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Introduction

Chapter 1. Theoretical foundations of municipal government

1.1 Tasks and functions of municipal government

1.2 Methods of municipal government

1.3 Assessing the effectiveness of municipal government

Chapter 2. Efficiency of public administration

2.1 Methodological approaches to determining effectiveness

2.2 Conceptual models of efficiency

2.3 Integral indicators for assessing the effectiveness of public administration

2.4 Indicators of efficiency and effectiveness of government activities

Chapter 3. Assessing the effectiveness of municipal government

3.1 Assessing the effectiveness of municipal government

3.2 Criteria and indicators of the effectiveness of municipal government

3.3 The place of municipal government in the economic management system

Conclusion

Bibliography

Application

Introduction

The current stage of development of Russian statehood is characterized by increased attention to the problem of the effectiveness of municipal government and management.

Many judgments about the effectiveness of municipal management follow the understanding developed within the framework of modern management theory, adapting it to the conditions of the state as a management system. Accordingly, the effectiveness of the management process is understood as “... the effectiveness of the very process of the subject’s influence on the controlled object; quantitatively carried out by a relative change in the organizational and technological good.”

Federal Law No. 131 “On the general principles of organizing local self-government in the Russian Federation,” signed on October 6, 2003 by the President of Russia, is one of those laws that affected not only the entire system of government bodies, but literally every citizen of Russia.

In most rural and urban settlements, local government is not organized as required by the Constitution and the current Federal Law. Of the nearly 12 thousand municipalities, only about half had independent budgets, the rest worked according to estimates. A third of municipalities did not have healthcare, education, or cultural facilities in municipal ownership, and these areas, according to the current law, are issues of local importance. A quarter of municipalities had no municipal property at all. A comprehensive strengthening of control and law and order is a distinctive feature of the course of President Vladimir Putin. This course receives a logical continuation in the new law on local self-government. It is clearly aimed at strengthening control over the legality and effectiveness of local governments. It contains a large number of norms that will help increase guarantees of the legality of the activities of municipal bodies. The goals of this complex reform are to bring local government closer to the population, increase its financial stability, correctly distribute powers between government bodies, strengthen the legality and “transparency” in the actions of municipal government bodies; this is the relevance of the topic. In this regard, from a strategic perspective, despite the possible difficulties of the transition period, the reform will undoubtedly lead to the improvement of the socio-economic and political system of municipalities.

The purpose of this course work is to search and identify resources that could be used to improve the efficiency of public administration, and to consider indicators and criteria that contribute to this, taking into account the specifics of our state.

To achieve this goal, the following tasks were set:

Consider the theoretical foundations of municipal government.

Determine the tasks, methods and functions of municipal government..

Consider methodological approaches to determining management effectiveness.

Study the criteria and indicators of the effectiveness of municipal government.

Identify the components of the effectiveness of municipal government.

Determine the place of municipal government in the economic management system.

The subject of the course work is the specifics of public administration and the activities of municipal government bodies.

The object of the study is the municipal management system in Russia.

Chapter 1. Theoretical foundations of municipal government

1.1 Tasks and functions of municipal government

The basic tasks of the municipal government system include:

1. Strategic planning, which includes the development of municipal policies in various areas that determine the life of the municipality, the development of programs and projects, forecasting and scenario planning of socio-economic development.

In the management of any objects, the role of strategic planning is extremely high. It is difficult to overestimate its role in municipal government. In their activities, local governments deal with various entities in the economic, business, and public spheres. The interests of these subjects are always contradictory and selfish. For example, an entrepreneur strives to extract maximum profit by modernizing his activities, minimizing overhead costs and reducing personnel; in turn, local governments are interested in ensuring employment and the profitability of enterprises; the population is interested in job guarantees and is not interested in modernizing production.

Strategic planning and municipal policies are essential in municipal government as a means of aligning the interests of local communities with respect to key issues of municipal development. They are designed to translate conflicts and problems into the goals and objectives of the activities of governing bodies. municipal government authority body

Municipal programs fulfill the task of co-organizing the activities of all divisions of the Administration and other subjects of municipal development. The software approach is focused on working specifically with problems; it allows you to manage the process of working with them and with the constantly changing content of the problem field.

