Electronic municipality: ways of information interaction between local self-government bodies and the population. E-municipality E-municipality as a form of civil society

It is quite obvious that the introduction of new information technologies is already changing and ultimately completely transforming the modern model of economic and socio-cultural development of society, and hence of its component part - the population of the territories. This activity should be correlated with the priorities in the development of local self-government, which were pointed out in his Address by the President of the Russian Federation V.V. Putin, stressing that "without effective local self-government, I consider effective organization of power to be impossible."

21st century government
Effective governance of the information society can be implemented by "e-government" - the new paradigm of government in the 21st century, which should be compact, mobile, easily accessible and accountable to citizens.
During the period of reforming the regional economy, it becomes fundamentally important to achieve outrunning rates of development of informatization at the local level in comparison with the branches of material production. And here in no case should one be satisfied with the "adjustment" of new informatization tools to the solution of purely traditional problems. So, for example, it is important to make the transition from predominantly computational and statistical tasks to information and forecasting; organize integrated territorial systems and new forms of relationships with regional and out-of-region information owners. It is possible to fully use the reserves for increasing the efficiency of the territorial management system as a result of its informatization if it is involved in the implementation of all functions of territorial management: analysis and forecasting, decision-making, organization of their implementation and control of results.

Electronic municipality as a new form of relationship
This activity is of particular relevance in connection with the emergence of electronic municipalities in the world practice.
The term "electronic municipality" means the creation of socially oriented projects based on infocommunication technologies in the territory of the municipality in order to provide the population with various kinds of services. The period of formation and development of subjects of municipal government is accompanied by a significant increase in information flows associated with the need to obtain and exchange reliable information in real time. In essence, the task of increasing efficiency is primarily determined by the capabilities qualitative analysis the information received, the subsequent preparation and adoption of a decision, as well as control over its implementation. The use of modern information and Internet technologies can dramatically improve the quality, reliability, confidentiality and speed of information processing, provide online access to various databases, and make it possible to transform information into any documentary form for subsequent use or storage.
In some studies, the role of local government is associated only with information processing (information approach) to reduce errors from aggregating information at the next levels of government.
However, information and its processing technology are an important resource for local administration. Moreover, during the period of reforming the regional economy, it becomes fundamentally important to achieve advanced rates of development of informatization at the regional level in comparison with the branches of material production. And here in no case should one be satisfied with the "adjustment" of new informatization tools to the solution of purely traditional problems. So, for example, it is important to make the transition from predominantly computational and statistical tasks to information and forecasting; organize integrated regional systems and new forms of relationships with regional and out-of-region information owners. It is possible to fully use the reserves for increasing the efficiency of the territorial management system as a result of its informatization if it is involved in the implementation of all functions of territorial management: analysis and forecasting, decision-making, organization of their implementation and control of results.
The use of Internet technologies in municipal government provides numerous possibilities, the main ones of which are:
increasing the competitive potential, investment attractiveness of the municipality (MO), since the image of a progressive administration and a positive image of the MO as a place of residence and work are created;
use of technologies of regional and municipal Internet marketing in the work of the Ministry of Defense;
improving the quality of relations with residents and organizations:
- reducing the time to obtain the required information;
- providing round-the-clock access;
- availability of a choice of the most optimal way of communicating with municipal services (real or electronic) - creation of an alternative;
- confidentiality of personal information;
- personalization of services;
- unification of forms of documents of various services with their filling in automatic mode and distribution via the Internet to the necessary services;
- the ability to get the necessary information from any place (home, office), for example, which service is competent in solving a specific issue, its opening hours, a list of documents that you should have with you, what status the application is in (with electronic self-service), why delays, what other documents were required, who is responsible for resolving the issue, etc.;
- the implementation of "digital" democracy, when a bulletin board is created on the site, chat forums, mini-referendums and electronic voting are held, acute issues are discussed (urban planning, strategic plans and projects);
- reduction of the state of municipal employees, budget savings for the provision of activities (payroll, office expenses, etc.);
- the formation of an active and cohesive government;
- engineering of the structure, that is, not only of “what” the local authorities do, but of “how” they do it. The latter is due to the fact that the portal is built on the basis of the needs and functional aspects of the task, and not from the existing structure and levels of authorities in the territory, which may require a radical, revolutionary restructuring of the entire system of power;
- a factor that ensures the proper rate of dissemination of information technology and information culture;
- local government will become more accessible, and its activities - more transparent in terms of procedures and functions, and accountable through e-mail and public appearances in the network of its leaders.

Information space is the key to solving the problems of our time
However, the introduction of electronic municipalities in itself does not yet give the desired effect. The key to solving these problems is the creation of a single integrated information space on the territory of the region, the federal district and the country as a whole.
At present, the implementation of the program has begun in the Russian Federation " Electronic Russia". At the level of the Chuvash Republic, the Republican Information and Analytical System (RIAS) is being created. Funds for the implementation of the project are provided for by the Program for Reforming the Public Finance Management System. The beginning of this year Funds for the implementation of the Program in Chuvashia in the amount of $ 7.3 million are provided during 2001-2002 by the Regional Finance Development Fund, formed from the funds of the International Bank for Reconstruction and Development (IBRD).
During the implementation of the RIAS project, it is planned to completely modernize all information infrastructure authorities of the Chuvash Republic: build a modern communication network, equip local governments with modern computers, united in network complexes, develop and implement a single software system, as well as an integral information protection system.

Implementation of the RIAS project in Chuvashia
In district and city administrations, municipal systems have been created and are currently being expanded. The main principle of organizing information flows of RIAS is the actualization and processing of information at the place of its initial receipt from individuals or legal entities by the specialists of the authorities directly involved in its collection. The formation of a nationwide data bank is carried out on the basis of combining information from these primary sources.
At present, significant optimization of information exchange between the state authorities of the republic has already been achieved, serious work has been carried out on the typification and standardization of information flows. So, today more than 12.5 thousand indicators are placed in 900 tables, from which the data bank is formed. Analyzed for the purpose of unification of about 700 various reports. All this ultimately helps to reduce operating losses and costs, not to mention such an effect as a direct reduction in costs for Information Support(paper consumption, copying costs, postage, time costs, travel expenses). The net value of the total effect from budget savings for the period 2001-2009, taking into account the necessary costs for the creation of RIAS, is $ 3.4 million. When calculating, we took into account such parameters as: savings in the creation of RIAS instead of deploying separate vertical departmental systems; reduction of costs incurred to ensure interaction between republican and municipal bodies; reduction of operational errors.
Noting the successes achieved by Chuvashia in this area, the plenipotentiary of the President of Russia in the Volga Federal District Sergey Kiriyenko said: “One of the main and urgent tasks today is the formation of a single information space on the territory of the Volga Federal District and the country as a whole. Internet communication systems are an example for a number of other regions. Cities and districts are united into a single network, and even today distant Chuvash villages have gained access to world information resources. It is also important that government bodies are actively using new information technologies to properly inform the population about I am deeply convinced that the experience of implementing a pilot project to create a model of "virtual government" will become a real impetus for the further dynamic development of the Russian Internet. "

Chuvashia is the electronic capital of the Volga Federal District
The Ministry of Economic Development of the Russian Federation and the direct managers of the "Electronic Russia" program have identified the Volga Federal District as a model one for the implementation of this program. Chuvashia, as noted by S. Kirienko, is the electronic capital of at least the Volga Federal District.
Filling the program with specific content has already begun: in the regions of the Volga Federal District, a large-scale informatization project - "Electronic District" is being implemented.
In the course of its implementation, a unified information system will be created on the territory of the district, which will unite the authorities of the regions. The ultimate goal of the project is effective public administration, transparency of the work of state power and the destruction of the monopoly of officials on information.
Before starting to formulate the concept of the project, the members of the working group carried out an inventory in the federal authorities of the Volga District. In 330 surveyed objects, they counted about 20 thousand computers, more than 230 local networks. Almost two-thirds of the federal structures of the district are connected to the Internet, that is, it becomes obvious that the level of equipment of officials with computers and communication means is much higher than the level of their competent use. Sometimes in the offices there are powerful machines that are used only as text editors. In working with information technology, federal officials lack the experience and will, and not the means and capabilities.

Project "Electronic District"
The implementation of the "Electronic District" project was conditionally divided into two stages. The first is the construction of infrastructure and the creation of basic information systems and resources at minimal cost. All communication will take place through e-mail, video conferencing and other available means. The working group of the "Electronic District" plans to unite the sites of all the main federal inspectors of the Volga District and territorial authorities within the framework of a single Internet portal, where it will be possible to find any operational and reference information about the district. The portal is intended to become a kind of "single entry point" to the "Electronic District".
At the second stage, the developers of the project standardize the processes of information interaction of government bodies with each other, business and citizens. Now, within the framework of RIAS, a single Intranet portal of government bodies www.e-chuvashia.ru is being created, through which state and municipal employees could receive personalized access to information systems that automate and increase the efficiency of their work. The most important result here would also be the simplification and unification of the exchange of information between authorities, enterprises and citizens, improved interaction and awareness of society and authorities. Through e-chuvashia.ru, government agencies will provide open and standardized services (collection of reports, issuance of licenses, commercial databases and catalogs, e-commerce systems).

