality management systems in regional enterprises, reimbursing the latter from budget funds are part of the costs spent on the implementation and certification of quality management systems. Thus, a number of these authorities, although not yet involved in the process of standardizing their management systems on the basis of international standards, at the same time demonstrates an awareness of the importance of management quality for the development of regions, as well as the innovativeness of using international standards for the development of enterprises in their regions.
Experience of QMS implementation in Kazakhstan
The implementation of a quality management system in accordance with international standards complies with the State Policy pursued by the President of the Republic of Kazakhstan N.A. Nazarbayev, in particular, set forth in such documents as:
Decree of the President of the Republic of Kazakhstan dated November 14, 2006, No. 216 "Concept of the transition of the Republic of Kazakhstan to sustainable development for 2007-2024";
Decree of the President of the Republic of Kazakhstan dated January 13, 2007 No. 273 "On measures to modernize the public administration system of the Republic of Kazakhstan";
Order of the Prime Minister of the Republic of Kazakhstan dated March 9, 2010 43-r "On approval of the Plan for the further transition of Kazakhstani organizations to international standards for 2010-2014."
Implementation State policy on the introduction of international standards takes on particular importance in connection with the upcoming accession of Kazakhstan to the WTO and in connection with joining the list of the 50 most competitive countries in the world. In addition, the quality management system will provide additional benefits such as:
providing guarantees for the exact implementation of legal requirements;
improving the efficiency and transparency of the work of departments by introducing a process approach into the management system;
improvement internal control;
improvement of structure, responsibility and streamlining of work;
increasing labor productivity and efficiency.
In the Decree of the Government of the Republic of Kazakhstan dated February 25, 2009 No. 219 "On approval of the Action Plan for 2009-2011 for the implementation of the Strategy for industrial and innovative development of the Republic of Kazakhstan for 2003-2015", Article 11 specifies the adoption of measures for the implementation of international standards of management systems, incl. h. and in public authorities.
Today, this approach, in which government agencies base their work on the ideology of international standards ISO 9001, is becoming more widespread in Kazakhstan.

Brief information with examples of QMS implementation
in the authorities in Kazakhstan.

2005 year:
- Administration of the Akim of Astana city;
- Administration of the Akim of the city of Taldykorgan;

2006 year:
- Ministry of Industry and New Technologies of the Republic of Kazakhstan;
- Apparatus of the Akim of the West Kazakhstan region;

2007 year:
- Apparatus of the Akim of the East Kazakhstan region;

year 2009:
- Apparatus of the Akim of the Dzhambul region.

The use of innovative models of government administration is becoming especially demanded in connection with the implementation of the State program for the forced industrialization of the country.
Analyzing the above information, we can conclude that work in accordance with the models of international standards in the field of management and, in particular, in accordance with the model proposed in the ISO 9000 series standards, is ubiquitous among public authorities and local governments in the world, including in Russia and Kazakhstan, and its use allows the authorities to increase the efficiency of their activities and achieve their goals.

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

posted in section: Quality School

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One of the problems of modern society is to increase citizens' confidence in federal, regional and local government bodies. In this regard, local governments play an important role in building a resilient community in which cost-effective, systematic and quality services to citizens help social development, economic prosperity and local order. In this case, one should take into account the federal and regional policy of the state. Ensuring a high quality of work of local self-government bodies helps to conduct, adjust and improve public policy at other levels of government and the state system as a whole. This approach allows ensuring the proper quality of the work of government bodies at all levels: local, regional and federal.

Citizens' needs and expectations may differ significantly in different regions, but in general, local governments around the world strive to achieve a higher level of democracy and pluralism, the necessary conditions for which are transparency and efficiency of their activities. This, in turn, requires the normal management of resources and processes of local self-government bodies as a system.

The quality management system is one of the means by which local governments can plan and carry out their actions aimed at meeting the needs and expectations of society. In general, a quality management system includes the organizational structure of the local government, as well as the planning, processes, resources and documentation necessary to achieve quality objectives and ensure continual improvement of processes, products and services. The ISO 9001: 2000 standard has become widespread as a basis for the development of such a system. Implementation of this standard in local governments is an excellent tool to ensure citizens' trust and meet their needs and expectations.

An example of the implementation of a quality management system

in Shakhty municipality

The administration of Shakhty, Rostov Region, is the first municipality in the Russian Federation to have implemented and certified a quality management system in accordance with the requirements of the international standard ISO 9001 (Figure 3.10).

Figure 3.10. Certificate issued by the administration of the city of Shakhty in the Rostov region for the QMS

The basis for the implementation of the quality management system was the interest of the city management in the creation of the QMS, since this allows:

To improve the quality of work of municipal employees.

To increase the level of provided municipal services.

To systematize the processes of the administration.