In the program approach, the center of gravity is transferred from the result - the program text as an expression of a static state - to the programming process. The entire management structure is drawn into the constant process of programming its activities, acquiring elasticity and the ability to change. The program approach makes it possible to close the gaps that appear at the boundaries of the activities of departments and are sources of organizational conflicts and discrepancies in work.

2. Formation of the regulatory framework for local self-government.

This is, first of all, working with the Charter of the municipality and creating conditions for strengthening the regulatory role of municipal government bodies. A balanced solution to the problems of local self-government requires the establishment of clear rules for operating with all local resources, regardless of the form of ownership. A developed municipal regulatory framework is the most important tool in mastering the subjects of local government. In the absence of a comprehensive legislative framework for local self-government, the provisions of the Charter of the municipality act as the basis for judicial protection of the rights of local self-government.

3. Formation of a base of socio-technical standards.

One of the key tasks, the solution of which is necessary for the normal organization of municipal government, is the determination of social norms according to which the municipality provides various services to the population at the expense of its budget. This task is very well understood by managers from the production sector, since not a single production process can be built without a description of its constituent procedures and operations, as well as determining the cost of each of them. However, in the practice of municipal government, we have learned to do without a regulatory and technical framework. Because of this, it is impossible to develop a normative budget, organize activity planning, normative financing of budget expenditures, and correlate the quality of services provided to the population with budget capabilities. Replacing municipal standards with state or regional ones, as a rule, leads to an increase in costs that do not reflect the specifics of a particular municipality and its capabilities.

4. Analysis of the external and internal situation, as a condition for the flexible response of the municipal government structure to changes.

Of course, analytical work is an expensive pleasure, and not every municipality can afford to maintain analytical units. However, if a municipal entity is not able to provide analytical support for its activities, it is forced to borrow goals and objectives at higher levels of management, from other municipal entities. In practice, this means that the activities of municipal government structures will be poorly focused on their own socio-economic situation, and in those areas where the municipal government structure does not have its own goals, they will be replaced by the goals of the Administration of the Subject of the Federation.

5. Work planning as a condition for coordinating the actions of Administration departments in terms of resources used and in time.

The planning system, which permeates all levels of management, is a guarantor of transparency in the activities of departments and makes it possible to establish performance characteristics. This is facilitated by unified requirements for the development of work plans. Plans should form the basis for operational meetings, assessment of the activities of departments and their managers, analysis of the scope of functions performed, etc.

6. Monitoring the implementation of legal acts and regulations within the management structure and in the subordinate municipal sphere.

The existing shortcomings in monitoring the implementation of municipal government tasks lie in their departmental nature. This violates the most important principle of municipal management: the separation of the positions of the customer, the contractor and the controller.

The control system must be cross-functional. Under no circumstances should all control functions be concentrated in one special control unit. On this basis, you should take inventory of all processes that require control. This, in particular, should include: control within the office management system, control over the quality of management work, control over economic activities, control over the distribution and use of financial resources, regulatory control, technical control. And each of these types of control should be handled by a specialized unit of the Administration.

7. Personnel management as a condition for motivating municipal employees and developing their competence.

As a rule, work with Administration employees is carried out by human resources departments and managers. It covers a very narrow range of tasks, mainly determined by the functions of personnel accounting. As a result, a municipal employee has no clear idea of ​​either the system of requirements for the functions he performs or the conditions for his promotion. Personnel management consists of solving the following tasks: assessment and development of professional skills; expansion of competencies; formation of an objective system of requirements for promotion based on public and transparent procedures and only in accordance with competence; development of a motivation system for municipal employees, including maintaining the necessary level of awareness; employee certification.

8. Regulation of one’s own activities and activities in the subordinate area, as a condition for ensuring the normal functioning of the entire structure of municipal government.

Any control system can function normally if all its basic functional connections are described in terms of procedures and operations. Compliance with this requirement allows you to establish clear boundaries between levels of the management hierarchy and horizontal connections between departments.

On this framework, the organization of document flows, the distribution of duties, responsibilities and rights are built, and a system of uniform requirements for managers of the same level appears. In municipal administrations, most often there is no clear hierarchy of management. Deputy heads, heads of departments, committees and departments have different levels of rights and responsibilities, perform a different set of functions, despite belonging to a certain management hierarchy. The deputy head can perform the tasks of the head of the department, and the head of the department can perform the tasks of the deputy head. The distribution of orders and tasks in the management system is carried out based on personal qualities, and not according to formal criteria related to the position occupied in the management structure and the content of the order.