RIAS as the basis of "electronic municipalities"
Thus, in general, the development of RIAS will provide:
creation of an array of details of system participants indicating the main characteristics of areas of activity, economic, industrial, information and other opportunities and needs, which allows automatic search for a potential partner according to specified criteria of details or production and economic needs;
creation of an up-to-date text and graphic array of economic, industrial, financial and information demand and supply. The specified data array is formed by the system participants using the data classifiers and rubricators built into the system;
obtaining a sample from an array of data on the heading of interest (market segment, product or service) in real time, which makes it possible to carry out marketing research of the full cycle, including pricing in other markets;
the ability to quickly manage your offers, data, advertisements posted in the system (supplement them, change, remove), as well as automatically generate your own arrays of relevant information on the topics of interest.
The main effect of the creation of RIAS as the basis for "electronic municipalities" in Chuvashia is that information systems of all levels of government, including local self-government, are integrated into a single information space that combines information from various sources into a single data warehouse and allowing to identify the relationships and tendencies of socio-economic processes, to predict their development, from which the effectiveness of the activities of the authorities in solving economic, social and administrative issues increases by an order of magnitude.

Speaking about electronic municipalities, it should be noted that the priority areas of their development from a socio-economic point of view are:
... Information system of social protection of the population, that is, the deployment of a unified information system on housing subsidies, focused on paperless technology. Such a system includes information networks in the departments of social protection and housing and communal services, reception points for the population.
Now in the Chuvash Republic, a plan has been developed for the introduction of targeted social support for the population when paying for housing and communal services. Chuvashia, having successfully passed the selection competition, is included in the number of 9 regions of Russia, where a new procedure for the allocation of subsidies using the system of personalized social accounts of citizens will be tested on an experimental basis. If today low-income citizens receive subsidies from many different organizations (housing and communal services, administrations of cities and districts, etc.), then henceforth the whole process will be coordinated by the Ministry of Social Policy of the Chechen Republic through the departments of social protection of the population in districts and cities, and all payments due will be credited to special accounts. This will allow achieving maximum transparency in spending budget funds, providing targeted assistance directly to citizens, as well as simplifying the settlement system. After all, it is no secret that so far a lot of funds are spent on the maintenance of additional accounting personnel in the structure of housing and communal services, while this money could be directed to the maintenance and repair of the objects of housing and communal services themselves. At the first stage, the new system will be implemented in two cities - Novocheboksarsk and Shumerla.
Its development is optimal on the basis of the population register of the municipality as part of the unified State register of the population. Given the basic nature of the register, it is desirable to consolidate the principles of its construction at the level of the federal industry standard.
2. City (district) cadastre. We are talking about building a unified overview basic model of the territory for solving cadastral problems. Within the framework of this direction, it is possible to solve the problems of operating an automated system for maintaining a land cadastre.
It should be noted that the recommendations of the Third International Forum "Russia in electronic world"it was decided to consider the creation of integrated cadastres and registers based on federal standards as the main priorities for building electronic Russia, while ensuring their equal accessibility for representatives of all branches of government (with an appropriate level of security and protection of personal data), as well as the introduction of electronic document management in government bodies based on the general federal standard ...
3. Management of municipal real estate.
4. Management of municipal finances. As an option, it is possible to form a municipal treasury and introduce technology for automated control of payments from the local budget.
The reporting of budgetary institutions, which is already not very simple, will only get more complicated as the transition to the treasury system of municipal finance management is proceeding. And more and more heads of administrations of districts and cities, from understanding the role of IT in the management process, come to the conclusion about the need for their early practical application.
In the centralized system of budget financing, the collection of budget applications, the formation of the budget list and the limits of budgetary obligations, the distribution of funding amounts to recipients of funds takes place at the workplaces of the unified system established by the administrators of the local budget funds. Sent on diskettes, by e-mail, entered through subscriber points or directly into a centralized database via the Internet, the reports of the recipients of local budget funds on the execution of the cost estimate are automatically brought into a form acceptable for analysis by the specialized departments of the administration. Establishing a communication channel linking the budget financing system with the treasury system will speed up adjustments to allocations and ceilings, giving the administration more room to maneuver. Of the general difficulties arising in the process of certification of municipalities (as the first stage of creating an information system), it is possible to single out the establishment of a limit for the detailing of information, as well as interaction with the structures responsible for its collection. Statistical bodies that accumulate information at the expense of the budget are very reluctant to share it even with the authorities.
5. Introduction of an information system to ensure the conduct of tenders and procurement of goods, works (services) for municipal needs.
6. Regulatory and documentary support of management. It includes the tasks of automating office work and workflow, monitoring the execution of decisions, informatization of the personnel and archival service, etc.
7. Information communication with the population - promptly informing the population about the activities of the municipality. Also, the ways of interaction between government and business, government and society are reaching a fundamentally new level. Openness, controllability, efficiency - these are the main characteristics of these relationships emerging in the new reality.

Izhevsk victories
Work on the creation of electronic municipalities is being carried out in many cities of the Russian Federation, for example, in Perm, Izhevsk, Taganrog, etc. So, for example, within the framework of the Third International Forum "Russia in the Electronic World", the administration of Izhevsk became the winner of the competition "Electronic municipalities of Russia" and the holder of a diploma in the nomination "Comprehensive integrated project of a large city" for the city target program "Medium-term program for the development of municipal informatics as branches of the municipal economy of the city of Izhevsk for 2002-2006. " The program proposes the main directions of work on the creation and use of the municipal information and transport network (as one of the other engineering networks of the city). It corresponds to the main provisions of the Federal Target Program "Electronic Russia" and the republican program "Electronic Udmurtia", although it was developed and adopted somewhat earlier than these programs. The second nomination, which brought Izhevsk a diploma of the "Electronic Technologies in Medicine" competition, was for the project "Creation of a unified computer system for monitoring the health of the population of the city of Izhevsk, Udmurt Republic". The main goals of the program are to create a constantly updated database with information on morbidity, mortality, fertility and other health parameters of the population of Izhevsk; development of measures to neutralize factors harmful to public health.

Problems await solutions
It should be noted the general problems that arise when creating electronic municipalities, these are: insufficient development and high price data transmission channels, incompatibility of formats and protocols of information exchange, lack of economic mechanisms and legal norms for interaction of the subjects of the municipality in a single information space, lack of material and technical means, low level of training of specialists and users. Therefore, it is necessary to solve the following problems at the federal level:
coordination of the main directions of budgetary expenditures for informatization of local self-government bodies;
unification of all federal targeted programs in the field high tech, informatization, development of telecommunications, provision of electronic services to the population and business under a single leadership at the highest state level;
involvement of specialists from municipalities in determining the priorities for building electronic Russia;
standardization in the field of e-government systems and the role of local governments in this process;
inventory of completed projects and existing systems by the expert community. Creation of a bank of "model" information systems;
attraction of experience and resources of national business to the construction of electronic Russia. Stimulating the initiatives of companies aimed at accelerating the pace of computerization, increasing the number of Internet users in the regions and cities of Russia;
the need for accelerated changes in legislation stimulating the introduction of electronic technologies, as well as increasing criminal liability for crimes in the field of high technologies.
To effectively solve the problems that have arisen, in particular, it is necessary to correlate the execution of the federal target programs "Electronic Russia" and " Governmental support development of municipalities, as well as the creation of conditions for the implementation of the constitutional powers of local governments. "
The main task of the process of introducing information and communication technologies into the sphere of municipal administration is to increase the efficiency of the work of local administrations. Without this, it is impossible to ensure the implementation of the constitutional rights of citizens to access information and the provision of effective and convenient services to citizens by the state. Moreover, work in these areas should be accompanied by a set of institutional measures providing for the coordination of the activities of authorities in the field of informatization, the development and implementation of standard requirements for the efficiency of state and municipal expenditures in the field of informatization.

"ELECTRONIC MUNICIPALITY"

AS A COMPONENT PART OF THE INFORMATION SOCIETY OF RUSSIA

V.E. KIRIENKO

Tomsk City Administration, Russia [email protected]

The necessity of developing specialized information technologies and the creation of computer systems to support the work of municipal employees ("electronic municipality") as an integral part of the Russian "electronic government" is substantiated.

INTRODUCTION FORMULATION OF THE PROBLEM

One of the five "strategic vectors" designated by the President of the Russian Federation D.A. Medvedev as a target for the near future is, in fact, the creation of a high-tech information society in Russia. Achievement of this target is intended to serve: the federal target program (FTP) "Electronic Russia" (2002) with the concept of "Electronic government", which is updated and adjusted (2006, 2009), "Strategy for the development of the information society in the Russian Federation", approved by the Decree of the President RF (2008). In the near future, a larger version of "Electronic Russia" should appear - "Information Society", which, according to the plan, is supposed to cover all spheres of the country's life.

The program and development strategy are under constant control of the country's top leadership. The Council under the President of the Russian Federation for the Development of the Information Society has been created and is operating (2008). The very first meetings of this Council dealt with one of the most pressing topics - the implementation of the "Electronic government" (2009).

It is important to note that one of the main prerequisites for the formation of the "Electronic Municipality" subprogram is that about 80

% of interactions between government and citizens or businesses take place at the local level.

Let's introduce the following formulation of the concept of "electronic municipality". "Electronic municipality" is an information and communication system of local self-government bodies, which ensures the creation of conditions for making effective decisions on the management of a municipal formation as an integral socio-economic system.

Let's consider the conceptual model of "electronic municipality" in the context of the substantive aspects of municipal service. By the content of the municipal service we mean the execution of business operations at workplaces and the interaction of employees with each other and with the external environment in the course of the activities of local self-government bodies.