Get away from the principle of "irreplaceable person" by eliminating the human factor

By order of the Federal Agency for Technical Regulation and Metrology on December 27, 2007. N 570-st approved the national standard of the Russian Federation GOST R 52614.4-2007 "Guidelines for the application of GOST R ISO 9001-2001 in local governments" (GUIDELINES FOR THE APPLICATION OF GOST R ISO 9001-2001 IN LOCAL GOVERNMENT) This standard was introduced with September 1, 2008.

Standard prepared by Open joint stock company"Research Center for Control and Diagnostics technical systems"(JSC NITs KD) based on its own authentic translation of the standard. Introduced by the Technical Committee for Standardization TC 10 "Advanced Manufacturing Technologies, Management and Risk Assessment".

This standard is identical to the international standard IWA4: 2005“Quality management systems. Guidelines for the application of ISO 9001: 2000 in local government "(IWA 4: 2005" Quality management systems - Guidelines for the application of ISO 9001: 2000 in local government ").

The name of this standard has been changed from the name of the specified international standard to bring it in line with GOST R 1.5-2004 (subsection 3.5). When applying this standard, it is recommended to use the corresponding national standards of the Russian Federation instead of the reference international standards.

This standard offers a consistent and systematic approach to quality management in local government bodies. The standard is designed to assist local government personnel in the application of ISO 9001: 2005. It is also necessary to take into account the differences in the specific conditions of local governments and the culture of the region and remember that there is no single way of functioning of the quality management system based on ISO 9001. Therefore, this standard provides examples related to the functioning of the quality management system in local governments.

The purpose of this standard is to apply it to the full range of services provided by the local government. Requirements for services are established in GOST R 52113-2003 “Services to the population. Nomenclature of quality indicators ", including any unforeseen requirements.

Certification of the quality management system of a local government body for compliance with ISO 9001 requirements is not mandatory, however, such certification can be encouraged at the initiative of regional or federal authorities. Compliance with ISO 9001 is not the ultimate goal of a local government in achieving an appropriate level of service delivery to citizens. The local government can go further, in particular with regard to the implementation of ISO 9004 requirements and / or other improvement models.

The purpose of this International Standard is to help local governments understand and implement a quality management system that meets the requirements of ISO 9001 and the needs and expectations of citizens.

Objectives for the development and implementation of ISO 9001: 2008 in local governments

Improving the quality of the provision of municipal services, their availability for citizens and organizations;

Competence building officials;

Increasing the responsibility of officials;

Documenting internal regulations for the provision of services, identifying and eliminating duplicate and redundant functions in local governments;

Increasing public confidence in local governments.

The guidelines help local governments to relate the core concepts of quality management as defined by the ISO 9000 series of practices and terminology commonly used by local governments.

It is assumed that the local government has a short and medium term plans or work program for the provision of its services. However, a plan or program does not guarantee that the needs and expectations of the community will be fully met if the processes required to effectively implement the plan or program are not perfect. This International Standard seeks to deeply design the processes of a local government to assist it in its implementation. effective system quality management.

Certification of the quality management system by a third party is not a requirement of this standard, although local governments may choose to on their own to certify the quality management system for compliance with ISO 9001 requirements. Compliance with such requirements can be verified through internal audit, and based on complaints and / or demands from consumers, users, other citizens and the local community as a whole.

The quality management system is influenced by existing policies, goals, methods of work, including organizational ones, and the availability of resources of the local government. Therefore, each quality management system of a local government body will be unique in its own way. What is important is not a detailed description of the methods for implementing the quality management system, but a description of the actions that can lead to effective, consistent and sustainable results. The quality management system should be as simple as possible in order to function at its best. It should be clear how to implement the Local Government Policy and Quality Objectives.

ISO 9000 states that for an organization to be successful, it is essential that the organization is managed systematically and transparently across all its activities. This is especially true in local governments, where transparency and accountability to citizens are vital to ensure their trust. Success will be achieved in establishing a comprehensive quality management system aimed at meeting the needs and expectations of all interested parties. The quality management system of a local government should cover all activities and processes that affect its ability to meet the requirements of citizens and other interested parties, such as higher authorities.

Speaking about the concept of "management", one should not forget about such critical area applications like the public sector. Historically, the managerial staff of state-level institutions and enterprises solved the most complex and large-scale tasks. That is why the existence and development of the public sector formed the basis of what is now commonly understood as the word "management". Most often, the meaning of this term is defined as management and leadership. Of course, the principles of management in the public sphere and in commerce are different, nevertheless, they have a lot in common.

The history of the emergence of management

Experts dealing with the history of the emergence of this concept declare that the roots of modern management are not in commercial, but in public (state) organizations. Ancestor scientific management it is considered to be F.W. Taylor. His 1912 report to the US Congress marked the beginning of this special phenomenon. As an example of the application of management methods, he cited the Mayo Clinic, which was non-profit organization... Further, the principles of Taylor's management were applied in the US army, which is in state administration. The first position corresponding to the term "manager" was also far from business and was called "city manager". Thus, we can conclude that the term "management" originated precisely in the state sphere.