External requirements for workplaces are very vague; they are in no way dictated by operational regulations, and, therefore, do not affect the requirements for the quality of work. The shortage of qualified workers in municipal structures is well known. The period of their cultivation itself is long and expensive, but insufficient qualifications can be compensated for by external requirements: the more complete they are and cover various aspects of activity, the more successfully employees will master them and, in practice, improve their skills.

9. The municipal order system, as a condition for ensuring publicity in the disposal of budget funds, minimizing costs and creating a competitive environment.

If the leadership of a municipal entity believes that the municipal budget is the property of the local community, and not the municipal government structure, then the first condition for the execution of the expenditure side of the budget is publicity. If the leadership of a municipality considers it necessary to involve enterprises of various forms of ownership in the execution of their tasks in order to create a competitive environment in the city and region and improve the quality of services while simultaneously reducing their costs, reducing overhead costs associated with the activities of municipal institutions and enterprises, then to achieve this goal There is one remedy - a municipal order.

10. Publicity of activities as a condition for the involvement of municipal communities in solving municipal problems and expanding civic participation.

The principle of publicity of the activities of local government bodies is an effective means of establishing relations of trust between the authorities and the population. Understanding the intentions of the authorities and their support by the population is a condition for the implementation of municipal programs and projects. Otherwise, the government will always encounter a negative reaction from the population to its innovations, based on ignorance, fear of losing something, and distrust of the government as such. Awareness of the population about the intentions of the authorities doubles the implementation rate of programs and projects.

Thus, the costs of ensuring publicity of the activities of local governments have a very specific financial equivalent.

Municipal government is characterized by relatively independent (taking into account the interests of the population) formation of goals and objectives, authorities and management, budget, resource base, etc. Local government has certain characteristics:

The possibility of independent existence of a territorial entity (autonomous budget, administrative control over the territories under its jurisdiction);

Absence of direct (vertical) subordination of the local government body to a higher government body;

Participation of the population of the territory of the municipality in decision-making processes on issues of local importance;

Election of local authorities, their accountability to the population;

Guarantees of social protection of the population by local governments.

So, municipal governance is the practical, organizing and regulatory influence of local authorities on the social life of the population of a municipality in order to streamline, preserve or transform it, based on their power. “Municipal management” as a complex discipline that studies municipal management and the patterns of its functioning, on the one hand, acts as an independent discipline, and on the other hand, it is closely related to other sciences and is based on the results obtained by them.

Municipal management requires the use of a systematic approach. Municipal management as a special discipline has its own concepts, categories, and terminology. Thus, the terms “municipal” and “local” are used in relation to local governments at all levels.

The concept of “municipal property” characterizes the property of a municipal entity.

Municipal service is the professional activity of management employees on an ongoing basis in local governments.

The subject of municipal government is the population of the municipality and the local government bodies formed by it.

The object of municipal government is a municipal entity with all its structures, connections, relationships, and resources.

The specifics of municipal management are determined, first of all, by the characteristics of the municipality as an object of management, including all aspects of people's lives.

For example, when talking about the efficiency of municipal government, it is impossible to limit ourselves only to economic efficiency, leaving out of consideration the social, “moral” effectiveness of certain management decisions. At the same time, residents of a municipality are simultaneously both an object and a subject of management in relation to the system of municipal government bodies, since the population manages their affairs either directly (through elections, referendums) or indirectly (by exercising control over the activities of municipal government bodies). At present, local self-government in Russia is essentially in a state of transition from a system of “local Councils” to a system of local self-government. During the formation of the municipal government system, it is necessary to solve the following main problems:

Rational division of powers between federal, regional and municipal government, and above all in the sphere of budgetary relations and property relations;

Improving management methods and structures in order to increase the efficiency of the entire municipal government system;

Creation of an effective system for training personnel to work in municipal government bodies.

Management functions (understood as the main directions, tasks of management activities) carried out at the municipal level are diverse and are specified in Article 6 of the Federal Law “On General Principles” and the Charter of the municipality. Factors influencing the composition and development of municipal government functions include:

Type of government model;

Level of development of the regulatory framework of local self-government;

The level of socio-economic development of the state in general and the municipality in particular;

The nature of the political processes taking place in the country and region;

The degree of economic development in the country, region and municipality.