The main concern at all levels of government in terms of the formation of the information society in our country should be the "human factor". It is no coincidence that at the meeting of the Presidium of the State Council "On the Implementation of the Strategy for the Development of the Information Society in the Russian Federation" in Petrozavodsk (2008) President of Russia D.A. Medvedev directly drew attention to the fact that "the inability to use information technology by state and municipal officials speaks not only of their backwardness, but also of their incompetence." The remark is correct, but the problem also lies in the fact that with the transition to information technology, the service itself must be modernized. Without the oncoming movement of the employee and information technology, the harmonization of their relations is impossible. The counter movement is that the employee is sufficiently prepared to work in the conditions of informatization, and the information technologies themselves are the necessary "user-friendly" tools. The developing human-machine system "employee - computer" should strive for an ideal that ensures the manifestation of an emergent effect in human activity. Experience shows this. The author of this work in 1982 headed the first informatization service of city management and for 17 years has been the head of municipal informatization. During this period, some regularities in the transition of municipal employees to information technology have been noticed. They force us to look for a new approach to the content of the municipal service itself.

So, the modernization of the service should take place in such a way that information technologies become a natural tool for an official. What needs to be done for this, we will reveal through the consideration of the following issues:

1. Feasibility of separating "electronic municipality".

2. Some features of the influence of the "human factor" on the process of informatization of management.

3. Mission of the position of a municipal employee.

4. Decision maker (DM).

5. Automated workplace of the decision maker (AWP of the decision maker).

6. Municipal e-services and administrative regulations.

7. Legal field of electronic municipality.

1. FUNCTIONALITY OF DETERMINING THE "ELECTRONIC MUNICIPALITY"

Currently, there is some ambiguity in the perception at the level of local governments and the population of the term, and the very concept of "electronic government". As a rule, there is an association only with public administration, although, in theory, “electronic government” is intended to include local self-government. In our opinion, this fact needs explanation, and the concept needs development. The origins of the ambiguous interpretation of "electronic government" are as follows:

1. The term "electronic government" is borrowed and corresponds to the English E-Government. But the word government in English refers to all levels of government, from the highest state to local government.

2. According to Art. 110 of the Constitution of the Russian Federation, the government is the highest federal executive body of state power.

3. In accordance with Ch. 3 of the Constitution, the constituent entities of the Russian Federation also have full state power on their territory, except for those powers that are within the jurisdiction of the Russian Federation. Subjects of the Russian Federation have the right to create government bodies at their own level.

4. But according to Art. 12 of the Constitution of the Russian Federation "local government bodies are not included in the system of government bodies." Hence the term "government" has no legal status in the characterization of municipal bodies.

5. And the most important thing is that the content of the concept of "electronic government" very limitedly represents the level of informatization of local self-government bodies. This fact seriously disorients municipalities and negatively affects the role that should be assigned to them in such an important matter - the formation of the “information society”.

In its complete form, "electronic government" assumes the functioning of all levels (federal, regional and local) as a single system with their electronic interaction. But the above reasons for the ambiguous interpretation of terminology, self-identification of local government bodies, elected officials of these bodies and municipal employees as non-governmental bodies and non-government employees interfere with the perception of the concept of "electronic government" with its extension to municipal government. Therefore, an independent subprogram "Electronic municipality" has the right to exist. This will allow, firstly, to exclude the ambiguity of the interpretation of terminology, secondly, to conceptually concretize the “electronic” interaction of levels of government, and thirdly, to highlight the urgent tasks of informatization of local self-government.

It is possible to support the argumentation in favor of "electronic municipality" with the statement of Yu.A. Mikheev, associate of Academician V.M. Glushkova - the founder of the creation in the 70s of the last century of the national automated control system (OGAS) of the USSR. V

It is noted that “the subjects of the Russian Federation, municipalities are typically networked socio-economic structures. From the point of view of information technology, management processes in these structures are based on the principles of parallelism, adaptation, and coherence. ... At the same time, there is always a need to preserve the integrity of the management of any populated area. "

Parallelism means the simultaneous activity in the constituent entities of the Russian Federation of dozens of public authorities and hundreds of local governments. "Adaptation" in a mode close to real time requires the constant influence of many environmental factors. "Coherence" is characterized by the fact that in the presence of general rules of interaction between state and local authorities, the implementation of these rules is a phenomenon that occurs on the basis of the coherence of parallel actions. In other words, the maximum effect from the informatization of state and municipal administration will be obtained when creating a clear mechanism for pairing, coordinating information technologies at all levels of government.

The idea of coherence once again confirms that the concept of "electronic municipality" has a right to exist, and its separation into an independent subprogram "Electronic government" of the future program "Information Society" is an urgent need in the field of informatization of all levels of government in Russia.

2. SOME ASPECTS OF THE INFLUENCE OF THE "HUMAN FACTOR" ON THE PROCESSES OF IMPLEMENTATION AND USE OF INFORMATIZATION IN MANAGEMENT

We draw your attention to the fact that these patterns take place when technologies are embedded in traditionally functioning municipal structures. Postponing a detailed discussion of the revealed trends until subsequent publications, here are some statements with brief comments:

Statement 1. The embedding of information technology in the management of the organization should begin with the informatization of the already existing functions of personnel.

The fact is that the embedding of information technology should not conflict with the current structure of the organization, with certain and well-established personnel procedures at each workplace. Otherwise, information technology will find itself "without an owner" responsible for its performance. Excuse: "I don't have this in the job description." Changing instructions is a matter of the next steps.

Statement 2. Informatization is not able to significantly affect changes in the technology of the organization's activities without corresponding changes in all goal-setting systems.

This statement makes it possible to understand why informatization is sluggish in that organization, the higher governing bodies of which, partners and information consumers do not introduce information technologies in themselves. There is no external demand for the final product of technologies and incentives for their implementation in the internal business process.

Statement 3. The priorities in the sequence of solving the problems of informatization of management of the organization are established taking into account the level of readiness of each employee for innovations.

As in any new business, a positive example is important when introducing information technology. So, if a related unit of an organization or a colleague in the service began to use an automated workplace, then the competitiveness inherent in man by nature forces him to actively introduce innovations in himself.

Statement 4. The longer the development of any information system is carried out without making amendments to its initial meaningful formulation, the more the discrepancy between the ideas of the developer and the organization about the final results of the design increases.

Over time occur certain changes in the work of the organization. The period of creation of information systems is often very long. If the developers do not take into account the impact of the changes on the created product, then over time it will less and less meet the real conditions of the business process for which it was originally intended. Up to absolute unusability at the end of development.

Statement 5. The larger and more complex the organization, which is the object of informatization, the more problems arise at the stages of implementation of information systems of this object.

It would seem that the statement is obvious. But the trouble is that very often, for all its obviousness, it is ignored by both developers and users of information technologies in management. There are various reasons for this.

Statement 6. The implementation of the principle of new tasks in the informatization of management of an organization causes reorganization processes in it.

The principle of new tasks V.M. Glushkova is one of the fundamental rules of management informatization. Its essence lies in the fact that the created information technologies must "be able" to solve those problems that could not be solved without their application, in the traditional "manual" way. In addition, it provides a reduction in labor costs, a decrease in the number of personnel.

3. MISSION OF THE POSITION OF A MUNICIPAL EMPLOYEE

Management informatization is directly related to the concept of the mission of local self-government bodies, municipal services, each municipal employee in the context of the creation and use of information resources. First, for several decades, scientists have been sounding the alarm that “the human resources of the extensive development of office work are close to exhaustion. All sorts of signs of degradation of the existing system of organizing office activities are beginning to appear ”(Ershov, 1988). Secondly, he also cites the data of the Reliance Insurance company that 25% of its human resources spent on the creation of papers, 80% of which have never been used before destruction. Third, as of the end of the 1980s, in the United States, "the proportion of information workers in state and local government bodies was 66%."

This was the case before the era of "universal" computerization of officials. How has the situation changed since then? Unfortunately, we are witnessing

the constant growth of the number of officials at all levels of management, despite the fact that now each employee potentially has an automated workstation (AWS), which can contain all the necessary databases (documents, diagrams, cartographic information, audio and video data, etc.). In order to competently dispose of the possibilities of the present time, the changes must affect the quantitative and qualitative composition of officials. You don't need typists, you don't need ancillary staff to gather information. Instead, the ability to work with the information of your AWP should appear. This is what should characterize officials. This cannot be achieved without fundamental changes in the very essence of municipal service, including abandoning the narrow specialization of an official, which is the basis of job descriptions that have been used since time industrial revolution XIX century. Despite the fact that we live in the era of the information society, the old job descriptions continue to operate. We will try to argue our point of view in favor of rejecting the existing anachronism.

One of the books on management declares the following position: “We no longer believe in a piece of paper called a job description. One cannot but agree with this formulation. Firstly, you cannot describe everything in the instructions, and secondly, they quickly age morally. Now changes are constantly taking place, progress is progressing at a high pace. For example, in the field of information technology, Moore's Law is in force, which states that the power of computing devices increases exponentially over a relatively short period of time (18-24 months).