Differences between the concepts of "management" in commerce and public administration

In order to highlight the differences between these concepts, it is necessary to determine the scope of their application. Commercial management is usually understood as effective leadership organization. Public administration is much broader. Here, management is applied in the most different types human activity and society as a whole. This also results in differences in priority goals. Commercial management is primarily profit-oriented. While management activities in the public sphere is based on national and social interests, rights and needs of people. In addition, the management methods used in the public sector differ from those used in the commercial field, which is due to the different specifics of the activity.

Application of management in the public sector

The opinions of experts and scientists regarding the application of management in the public administration sector were divided into two directions. Some advocate the impossibility of using management in the public sector. Others, on the other hand, believe that the boundaries between the two are practically blurred. Supporters of both theories give a number of reasons.

• The impossibility of using commercial methods in the state sphere. The main purpose of the public sector is to work for the good of society. Among the main tasks are ensuring order and justice, increasing the material well-being of the country, guaranteeing the safety of the population and regulating the social sphere. That is, those functions that only the state apparatus can perform. At the same time, state institutions are subject to great pressure from those who somehow take part in the activities government agencies authorities - politicians and deputies. In addition, the work of the public sector is regulated and monitored by law, therefore, the principles of management in the public sector must obey them. Payment for the activities of the public sector is also an important point. It is produced not from commercial profits, but from income received from taxpayers.
• Merging commercial management methods with the public sector. The public sector and the commercial sector interact closely at the local level. This is precisely the area where the application of management methods is especially relevant. An example would be the field of public utilities, when it is required to take some actions to improve it. In addition, the commercial sector is also subject to regulation by the legislature and is interested in government intervention, especially during periods of sales downturns and when costs arise. An important indicator of close interaction between government activities and management is the financial side, when the provision of any services and services by government agencies they charge a fee from commercial organizations.

Public Sector Management Functions

In the modern world, the role of market relations and commercial organizations in the state sphere has increased significantly. The main functions of management in the public sector are: planning, organization, motivation, control and coordination. The main factor is that the primary task of the state is to ensure a comfortable life for the country and the population. The public sector is not commercial enterprise, therefore, the actions of the leaders of this sphere should be not only effective, but also correct from the point of view of law and politics, as well as go for the good of society and the country. Management in the public sector is very similar in its functions to the commercial sector, but it has a number of specific differences.

• Planning. At this stage, development and reform strategies are developed. state activities and management. In government agencies, planning is based on goals set by higher authorities. The fulfillment of this management function is directly related to the creation of regional, federal and complex programs.
• Organization. In the public sector, an administrative-bureaucratic style of leadership with strict observance of hierarchy and subordination is applied. The main criterion career growth serves length of service and experience. There is also a clear division into leaders and performers.
• Motivation. In the public sector, material rewards are used to a lesser extent than in commercial organizations. Non-monetary incentives are more often the incentive: the prestige of the position, the performance of important and responsible work, guarantees of stability and career growth.
• Coordination. The fulfillment of this management function ensures the coherent operation of the various government bodies in the public sector. The main task is to optimize material and time costs in achieving the goals set by the state.
• Control. The performance of the work of state institutions is subject to verification by many bodies and structures. In addition, one should not forget about the masses, the media and public organizations.

Public Sector Manager Specialization

The specialization of a manager in the public sphere was separated as an independent discipline from the direction of business administration (Business Administration). This is the science that prepared professionals for work in private commercial organizations. It was from her at the end of the 20th century that a separate direction emerged in foreign countries, which was called "public administration" (Public Administration) or "public administration". In Russia, the development of education took place with some delay. Nevertheless, in the 30s, the Moscow Engineering and Economic Institute (MIEI) was opened, in which the department of state and municipal administration appeared for the first time. Education in state and municipal management today can be obtained at the Institute of Business and Business Administration (IBDA), RANEPA. Provided here various programs master's degrees, contributing to the creation of a career in the public sector, - "state and municipal administration", "management in the public sphere and business."

Public Sector Manager Career

In the modern world, qualified specialists who have received special education in the field of management are quite in demand for work in the public sector. Labor activity in the state sphere, not only guarantees stability, but also ensures prestige and gives a certain status in society, and also allows you to make useful contacts and acquaintances. In addition, working in government agencies offers vast career opportunities.

Thus, we can conclude that management activities in the public sphere and management in commerce have a number of significant differences, but nevertheless there is a close interaction between them. In the field of public administration, many principles and methods of management are used, modified and modified taking into account the specifics of the work of the public sector.

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