1. 2 Municipal management methods

Management methods are the methods and techniques of management activities with the help of which the object of management is directed to achieve its goals. Municipal management methods are based on objective economic laws, patterns of socio-economic systems, take into account the achieved scientific and technical level, and social ones. legal and psychological relations in the management process. Municipal management methods are always used comprehensively, mutually complementing each other. Their combination forms an integral system of municipal management methods. There are the following groups of methods: economic, administrative and legal, social and psychological. Each group of methods has a specific impact on the control object. The art of management lies in mastering these methods, in their correct selection and combination, and the ability to apply them in practice.

Economic methods of municipal management

Economic management methods are a set of management methods and techniques based on the use of economic laws and interests. The purpose of these methods is to create conditions that interest the manufacturer to produce the necessary goods and services of the required quality and at an affordable price. These methods are designed to ensure harmony and unity of economic interests of enterprises (organizations), the local community and a particular resident.

Economic methods include planning, cost accounting, pricing policy, budget policy, tax policy, credit policy, etc. The need for economic management methods is naturally and significantly increasing, since in the conditions of the development of private entrepreneurship it is not always possible and reasonable to solve complex problems with the help of directive influence a set of tasks to meet the growing needs of the population.

The essence of economic methods is to influence the economic interests of consumers and workers through prices, wages, profits, credit, taxes and other economic levers that allow creating an effective work mechanism.

Economic methods are based on the use of incentives that provide for the interest and responsibility of management employees for the consequences of decisions made and encourage employees to proactively achieve assigned tasks without special orders.

The features of economic management methods are that they are: based on some general rules of behavior that make it possible to maneuver resources, while administrative ones are characterized by specific targeted tasks focused on achieving the goals of the managed system by forming its clear structure, creating conditions for preparation, acceptance and implementation of solutions; have an indirect impact on producers and consumers through a system of relations that takes into account the interests of the team and individual workers (administrative methods, by their nature, are not able to focus so fully and directly on the economic interests of the object of management); certainly presuppose the independence of the enterprise at all levels while at the same time assigning responsibility for decisions made and their consequences (in contrast to administrative methods, which assume a significant share of responsibility of higher decision-making bodies); encourage performers to prepare alternative solutions and select from them the ones most relevant to the interests of the team (administrative orders are mostly unambiguous and require mandatory, precise execution).

Economic methods of management must and will inevitably occupy a dominant position. This is necessary for the normal functioning of associations, unions, and enterprises in the new economic conditions. At the same time, the number of management levels is reduced. With the skillful use of economic management methods, governing bodies in market conditions can more easily overcome inertia in the implementation of their tasks, caused by the lack of corresponding economic interest in the prompt satisfaction of changing needs. Self-control is strengthened, the need for administrative control is reduced to a minimum, which focuses, if necessary, on the final results of serving the population. The more widely economic methods are used, the greater the number of issues that are resolved directly at the main levels of management, closer to the source of information. In the past, under conditions of unjustified widespread use of administrative methods, decisions were often made at high levels of management that, in their content, were within the competence of lower levels of management. As a result, the decision-making process slowed down and the required efficiency of management was not ensured, its competence and quality decreased. The use of a system of economic methods at state-owned enterprises will give the desired effect only if the profitability of farming covers all links of the organizational management structure, forming a closed system with the distribution of financial responsibility between all its links.

Administrative, administrative and legal methods municipal government

The executive body of local self-government (local administration) carries out its functions in two ways: legal and organizational. The legal method involves the adoption of normative legal acts on issues within the competence of executive bodies of local self-government. The organizational method involves organizing work to implement the decisions of the representative body of local government, its own decisions, as well as laws and other regulatory legal acts of federal and regional government bodies.

Administrative-administrative and legal methods are a set of means of legal (legal and administrative) influence on people's relationships. The implementation of these methods is guaranteed by the current system of federal and regional laws and local government regulations. Legal influence lies in the application of legal norms regulating communications and relationships arising in the management process. Legal norms are expressed in various legislative acts, regulations, instructions, orders and regulations. The application of legal norms involves the use of sanctions, which are divided into: disciplinary, material, administrative and criminal law.