Another opinion of the President of the Russian Academy of State Service V.K. Egorova: “Why is the official bad? The basic, fundamental reason is not in the officials themselves, but in the system in which they are located. Example. According to a survey by the Sociological Center of the Russian Academy of Public Service, the absolute majority (over 80 percent of this figure is off scale) of officials are normally oriented people: to work for a person, to help a citizen, to respond to his troubles. But when you start asking the same people what they do in their job, many admit that in terms of the organization of the case, according to job descriptions, according to the style of work of the managers they serve, they mainly act in the interests of the boss and his team. And not a person who comes to them, and in relation to whom they should act as a service organization. "

And further. Russell L. Ackoff, one of the world's largest specialists in the field of systems-mology, management theory, and management, wrote:

“Job descriptions tend to restrict a person's use of their capabilities rather than help them do so. The description of responsibilities by others should be eliminated. Instead, the person needs to be shown his future place in the organization. People strive to justify what is expected of them. If these expectations are not high, then their actions will be. "

The above opinions confirm the message: the job description should be replaced by another tool that determines the meaning, actions and actions of the organization's personnel, and in our case, municipal employees. The only question is: what can replace the job description? This should be the mission of the municipal employee.

The mission of any organization is its social purpose, more precisely, what society expects from a given organization, and it expects, of course, the satisfaction of any of its needs.

The municipality is the focus of many, many very diverse hopes, desires, problems of residents. Hence, the mission of the municipality, and any, regardless of geography and country, can be defined as providing the population on the territory of the municipality with the best working conditions, life, use of free time, participation in political and social life, satisfaction of material and spiritual needs, compliance with norms and rules of conduct for the formation of a way (style) of life, harmoniously combining the culture of society with the individual culture of a person.

According to the specific local conditions, each municipality can declare its own specialized mission. In order to implement the general mission of the municipality, it is possible to formulate the missions of its individual body and, finally, the mission of each municipal employee, more precisely, his position. And in accordance with the employee's mission - to form that set of information systems, databases, electronic administrative regulations that ensure the feasibility of services, i.e. create a multifunctional automated workstation for an employee. Moreover, in those municipalities that have a common information space, thanks to the developed informatization of its bodies, a new quality of activity of each employee appears - responsibility at his workplace for his actions and decisions not only to higher leaders, but, above all, to the population. The introduction of the mission of the municipal employee will create favorable conditions for the implementation of the principle of new tasks without permanent reorganization of the structure of the municipal government.

4. PERSON MAKING THE DECISION (DM)

Let's pay attention to the statement of the famous Peter F. Drucker, which is significant in the aspect of the mission of the position of a municipal employee: “Every employee in a modern organization is a“ manager ”if, by virtue of his position or existing knowledge, he is responsible for activities that directly affect the abilities of the given organizations to function and deliver results. ... Such a person is obliged to make decisions ... ". That is, to be a decision maker.

The responsibility of the decision maker in an e-municipality should be supported by the presence of extensive information knowledge bases and full-fledged tools that provide the ability to provide electronic municipal services, and the implementation of administrative regulations. If an employee's automated workstation contains these components, then he does not need to receive instructions from the boss, request documents on "paper" and wait for their arrival. Everything you need to work is there. Moreover, as our experience in the implementation of automated workplaces in municipalities shows, if you start informatization with the most trained employee, the leader, then the rest try to "catch up" to his level, which is consistent with statements 2, 3 (see section 2 of this work).

5. AUTOMATED WORKPLACE of the decision maker (AWP of the decision maker)

The automated workplace of a municipal employee (AWP) is the main element of interaction between municipal personnel in a single information space. Without touching on the hardware part, we define what is meant by the composition and structure of the information software (IPO) AWP: this is a set of information systems, databases and other information resources (audio, video and printed) necessary for the performance of the position, access to which provided at a specific workplace. Let us present a model of the structure of the IPO AWP by groups of functions.

Group I. This group is determined by such functions of an individual employee, during which the input information is generated and brought to the final product directly to his workstation without transferring to other employees. Either the information material arrives at a specific AWP for final processing and is brought here to the final product, or it comes in the form of the latter. An example of such a workplace can be an automated workplace in the information system "Department of capital construction" of the city administration. Here you can register contracts with developers. At the same workplace, information is used without transferring it to other workstations.

Group II. It contains information systems that ensure that all employees perform functional duties, the lack of implementation of which entails the impossibility of performing certain operations and procedures by other employees, since they are not provided with the necessary information base for work. An illustrative example This AWS serves as a workplace for an employee of the protocol department, where the registration and publication of resolutions and orders of the mayor of the city is carried out. If the employee does not perform the appropriate operations, then all administration personnel will not have the documents necessary in the course of performing their functions.

Group III. Information systems of this group provide "adjacent" functions of some part of employees. For example, in the "single window" there is an AWS "Applications", through which the relevant employee conducts operations for the registration and control of applications from the population. On the associated workstation, the next employee performs operations according to certain calculations based on applications. But for the period of vacation of one of the workers, his functions are entrusted to the second, and the two indicated AWPs can be combined at one workplace. And in a small municipality, all operations are performed by one person at one workstation. That is, information systems of the third group should be able to "combine" or "absorb" the functions of interacting employees. At the same time, the IPO should include training programs that provide training in working with information systems of related functions.

Group IV. This group provides the entire infrastructure of the organization. It is designed to provide "friendly" communication in the "human-computer" system. It contains general resources of legal, reference, documentation support of management. It can include training tools for professional development, audio, video and printed materials that contribute to expanding the professional horizons. Psychological factors cannot be ignored either. Sometimes a person just needs to temporarily escape from monotonous work in order to return to it again and find efficient way solutions to the issues he ponders. Here, as practice shows, one cannot do without specialized computer games. Of course, everything requires a measure and certain restrictions on the use of information resources. This is especially true of Internet resources.

The presented substantive model of the structure of the IPO AWP of a municipal employee by groups of functions corresponds to the idea of Russell L. Ackoff, who argued: "The effectiveness of a certain activity and the joy it brings depend on how much work, training, inspiration, and entertainment are combined in it."

6. MUNICIPAL ELECTRONIC SERVICES AND ADMINISTRATIVE REGULATIONS

With the indisputable need to embed municipal electronic services into a single information space of "electronic government", let us pay attention to some difference between state and municipal electronic services. Firstly, the obvious difference follows from the composition of issues of local importance (Art. 14-16, Chapter 3 of Federal Law No. 131-F3 "On the General Principles of Organization of Local Self-Government in the Russian Federation"), the solution of which must be ensured by local self-government bodies, and not state. Provision of electronic services on local issues is the prerogative of the municipality. Secondly, the interaction "municipality - government agencies" can be interpreted as the provision of mutual information services between levels of government. Consequently, when we talk about "electronic municipality", we must bear in mind that its functions include electronic interaction of municipal bodies with the provision of information services to regional and federal structures that allow solving problems of an interdepartmental and inter-level nature.

If a service is the result of legally and actually feasible actions by a service provider to meet the needs of a consumer of services, then a municipal service is a service fixed on the basis of legal acts, provided by a municipal body as a producer of services to citizens, business, and government agencies. Electronic municipal service - submission in electronic form of a request for a service from a consumer, provision and delivery of a service by a municipal authority in electronic form.

The process of providing a service is ensured by administrative regulations. Administrative regulations are a documented normative procedure for the execution of administrative procedures that determines the composition, sequence, and content of their constituent operations. Electronic administrative regulations - an electronic submission of a documented procedure for the execution of administrative procedures. Electronic administrative regulations determine the composition of the information and software complex of the automated workplace of a municipal employee.

7. LEGAL FIELD OF THE ELECTRONIC MUNICIPALITY

The absence in the Federal Target Program "Electronic Russia" of significant programmatic studies of aspects of informatization of municipalities is explained by the fact that its first edition (2002) was created even before the adoption of the Federal

of the new law No. 131-FZ "On the basic principles of organizing local self-government in the Russian Federation" in 2003. The law defined issues of local importance, which municipal bodies are called upon to resolve, to bear responsibility for them. From here it became possible to prescribe in the program specific tasks assigned in terms of informatization to the lower level of management. Unfortunately, with the further adjustment of the "Electronic Russia" program (2006, 2009), the definition of the role and place of municipalities in the general business of informatization did not appear.

The reason for this situation is also the fact that the powers of local governments to resolve issues of local importance (Article 17 of Federal Law No. 131-FZ) do not specify the obligation or the possibility of creating municipal information and communication systems. This leads to the fact that informatization depends on the personality of the leadership of a particular local self-government body, which does not always contribute to the achievement of the goals of the "Electronic Russia" program common to all subjects.

The main backbone law governing relations in the field of information and informatization is Federal Law No. 149-FZ dated July 27, 2006 “On Information, Information Technologies and Information Protection”. It replaced the Federal Law "On Information, Informatization and Information Protection" in force since 1995. In the new law, the developers abandoned such general key concepts as "informatization" and "information resources" that were part of the previous one. According to I.L. Bachilo, “the withdrawal of the term“ informatization ”, in particular, largely deprives of meaning the scope of the federal target program“ Electronic Russia ”. Now the concept of information resources is tied only to state information resources (Article 14), which are understood as information contained in state information systems. " Article 12 of the new law determines that local governments, in accordance with their powers, participate in the development and implementation of targeted programs for the use of information technologies. But, as already noted, the corresponding powers of local self-government are not spelled out in Law No. 131-FZ.

Let us restrict ourselves to considering the laws of the two presented above. Based on their example, it is already clear that the legislative base of municipal informatization requires improvement.