Administrative methods involve organizational and administrative influence. Organizational influence is expressed in a clear distribution of management functions, establishing the rights and responsibilities of management employees, and regulating the basic procedures of management activities. Organizational influences are based on: organizational regulation and organizational norming.

Organizational regulation establishes mandatory rules and determines the content and order of management activities in accordance with legal norms and instructional materials. Organizational regulation involves the development of standards and norms; the number of management personnel and controllability, labor costs in the field of management and the duration of management operations and procedures, costs of materials and other expenses.

The charter, regulations, regulations, job descriptions, distribution of rights and responsibilities, organizational structures create the basis for administrative activities, i.e. to establish specific tasks and monitor their implementation. Administrative influence is carried out in the process of functioning of the municipality and is aimed at ensuring coordinated work, the management apparatus, maintaining the entire infrastructure in a given operating mode or transferring it to a more advanced state.

Social-psychological methods

Methods and techniques of influence based on the use of social psychology are called socio-psychological methods of management. This management uses two groups of methods that take into account the human factor: sociological and psychological. Sociological management methods implement the patterns of functioning and development of teams and communities. This group includes the following methods:

a) methods of managing social and mass processes;

b) group management methods;

c) methods for managing group phenomena and processes;

d) methods of social regulation;

e) methods of role changes;

f) methods of social regulation.

Psychological methods in management involve the use not only of psychological methods in their pure form, but of the entire complex of psychological knowledge, which in a working situation suggests the right decision, allows us to understand and evaluate what is happening. The main types of psychological management methods include: psychological methods of professional selection and training, psychological methods of organizing and humanizing work, methods of motivating labor behavior. These methods take into account the temperament, character, abilities and inclinations of a person.

1.3 Assessing the effectiveness of municipal government

Municipal governance is designed to create conditions for the formation, development and realization of the potential of the individual, household, municipal economy, business, etc., to minimize the economic dependence of the municipality on the socio-economic policy of government bodies. Municipal governance is designed to create conditions for ensuring self-sufficiency of the individual, household, and small business at the expense of municipally owned property, local budget funds, and property rights of the municipality, in accordance with current legislation, solving issues of local importance.

Local government bodies have the right to independently, under their own responsibility, organize management in order to achieve the goals and objectives set for the municipality. Local government bodies are called upon to solve problems arising on the territory of the municipality. A problem is an actual state of affairs that does not correspond to the desired one.

Effect (lat. effectus) is an action; effective (lat. effectivus) - effective, giving the desired result. The control effect is the ability of the subject of control to purposefully influence an object in order to achieve set goals in changing conditions. The effect rather characterizes the possible multiplication of efforts using budget funds due to their involvement in solving problems included in the list of issues of local importance, based on new opportunities. The effect is more future-oriented.

The goal of management activity is to obtain greater effect at the lowest cost. Therefore, it is necessary to compare the obtained result with the costs, i.e. attribute the effect to costs, compare one absolute value with another. Efficiency in relation to management is understood as the quantitatively determined impact of the “new” management on the results of the activities of the government body, attributed to costs. In this context, efficiency can be considered as a certain assessment of the correctness and incorrectness of the decision made in relation to the result obtained. Economic efficiency is a quantitative assessment of the ratio of effect to costs in specific conditions: savings obtained through optimization and rationalization of activities. Characterizes the savings of effort and money at the moment when operating systems operate under given conditions. Social efficiency is a qualitative assessment of activities that expresses the compliance of the goals of the government with the needs of the population. The social effect is usually understood as the creation of favorable conditions for the population in the territory of the municipality, improving the quality of services provided, as well as the creation of more favorable working conditions for workers performing the functions of surveying the population.

In many cases, the social effect cannot be measured quantitatively, and is determined by the qualitative changes that occur in the territory of the municipality. It is measured by indirect results, for example, reducing service time, increasing the quality of service, and improving the socio-psychological situation.

The complexity of developing and measuring sufficiently objective indicators of the effectiveness of municipal government is determined by:

the specifics of the municipality as a complex management object with a hierarchical structure;

difficulties in formalizing the socio-economic processes occurring on the territory of the municipality;

the difficulty of obtaining reliable initial information;

difficulties in measuring individual indicators that are complex and generalized in nature.