8. CONCLUSIONS AND PROPOSALS

The presented consideration of some issues of modernization of the municipal service in the conditions of the formation of the "information society

state ”requires further study with the integration of efforts of scientists and specialists in various fields of knowledge. But the existing one already allows us to state that the systemic solution lies in the introduction of the institution of the mission of the position of an official with the definition of goals and objectives in the context of the formation of a model of an official of the XXI century, creating an atmosphere of harmony in the environment of "man - computer", striving for an ideal that ensures the generation of an emergent effect social activities municipal employee. This should be incorporated into the concept of the "Electronic Municipality" subprogram of the "Information Society" program in Russia. It is possible that some of the thoughts presented in the work are invariant with respect to service at any level. The author is also confident that the level of local self-government requires more attention from the state, so that the introduction of information technologies in the activities of municipalities will contribute to the common cause of the progressive development of our country. It is important to remember that local government bodies belong to the classes of "large" and "complex" organizational systems, in which the pattern according to Statement 5 operates (see Section 2 of this work).

To create organizational, legal, material and technical conditions and launch a new mechanism in the context of the use and development of information and communication technologies in the activities of local governments, it is necessary to carry out the following:

1. Introduce an addition to the Federal Law dated 6.10.2003 No. 131-FZ "On the Basic Principles of Organization of Local Self-Government in the Russian Federation" by including in clause 1 of Art. 17 "Powers of local self-government bodies to resolve issues of local importance" the following subparagraph: "Creation of municipal information and communication systems that ensure the solution of issues of local importance using computer technology."

2. To finalize the backbone federal laws concerning information, informatization, information relations, specifying the composition of the basic concepts and principles that determine activities in this area, and the conditions for interaction between levels of management.

3. Introduce into the FTP "Electronic Russia", and in the future edition - "Information Society" a special and independent section "Electronic municipality", containing the goals, objectives, resource provision of informatization of local self-government in Russia.

4. As an experiment, introduce in several municipalities of Russia (provided that all employees have an automated workplace with the necessary information systems and databases to resolve issues

local significance) the practical use of the concepts "mission of the body", "mission of the unit", "mission of the municipal employee". To do this, it will be necessary to supplement the charter of the municipality, amend the provisions of local self-government bodies (structural divisions), replace the job description of employees with the document “Workstation of a municipal employee”. In it, prescribe the mission, goal, tasks of the employee and the required information resources for the implementation of tasks.

LITERATURE

1. Mikheev Yu.A. Typification of regional IT solutions is not a panacea, but an excuse ... // PC WEEK. 2006. No. 16. S. 42-43.

2. Kirienko V.E. The human factor of corporate information systems // Bulletin of Vol. state un-that. Ser. Mathematics. Cybernetics. Informatics. Tomsk, 2002. No. 275. S. 133-138.

3. Strassman Paul A. Information in the age of electronics: (Control problems): Per. from English with abbr. / Scientific. ed. and ed. foreword B.Z. Milner. M .: Economics, 1987.240 p.

4. Nordström Kjel A., Ridderstrale Ionas. Funky business. Capital dances to the tune of talent. Stockholm School of Economics in St. Petersburg, 2001.

5. Egorov V.K. 10 years without the right to train bureaucrats // Rossiyskaya Gazeta (Federal issue). 2004.4 June.

6. Ackoff Russell L. Management in the XXI century (Corporation transformation): Per. from English Tomsk: Publishing house of Vol. University, 2006.418 p.

7. Ackoff Russell L., Addison Herbert J., Bibb Sully. Anti-laws of management: Per. from English Tomsk: Publishing house of Vol. University, 2008.184 p.

8. Bachilo I.L. What should be the new Federal Law "On Information, Informatization and Information Protection?" // Information law. 2006. No. 1.

The program is an information and reference system for solving problems in state and municipal authorities that provide services to the population and is designed to improve the quality and availability of municipal services provided to citizens and organizations, and helps to simplify the procedure and reduce the time for providing services; expanding self-service capabilities, increasing technological awareness and qualifications of citizens, and reducing queues.

The program interacts with a large number of other automated systems and provides the following functions:

viewing and administration of information
makes an appointment, filling out and sending document forms
keeps statistics of visits
creates polls
creates appeal cards
allows you to find out the status of the passage of your appeal, application and execution of orders

What is e-municipality?

"Electronic municipality" - an effective solution for the implementation of the state program "Information Society (2011-2020)"

It allows you to:

Improve the quality, efficiency and accessibility provided to citizens and organizations, municipal and public services, simplify procedures and shorten the period of their provision;
Reduce queues;
Reduce the impact of the geographic location factor;
Reduce the workload on specialists;
Provide citizens with a self-service opportunity.

Electronic services for citizens on your website or information kiosk

Online service for checking the status of citizens' requests. Using the capabilities of the system, a citizen does not need to call or come to the organization to find out at what stage his appeal is. The user just needs to go to the site and enter the identification number of the appeal in a special form, after which he will receive information about the stage of consideration of his appeal.

Online service for checking the status of the application. In real time, real access, the citizen will find out at what stage his application is being passed. Work with her or rejected.

Information and reference system

Complete web application.
customizable interface
administration section
creating polls
internet reception
electronic queue
statistics, analytics
reports for the manager
legal information
Personal Area

The "Electronic municipality" system consists of blocks:

Description of blocks:

Basic block "Information and reference system of the municipality" (terminal \ site):

The base unit contains 5 information buttons. The base unit can be displayed on the internet and on the information touch terminal.
All content is filled using the admin block.

Base unit capabilities:

Viewing the status of your case
Viewing the progress of your request
Find out changes in due dates
Displaying the results of the execution of a request, an order

Viewing information by category

Automatic generation of documents based on the filled in information
View appointment schedule, contact information
Appointment
Viewing legal information

Service "Form filling" (for the site):

User selects a service
Selects a document to fill out
Fills in fields in a special form
By clicking on the button to generate a document, an already completed document appears on the screen
The document can be saved, printed or sent by mail

An example of fields for filling out an application (on the left) and an already formed application (on the right) for the delivery of goods in the services section: Goods and services

Block "Administrator section" (site):

The administrator section is an internal system for managing the contents of the system.

Administrator block features:

Adding Service Information
Change of service information
Appointment scheduling and appointment scheduling
System settings management
Creation of documents for filling

Block "Viewing the status of the passage of user documents" (terminal \ site)

This block enables citizens, without leaving their homes, to find out the status of the passage of their appeal, application. This service makes the work of the municipality "transparent" for citizens. It is enough for a person to go to the site, enter a barcode (identification number) in a special form (Fig. 1) and receive an answer (Fig. 2) about the status of the passage of his document

"Be realistic - demand the impossible!"

student revolution of 1968

The LSG reform implemented in Russia did not lead to qualitative changes in the life of local communities, although this was precisely the meaning of the reform. The ideology of 131-FZ in practice was expressed in an increase in the number of bureaucratic apparatus, which began to consider the resources of local communities solely from the point of view of the exploitation of tangible assets, control over financial flows (including over the use of subsidies at the regional and federal levels) and the prevention of any essential changes in the distribution of power within the elite.

Despite the regular amendments to the legislation on local self-government, the mobilization potential of the existing system of normative acts has been exhausted and it is necessary to replace the bureaucratic model of ensuring the effectiveness of self-government with another one that will correspond to the modernization ideas of the country's leadership and the society that is expecting changes. Therefore, an innovative solution is required that allows local communities to change the situation in an evolutionary way, without breaking the existing one in LSG bureaucratic model. We offer a model techno-social, based in its ontological basis on the humanistic values of the emerging "knowledge society" or as it is sometimes called "information society".

It is generally accepted that information technologies are among the drivers of economic growth, but in Russia at the municipal level there are no models of social consolidation around the idea of using ICT in order to improve the quality of life. The phrase "electronic municipality" widely mentioned in the press at the federal and regional levels does not have a theoretical concept and it all comes down to computerization of the activities of the municipal government. This approach is erroneous, since it is not focused on improving the well-being of the population and increasing the income base necessary for the development of territories.

Therefore, in our opinion, under the "electronic municipality" it is necessary to understand the integrated self-reproducing system of consumption and reproduction of knowledge operating at the municipal level, which makes it possible to increase labor productivity and the quality of life of individuals through the use of information technologies, as well as to provide electronic services to various categories of consumers. At the center of the system are municipal authorities and administrations, not only engaging businesses and citizens on the basis of municipal-private partnerships in various computerization projects, but also taking measures to create and then reproduce a public atmosphere of susceptibility to innovation.

It is the social atmosphere receptive to everything new, being a product of the activities of the authorities, business and citizens, that allows us to create a system that stimulates the emergence of innovations, both in the forms of providing various services and in the corresponding consumer models. At the same time, the technical component fades into the background, since if there are sufficient funds, the companies performing system integration will install any equipment. However, just the necessary funds are not enough, since the municipal bureaucracy does not have an understanding of how to make money using new technologies, therefore the technology of “electronic municipalities” is not on the agenda of the elite.

The emergence of computerized systems at the municipal level in economically developed countries took place in conditions different from those in Russia. Without going into details, we note: the main conclusion is that such systems are effective and allow not only spending budget funds to improve the quality of life of the population, but also replenishing the treasury even for small and medium-sized cities. There are no such systems in Russia and, given the existing models of LSG functioning, they will not appear, even in the foreseeable future. There are two reasons for this: high costs and the unwillingness of the regional and municipal elite to organize the life of territorial communities using the latest technologies, as well as a lack of understanding of the very possibility of increasing the revenue base through conceptually new solutions.

Confirmation that the municipal authorities are not ready for technological modernization are the facts of countering the pressure of the federal center, which imperatively forces them to introduce interactive electronic services. This resistance is due not so much to resource constraints associated with the creation of an infrastructure base for new technologies, as to a functional lack of understanding of the political and social consequences of opposing the modernization vector.

Perception of bureaucracy as a neutral legal mechanism for implementing technology electronic interaction with citizens without political goals, as well as promoting the values of the "knowledge society", to say the least, is naive. This position is beneficial to the adherents of the ideology of technological determinism. According to formal signs, artifacts are really neutral, but today information technologies reflect the quality of life and, in a certain sense, shape the perception of the world, and at this level of reflection, linear logic fails.

In practice, the conservatism of the bureaucracy against the background of the objectively occurring technological development of society leads to an increase in the unpredictability of the functioning of the socio-political system, in which contradictions must find acceptable forms of resolution, and not accumulate like tectonic tensions fraught with a sharp release of energy. Therefore, it is a deep misconception to consider telecommunication technologies as non-political instruments.

Today, a government that uses a computer solely as a typewriter is an anachronism for representatives of the emerging middle class, for which telecommunications networks are not only a business environment, but also an integral part of the universe. You don't have to go far for illustrations. The mass demonstrations in the Middle East in early 2011 that led to a change in political regimes were not “social media revolutions,” as metaphorically played out in journalistic publications, but were the result of deep socio-political contradictions. The elite's reluctance to use the opportunities associated with telecommunications on a daily basis for the development and creation of new mechanisms for self-realization of citizens led to an increase in socio-political instability - among the emerging middle class, as well as young people from other social groups, different value orientations are common than among the “bronzed” elite.

The model of "electronic municipalities" developed by us fully fits into the social technologies of society's expectations associated with scientific and technological progress and creates real mechanisms for improving the lives of citizens in the foreseeable future, as required by the modernization discourse. People want to live better, while spending less time on bureaucratic routines and getting more development opportunities for themselves and their family members. The constitutional obligation of the authorities to take appropriate measures. Until recently, it was possible to talk about the existence of a cognitive gap, but now everything depends on the political decisions of the authorities on the choice of the tools of innovative development offered by science.

The conceptual blocks of the metatheoretical model of "electronic municipalities" required the emergence of new theoretical constructs that have already been developed by us or are in the final stage. These constructs include:

- post-Weberian model of the functioning of bureaucracy in the "knowledge society";

- a model of involving the population at the municipal level in the formation of a “knowledge society”;

- model of functioning of "virtual network communities" at the local level;

- a model of information culture adapted to solve economic, political, cultural and other problems of territorial communities;

- a model of the functioning of the sites " e-democracy"Necessary for the intensive development of institutions of direct democracy and civil society, without which the development of LSG is impossible.

Developing the model of “electronic municipalities”, we proceeded from the objectively existing passivity of a significant part of society and the need to change this situation not by directive methods, but by anropocentric political and social instruments. The creation of a really working system of incentives to participate in the building of a “knowledge society” makes it possible to start real changes in the paternalistic mentality, which acts as one of the brakes on modernization.

Focusing on the mechanisms of self-preservation of the bureaucracy, we consider the transformation of the established practices of relations between the authorities and citizens to be real. To this end, the proposed model of "electronic municipalities" provides for the use of new forms of political communication, focused on creating feedback loops, making it possible to make the government transparent. It would be naive to count on a sharp change in the mentality of officials. But nobody canceled the laws of self-preservation of the elite.

Municipal bureaucracy that does not want to implement programs of computerization of the environment, thereby challenges the possibility of a better future for the population. Whether this is done consciously or not consciously is not important from a political point of view, since we are talking about systemic opposition to objectively existing trends in social development, the effectiveness of which has been proven by the experience of economically developed states. When the citizens understand what the authorities have deprived them of, being engaged in the formal introduction of electronic technologies, they are highly likely to be indignant, but when it comes to the realization that the elite has deprived their children of their future, then no one will remember about “electronic municipalities”, because there are talks on the barricades. lead to something else ... Without understanding the consequences of artificially created instability, one cannot be called a politician.

Bondarenko S.V.,

Doctor of Sociological Sciences,

TsPIIS, Rostov-on-Don

Imprint of the publication in printed form: Bondarenko S.V. "Electronic municipality" as a tool for the modernization of local self-government in Russia and abroad (report) / "Caucasus: problems of reintegration of the socio-cultural space and challenges to regional security." Collection of materials and reports of the international scientific conference (September 24-25, 2012 Rostov-on-Don). Resp. Ed. SOUTH. Volkov. Rostov-on-Don: Publishing House "Social and Humanitarian Knowledge", 2012. S. 323-327.

The semantic content of the phrase "electronic municipality" began to take shape recently and has not yet received widespread use. But it would be quite correct to see it as an expression of a certain concept, as a representation rather The "future state" of municipal activities and qualitatively new development municipalities on the basis of the active development and application of new information technologies in the municipal service, assistance to other infrastructure links in the production and provision of quality services in the territory.

Federal Target Program (FTP) "Electronic Russia for 2002-2010", approved by the Government of the Russian Federation, denoted qualitatively new levels of functional activity of public authorities, administration and organization of local self-government (footnote). This became the starting point for the introduction of a whole range of new concepts and qualitatively new actions - “e-government”, “e-municipality”, “digital signature”, “e-service”, etc.

Of the 77.2 billion rubles allocated to the Federal Target Program "Electronic Russia", federal funds account for just over half; a fifth is financed from extra-budgetary sources, and 29% of the funding is allocated from the budgets of the constituent entities of the Russian Federation and local budgets. However, the real participation of local budgets can still be called experiments. Earmarked allocation of funds, if at the level of municipalities, then according to the "leftover" principle. In the first two stages, the supply of hardware and other resources supporting communication took place mainly. Specialized companies are also being formed to establish the most demanded service, which made it possible to gradually fill the new market and share it with foreign companies that came to Russia in the 1990s practically out of competition.

The gradual socio-economic recovery of the country at the beginning of the new millennium and the strengthening of its international authority allowed the country's political leadership to implement the choice of priorities for social development, taking into account the progressive world trends in the use of new information and telecommunication technologies. By the middle of the current decade, Russia has stepped over the difficult line of modern "civilization" - more than 15% of the country's citizens use information and telecommunication technologies (ICT), including the Internet, in their professional activities, for the implementation of household and other services.

In order to stimulate the actions of the authorities and give purposefulness to the use of electronic technologies in management, in the constituent entities of the Russian Federation until 2005, appropriate strategies and programs were developed and adopted, measures for "Electronic Russia" were developed, including their co-financing from regional budgets. In the regions, actions are being taken to strengthen the interaction of authorities with economic entities in the introduction of information and communication technologies in the real sector of the economy. Guidelines have been developed for the development of telecommunications infrastructure and the creation of points of connection to open information systems. Assistance is provided to the development of the media through the introduction of information and communication technologies. The first steps are being taken to update the training system for specialists in information and communication technologies. The legislation is being improved, which provides for the attraction of qualified IT specialists from among foreign citizens (the head of the computer support department can be employed outside the quotas) (footnote).

For municipalities, the most significant factor in the transitional period of municipal reform was the provision of hardware and basic software resources. These measures fully affected the newly formed municipalities. The Internet came to all municipalities at the same time as the education reform.

The attention of the top leadership of the state (V.V. Putin, D.A. Medvedev) and the adoption of the Federal Target Program "Electronic Russia" was of particular importance for the dynamic movement of Russia towards the "information society". She defined the main tasks of introducing new systems and means of informatization in state and municipal administration. Among them: improvement of legislation and the system of state regulation in the field of information and communication technologies; ensuring openness in the activities of public authorities and the general availability of state information resources; creation of conditions for effective interaction between public authorities and citizens through the use of information and communication technologies; improving the activities of public authorities and local governments through the use of information and communication technologies, as well as improving their interaction, etc.

Among the expected results of the implementation of the federal program: increase in the efficiency of public administration and development of the economy by stepping up the implementation and increasing the effectiveness of the use of information and communication technologies; creation of conditions for the accelerated development of competitive production of goods and services in the field of information and communication technologies, focused on domestic and foreign markets; active involvement of citizens and business entities in the use of information and communication technologies by reducing tariffs for communication services and connecting to publicly available information systems; increasing the information transparency of public authorities and local self-government bodies, the effectiveness of their interaction with citizens and organizations; an increase in the quality of services rendered to them; reorganization and improvement of the quality of education, etc. It is important to take into account that the Federal Target Program "Electronic Russia" is not focused on achieving instant economic results. Stimulating development Russian market high technology is not its immediate task. But real success Programs will be measured by how much authorities at all levels will become more accessible to citizens, and their activities will become more transparent and more efficient.

One of the important directions of the Program is building up the population's access to the Internet. An indirect result is stimulation of the IT industry due to the growth in the number of specialists and citizens who have access to information networks and potentially mass consumers of information services. An increase in demand for relevant information services is inevitable when introducing electronic document management and others. Therefore, the Federal Target Program "Electronic Russia" not only offers solutions to obvious problems, but also raises a number of new ones, including:

ensuring information transparency and openness of the state
for civil society;
modernization of government bodies, state and municipal administration through the introduction of ICT;
interaction of the state with business entities and the creation
prerequisites for the introduction of information technology in the real sector;
promoting the development of independent media through the introduction of ICT;
modernization vocational education and development of human resources;
infrastructure development public networks access for training
the principle of “lifelong learning”, as well as the opening of specialized points for receiving state and municipal services on the principle of “one window”.