The following components of assessing the effectiveness of municipal government can be distinguished: justification and selection of the system and structure of performance indicators of municipal government, both for the current functioning and for the strategic development of the municipality; determination of criteria and indicators of the effectiveness of municipal government; development of methods for calculating individual indicators.

Rice. 1 System of municipal government performance indicators

Table 1

Efficiency of municipal government

Measuring the effectiveness of municipal government can be: overall social efficiency, the effectiveness of the organization of municipal government and the effectiveness of the municipal government system. The dynamics of the level and quality of life of the population, taking into account the reservations made above, serves as a measure of the overall social efficiency of municipal government. The other two can be decomposed into separate components.

Rice. 2 Types of structural units of local administration

The responsibility of sectoral structural divisions includes issues related to the management of specific sectors (areas) of municipal activity. They perform the functions of a customer for the execution of work and the provision of municipal services. Their main role is manifested at the stage of implementing the goals and objectives of life support and development of the territory.

Chapter 2.Efficiency of public administration

2.1 Methodological approaches to determining effectiveness

Modernization of the public administration system is inextricably linked with the determination of optimal parameters that contribute to the formation of public administration as an open, dynamic social system. To form an effective model of public administration, a comprehensive analysis of the relationship between the political system, state power, civil society institutions, socio-economic standards and socio-cultural norms is necessary. In the context of changes in the political and social environment, the problem of establishing an adequate public administration system capable of effectively responding to the challenges of the external environment is becoming more urgent, and the development of a balanced system of indicators and criteria for the effectiveness of the activities of public authorities becomes obvious.

There are several theoretical and methodological approaches to determining the essence of efficiency. In different fields of activity, the understanding of efficiency has its own characteristics. Thus, in politics, “efficiency” is considered as something positive and desirable, thereby obtaining the meaning of a value characteristic of activity. In relation to the activities of government bodies, this term has become an effective political symbol, capable of organizing public opinion in support of certain proposals. In its most general form, efficiency is understood as: the ability to achieve results; the significance of obtaining a result for those for whom it is intended; the ratio of the significance of this result to the amount of effort spent on achieving it.

In organizational theory and administrative management, efficiency is defined as the ratio of net positive results (the excess of desired consequences over undesirable ones) and acceptable costs. In economics and management studies, there are two approaches to assessing efficiency. The first is related to the assessment of technical efficiency, the second - economic efficiency. Technical efficiency indicators reflect the nature of the activity being assessed: it indicates that “the right things are being done.” Indicators of economic efficiency characterize how the assessed activity is implemented, how productively the expended resources are used, i.e., how “correctly these things are done.” The effectiveness of managerial or administrative work is assessed by determining the relationship between the result obtained and the resources expended.

In studies of the effectiveness of public administration, state bureaucracy and state institutions, several theoretical and methodological approaches can be distinguished that link efficiency with certain factors.

1) Leadership Approach . Representatives of this direction link the effectiveness of an organization with leadership skills, management style, individual characteristics and qualities of government leaders, selection systems, assessment of task performance, motivation and professional development of civil servants.

2) An approach that develops the theory of Weber's rational bureaucracy. From the perspective of this approach, attention is focused on the hierarchical structure, functional specialization, and the presence of clear principles for regulating the professional activities of civil servants, which are considered as necessary prerequisites for the effective functioning of government structures.

3) The approach to performance efficiency associated with the theory of life cycles consists of considering the effectiveness of public administration in conjunction with assessing the influence of constantly and cyclically forming coalitions or pressure groups in government bodies. The nature of decision-making in bureaucratic structures and their effectiveness are considered in the context of the life cycles of organizational development.

4) Within the framework of the concept of professionalism, effective activity is directly dependent on the professionalization of public authorities, the presence of career (professional) officials, and the level of their professionalism and competence.

5) An economic approach that connects increasing the efficiency of government bodies with the presence of a competition mechanism among departments, a system for introducing innovation, as well as political and social accountability of government bodies, primarily to taxpayers.

6) Ecological approach, which emphasizes that the results of the bureaucracy depend on the nature of the external environment (ecology of the organization) and the ability of public authorities to manage changes and innovations in order to adapt to these changes.