In order to achieve qualitative and measurable criteria for the development and application of ICT in the most massive spheres of life of the population, at the beginning of 2008, the President of the Russian Federation signed "Strategy for the Development of the Information Society in the Russian Federation". Its implementation orients both authorities at all levels, including municipalities, and society as a whole to achieve a new strategic quality in the use of ICT. As a result of the implementation of the main directions and measures by 2015, the following benchmarks should be achieved:

Russia's place in international rankings in the field of information society development - among the twenty leading countries of the world;
Russia's place in international rankings in terms of accessibility of the national information and telecommunications infrastructure for the subjects of the information sphere - not less than tenth;
the level of accessibility of the population to basic services in the field of information and communication technologies - 100%;
the share of domestic goods and services in the volume of the internal market of information and telecommunication technologies - more than 50%;
an increase in the volume of investments in the use of information and telecommunication technologies in the national economy in comparison with 2007 - not less than 2.5 times;
reduction of differences between the subjects of the Russian Federation in terms of integral indicators of information development - up to 2 times;
the level of use of broadband access lines per 100 people of the population due to all technologies: by 2010 - 15 lines and by 2015 - 35 lines;
the presence of personal computers, including those connected to the Internet, in at least 75% of households;
the share of research and development in the field of information and telecommunication technologies in the total volume of R&D carried out at the expense of all sources of funding - at least 15% by 2010 and 30% by 2015;
an increase in the share of patents issued in the field of information and telecommunication technologies in relation to the total number of patents - at least 1.5 times by 2010 and 2 times by 2015;
the share of public services that the population can receive using information and telecommunication technologies of the total number of public services in the Russian Federation - 100%;
the share of electronic document flow between public authorities is 70% in relation to the total volume of document flow;
the share of orders placed for the supply of goods, the performance of work and the provision of services for state and municipal needs of self-government using electronic trading platforms from the total volume of the placed order - 100%;
the share of archival funds, including funds of audio and video archives, converted into electronic form - at least 20%;
share of library collections transferred to electronic form, in the total stock of public libraries - at least 50%, including library catalogs - 100%.
share electronic catalogs from the total volume of catalogs of the Museum Fund of the Russian Federation - 100%.

In particular, a reduction in the differences between the constituent entities of the Russian Federation in terms of integral indicators of information development should be achieved. (no more than twice). The preparation and annual submission of a special report to the President of the Russian Federation on the progress of "achieving" the criteria characterizing the new information space in the country.

Application of information technologies in management activities is one of the main areas of implementation of the goals and objectives of the FPC "Electronic Russia", specified in "Concepts for the use of information technologies in the activities of federal government bodies until 2010". Federal government bodies are recommended to take into account the provisions of the Concept when developing and implementing projects and programs containing measures for the development and use of information technologies. In Concept the main priorities, principles and directions for the implementation of a unified state policy in the field of the use of information technologies in the activities of federal government bodies in accordance with the tasks of modernizing public administration have been determined.

the main goal associated with an increase in the efficiency of public administration mechanisms based on the creation of a common information technology infrastructure, including state information systems and resources, as well as the means to ensure their functioning and interaction with each other, as well as with the population and organizations within the framework of the provision of public services. The meaning of public policy is both in the use of information technology in public administration and compatibility with the developing subsystem of local government. V "Strategies for the development of the information society in the Russian Federation" a more complex and complex problem has also been formulated. She ties in with increased added value due to intellectual activity, increasing the technological level of production, dissemination of modern information and telecommunication technologies, strengthening the role of intellectual factors of production, through the use of high technologies, including information and telecommunications, which should become the locomotive of socio-economic development.

In this regard the purpose of the formation and development of the information society is recognized: improving the quality of life of citizens; ensuring the competitiveness of Russia, the development of the economic, socio-political, cultural and spiritual spheres of society; improvement of the system of state and municipal administration through the use of information and telecommunication technologies. The achievement of this goal is determined by eight major tasks, incl. improving the quality of education... At the same time, development is ensured on the principles of: partnership between the state, business and civil society; freedom and equality of access to information and knowledge; support of domestic manufacturers of products and services in the field of information and telecommunication technologies; promoting the development of international cooperation in the field of information and telecommunication technologies; ensuring national security in the information sphere.

The key issue becomes ensuring a high level of accessibility of information and technologies for the population which includes:

creation of infrastructure for broadband Internet access throughout
territory of the country, incl. through the mechanism of public-private partnership;
increasing the availability of modern services in the field of information and telecommunication technologies for the population and organizations;
formation of a single information space, incl. for tasks
ensuring national security;
modernization of the TV and radio broadcasting system, expansion of the zone of reliable reception of Russian TV and radio programs;
creation of a system of public centers for access of the population to state information resources, including the creation of a state
systems legal and other information.

The currently accepted official statistical information does not yet have data that would characterize the level of ICT use by municipalities. Therefore, a group of scientists and IT specialists from the Institute of Distance Learning of the Russian Academy of State Service under the President of the Russian Federation in mid-2008 prepared and conducted an expert study on the topic: "Electronic municipality: organization and functions." Assessments of the level of ICT implementation in the work of municipal administrations were obtained on the basis of self-assessments.

Self-assessment of municipalities on the "electronization" of apparatuses and territories was identified based on the results of an expert survey. He showed that 90% of the municipalities participating in the polls have their own Internet sites, which allows us to say that this element has mainly found implementation in municipal practice. Internet sites often contain: general information about the municipality (72%), as well as contact details and work schedules of the apparatus (63%), information about the heads of departments (70%). There is also information about municipal programs, information about tenders and competitions (60%). Important information blocks, such as information on budget execution and information on working with citizens' appeals, are posted so far by only about a third of municipalities. Only one out of ten municipalities participating in the polls has strategies and concepts for the development of ICT of municipalities.

The most common electronic service provided to citizens and legal entities in the surveyed municipalities is the exchange of documents with the tax authorities. The second and third positions are occupied by "information on the procedure for the provision of municipal services", "forms, forms, receipts" (organized in a third of municipalities).

The results of the research carried out illustrate not so much the situation in urban settlements and municipal districts as a whole, but rather the situation in the most interested and successful municipalities that responded to the invitation of the Civil Registry Office to participate in the expert survey. According to the assessments that were given by the respondents in relation to the level of development and application of information and communication technologies in activities apparatus of the municipality, comes to light in the main "average" level. Level informatization of the municipal territory mostly deserves a “below average” rating.

In most municipalities there are no regulations defining for a long time- and mid-term measures for the introduction of ICT in municipal administration - Informatization strategies and programs. The most normatively provided sphere of ICT application is the representation of the municipality on the Internet. (the relevant documents are valid in more than half of the surveyed municipalities). Less than half of municipalities have adopted sectoral informatization programs or measures to regulate the processes of creating and operating information systems and resources. Only individual municipalities independently develop regulations to proactively regulate the scope of new activities.

Thus, the only adopted normative act is most often a document regulating the presentation of a municipality on the Internet. And quite rarely - the formation of a regulatory framework for informatization begins in the form of a strategy, concept or program.

Staffing ICT adoption in municipalities is reflected in Diagram 2.

So far, less than half of the municipalities have a specialized ICT subdivision in their staff. In urban areas, specialized ICT units are more common than in municipal areas. Three quarters of the survey participants indicate that there is a shortage of ICT specialists in the administration of the municipality.

Financial support for the implementation of ICT in municipalities Is one of the most difficult problems. About a third of the respondents were unable to give a definite answer to the question regarding the distribution of ICT costs. More than a half study participants noted that the development and acquisition of software is underfunded (in part, this is due to the relatively recently realized need to abandon the use of counterfeit software products). An essential fact is the insufficient level of funding for training personnel to work with ICT. Moreover, in cities it is more often assessed as an underfunded direction "Telecommunications" and in municipal districts - "training".

Information about working with citizens' appeals(another example of socially significant information) is published only by a third of sites. Electronic social cards used by a very small part of the municipalities.

Building an "electronic municipality"- it is a labor-consuming business and, most importantly, is designed initially for creative specialists. The best practice in the development and promotion of electronic technologies testifies to a steady trend in the formation of new information culture from specialists and citizens. Results are obtained where there is a verified strategy, resources are concentrated on breakthrough areas, since significant investments are required. Undoubtedly, the will and exactingness of management is also needed to promote new ideas in the field of mastering new technologies. The result is worse where there is no coordination, there is overlap in the use of ICT, the use of ICT only as an auxiliary tool.

An analysis of existing practices testifies to the good performance of informatization strategies in the municipalities of the Russian capital, in most of the administrative centers of the constituent entities of the Russian Federation. Moreover, in many respects, the experience here develops an individual one, based on independently chosen goals and objectives.

Currently developing three main variable models evolving towards "E-municipality". This is a typical model for urban district. In the capital, the typology is being worked out in the electronic municipal entity "Zhulebino". In industrial cities and regional centers under construction a phased urban model (the cities of Yekaterinburg, Omsk, Orenburg, Petrozavodsk, Tomsk, etc.). Subjects of the Russian Federation and their governing bodies develop programs and order development electronization of certain areas (property management, transport services, medical services, etc.) and then work with the municipalities to implement such programs. This third model formation of an electronic municipality. Where resources and expertise are available, elements of individual programs are implemented in parallel.

Integration of systems, for example, in Moscow is provided on horizontal links through special subprograms and targeted activities. In particular, the regulatory framework is being improved, conditions are being created for system-wide support (electronic interaction environment, unified technological solutions, information security system), the development of information inequality is eliminated (a system of city portals, intersectoral systems and resources is being created and maintained; information and communication infrastructure, the city's security system are being developed). The organizational support of the "electronic municipality" in the metropolitan area is built in four main sections, each of which has its own subsections. These are: the electronic site of the municipality; activities of the municipality; organization of the territory of the district; support of the consumer market and provision of services.

The entire list of functional solutions, events and other actions of the intracity model is aimed at improving management and organizing business, primarily in two main areas - housing and communal services (housing and communal services) and social sphere. Principal scheme approaches and solutions of the functioning of the models are given below in diagrams 1 and 2.

Since January 1, 2008, the country has carried out the transition of federal bodies of state power to provision of public services to citizens and organizations in electronic form using software and hardware and telecommunications infrastructure the all-Russian state information center(OGIC), solved in the format of the state portal of mobile services.

Since the beginning of 2009, public authorities must provide public services using the resources of the Center (OGIC) through a single site for public services on the Internet(portal of public services). Through OGIC it is planned to provide:

optimization of interaction of public authorities with each other
a friend, with the population and organizations based on high-tech services;
regulated and free access to information on the activities of public authorities and the services they provide;
remote provision of public services based on information contained in the databases of information systems of federal executive bodies, executive bodies of the constituent entities of the Russian Federation, other government agencies and local governments.

In this regard, let us clarify that the implementation of the "electronic municipality" model can be carried out on the basis of the project creating a certain type of portal. Therefore, it all starts with a study of demand. target groups about the needs for state and municipal services and the use of ICT to obtain this kind of information (information). Target groups of state and municipal electronic services are: citizens; business structures; public organizations and other non-governmental structures. When using the information capabilities of the portal, Internet Explorer version 6 or higher must be installed on the user's computer. All data in the system is stored only on the server, and the system uses a standard Internet browser (MS Internet Explorer, Netscape Navigator). If necessary, additional modules can be developed for the system.

To form the electronic needs of these groups, a information distribution matrix. It reflects the main activities that need to be reflected in order to achieve maximum awareness of target groups with minimum financial and human resources. A typical information distribution matrix is presented in Table 3.

The numbers I, II, III, IV characterize the priority (importance) of communicating this or that type of information. The information distribution matrix is periodically reviewed as the importance of certain electronic services changes.

Elements of building "electronic government" in developed countries are implemented both in municipal authorities and at a higher level, with the provision of appropriate material and human resources. A typical set of programs are: informing about the activities of local self-government bodies; providing feedback and interactivity; creation of mailing lists; increased use of the Internet; preparation of newsletters and newsletters; creation of multimedia content; monitoring the effectiveness of municipal services. Let us consider in more detail a part of the above services that are already being implemented in the best municipal practice.

Informing citizens about activities local authorities authorities, which is usually carried out by creating information resources on the Internet. Created sites are built on the basis of client-oriented approach. For the implementation of individual services, unitary or other enterprises can be created, which, having guaranteed financing (part of subsidies), also received the opportunity to earn money by providing part of the services on a commercial basis.

Providing feedback and interactivity in the provision of electronic services, it is achieved through direct filling forms on site pages or provision of addresses e-mail of local government employees. When providing services to the population, answers to frequently asked questions are provided by experts. Their answers are published on the site. Interactivity can be achieved by posting on the conference site (chats) or through the use of channels ICQ. At the same time, a small group of employees can ensure the processing of applications from a large number of citizens and organizations.

Create mailing lists for information on changes in legislation and other regulations in relation to specific social groups of the population is the most important area of municipal reform. For especially important documents e-newsletters and newsletters are being prepared for persons who have subscribed to these information materials in electronic form. Comes into practice and creation of multimedia content on the websites of authorities (the visibility and availability of services in electronic form is ensured).

The essential elements are monitoring the effectiveness of municipal services... Monitoring is carried out on the basis of the use of software packages for the collection and processing of information on an electronic survey of citizens, businesses about certain services.

Server and other solutions for social portal . Schematic diagram the implementation of the municipal portal is based on technological solutions social portal architecture. Delivery of a standard package for the functioning of the corporate portal (e.g. Axiom.Portal) functionally includes custom and systemic Services. The following can be attributed to the custom ones:

Document storage. The service provides centralized storage corporate information and providing access to it through a single web interface. Document storage implements the configuration and visualization of the directory hierarchy in the form of a tree and provides: version control (storing the history of changes in documents and records of the persons who made the changes); group work on documents (automatic blocking and unblocking of documents when shared); subscription to notifications about changes in documents or sections; search for documents by the heading of the catalog, the content of the document and formal signs of documents; backup to restore documents after system failures.
Sighting... The service is an addition to the "Document Storage" service and regulates the process of sequential review of one document by several users. The service allows the user to form arbitrary chains of passage of the document and set the required reaction from each of the persons participating in the process.
The calendar... The service is intended for drawing up personal schedules of employees and joint schedules for working groups, departments, committees, boards.
Institution news... The service is intended for publication on the portal of internal corporate news. The publication is carried out by the employees responsible for updating the corporate news feed.
Syndication services: "News", "Weather" "and" Currency Rates ". The "News" service is intended for publishing news materials from external sources on the portal. Feeds are generated automatically using the syndication system. The task of the syndication system is round-the-clock scanning of all specified sources and the formation of personalized news blocks for each user of the portal.
Project management... The project management system is intended for planning projects and their tasks, monitoring execution, accounting for time and resources when executing projects. The system allows you to create a task tree for each project, set deadlines and responsible persons, both for the entire project and for its individual tasks. The system also provides the ability to track the history of the project, take into account the time and resources spent. The user can also control
his current tasks and projects in which he participates.
Corporate Directory... The service is designed for an organized
storage and quick search of contact information about employees of the organization.
Corporate mail... The service is designed to work with corporate email through a web browser interface.
Forum... The service allows you to exchange experience and information between
employees; provides the opportunity to conduct discussions between all users and organize groups of employees who have the right to participate in the discussion.
Access to the corporate network... The service is designed to provide access to local network files via the Web interface, the service includes
a file system navigation module and a file handling module (download, upload).
Event registration... The service is designed to register various events, incl. the arrival of visitors, the movement of material values.

System services are:

1. Administration of the user directory. The service manages a special directory (LD by AP-directory) portal users
via the web interface; the service also provides opportunities for the introduction of the organizational structure of the organization, including subsidiaries; creating, deleting, changing, setting the status and defining access rights from
individual portal users and user groups.

2. Personalization... The service provides user-specific settings for the appearance of the portal; on the portal pages (except
service), the user can customize the number of displayed services and the order of their display, choose fonts, color schemes and other visualization parameters.

3. Federated search... The service is intended for full-text search of information provided by the portal services.

4. Access log... The service logs the actions of the portal users: data modification, changing access lists, gaining access, etc.; technological solutions are supported: a unified directory of users and groups; database security infrastructure (LDAP, MS Active Directory); platform software (J 2 EE); use of means of integration of corporate applications; open line of software products (API) with ready-made portlets (services); use of publishing tools and content management (the portal stores documents, not HTML pages); unified search system for all portal services ("Federated Search"); independence from software and hardware platform (support for MS Windows, various versions of Unix and Linux); use of an industrial database management system (DBMS).

For a better understanding, let us clarify that, for example, Axiom.Portal built on three-tier web architecture. The corporate portal is based on the core that ensures the operation of all services and the integration of data and applications. Each portal service is considered as a stand-alone software module. (portlet), independent of other services.

In the municipality, where the strategy of "Electronic municipality" is being implemented, infrastructure entities can be actively involved in the programs of electronization of the territory. As a rule, these are the most powerful modern companies that are taxpayers. The introduction of new technologies by them makes it possible to update the conditions of corporate activity, to create automated workplaces on the municipal territory. And this has a positive effect on the development of modern information culture.

Today, in electronically "advanced" territories, it has already become a daily practice: "electronic cards of a citizen" for various groups of the population, incl. "Electronic pensioner card", "electronic student card", as well as "plastic electronic money card" (transfer, payment), organized "media libraries" and the infrastructure of "municipal universal education", created special funds "electronic citizen", etc. On this path, it is important for each municipality to build its own strategy and go through the stages of evolution when building an "electronic municipality".

The general question can be considered a legal failure about the electronic document. Indeed, the federal legislator has so far approached the transfer of the official document flow into an electronic format unsystematically. For several years now, the law on electronic digital signature, but in practice this is not the case. Now there is an experimental practice of entering "passwords" instead of an input electronic signature to enter the corporate network. But this is not very secure and requires periodic password changes to protect the information. But this is possible only in local experience.

FTP "Electronic Russia for 2002-2010" was approved by the order of the Government of the Russian Federation of February 12, 2001 (207-r.). There are three stages of its implementation: I stage - 2002; Stage II - 2004-2005; Stage III - 2005-2010

The shortage of information technology specialists (IT-specialists) in the country is estimated at almost 200 thousand people. In 2008, the Russian Union of Industrialists and Entrepreneurs (RSPP) approved modern professional standards reflecting the necessary requirements for professions from the standpoint of IT employers (they will be studied and adapted by the Ministry of Education and Science of the Russian Federation until 2010). There are at least nine most popular and in-demand specialties: programmer, system administrator, information systems specialist, system analyst, system administration specialist, information technology manager, sales manager for solutions and complex technical systems, specialist in information resources, database administrator.

Order of the Ministry of Health and Social Development of the Russian Federation of July 25, 2008 No. 355 "On approval of the list of professions (specialties, positions) of foreign citizens - qualified specialists employed in their profession (specialty), for which quotas do not apply for 2008".