7) An approach based on the concept of quality management. Within the framework of this approach, the main focus is on creating a system of continuous improvement of processes and public services in government bodies; involving civil servants in this activity, making maximum use of their creative potential and organizing their group work. Quality management is based on the relationship between the potential of public authorities and performance results with constant correlation with strategic goals and the involvement of employees in quality processes, their training, increasing their competence and motivation.

Analysis of theoretical and methodological approaches to determining efficiency allows us to conclude that, as a rule, economic efficiency and social efficiency are distinguished. The independence of these types of efficiency is, of course, relative, since they are in close unity and interconnection. When analyzing the effectiveness of public administration, the social effect plays a special role. The essence of the social effect is that it must be sustainable, reproducing, progressive, and contain a source for subsequent social development. Russian sociologist G.V. Atamanchuk divides the social efficiency of public administration in general and the activities of public authorities in particular into three types:

1. General social efficiency. It reveals the results of the functioning of the public administration system (i.e., the totality of government bodies and the objects they manage).

2. Special social efficiency. It characterizes the state of organization and functioning of the state itself as a subject of managing social processes. The criteria for this type include:

The expediency and purposefulness of the organization and functioning of the state management system, its large subsystems and other organizational structures, which is determined through the degree of compliance of their control actions with goals objectively based on their position and role in society. It is necessary to establish legislatively what goals each government body should implement and, upon achieving them, evaluate the relevant managers and officials;

Standards for time spent on solving management issues, on developing and passing through any management information;

The style of functioning of the state apparatus;

Regulations, technologies, standards that every manager and civil servant must follow;

The complexity of the organization of the state apparatus, resulting from its “fragmentation”, multi-stage nature and abundance of managerial interdependencies;

Costs of maintaining and ensuring the functioning of the state apparatus.

3. Specific social efficiency. It reflects the activities of each management body and official, each individual management decision, action, and relationship. Among the criteria we can highlight such as the degree of compliance of the directions, content and results of the management activities of bodies and officials with those parameters that are indicated in the legal status (and competence) of the body and public position; the legality of decisions and actions of state authorities and local self-government, as well as their officials; reality of control actions.

The effectiveness of the activities of government bodies is determined not only by the magnitude of the economic effect, but also, first of all, by the socio-political results of the activities of government bodies. To assess the effectiveness of public administration and the activities of public authorities, evaluation technologies and procedures are needed that would be sustainable, objective and allow timely adjustments to the activities of public authorities.

Various theoretical and methodological approaches to determining the essence of efficiency are reflected in conceptual models.

2.2 Conceptual models of efficiency

In management theory, there are several efficiency models: system-resource, target, participant satisfaction model, complex model containing contradictions. The general characteristics of efficiency models make it possible to discover a complex complex, the components of which are targets and the external environment, organizational activities and structure, management technologies and methods for assessing efficiency.

The system-resource model is based on an analysis of the “organization - environment” relationship. Efficiency in this model is the ability of an organization to exploit its environment to acquire rare and valuable resources in order to maintain its functioning. From the perspective of the goal model, an organization is effective to the extent that it achieves its goal.

The participant satisfaction model is based on individual or group assessments of the quality of the organization's activities by its members. The organization is viewed as a cooperative incentive-distributive mechanism, designed to obtain returns from its members by providing adequate rewards for their efforts.

The complex model considers efficiency as an integral and structured characteristic of an organization's activities. It includes assessment of economy, efficiency, productivity, product or service quality, effectiveness, profitability, quality of working life and innovation.

Face multiple and contradictory constraints in the surrounding social environment;

Have multiple and conflicting goals;

Have multiple and contradictory internal and external sources of assessment;

Have multiple and conflicting time frames.

In the model proposed by the American sociologist R. Likert, efficiency is considered as a complex interaction of various factors, among which the dominant position is occupied by human and socio-ecological ones. Thus, according to Likert, effectiveness is determined by three groups of factors:

1. Intra-organizational - the formal structure of the government, the economic base, the professional and qualification composition of civil servants;

2. Intermediate variables - human resources, organizational culture, decision-making methods, level of trust in management, methods of stimulating and motivating activities;

3. Resulting variables - growth or decline in labor productivity, degree of satisfaction of consumer requests.

Analysis of various efficiency models allows us to conclude that each of the considered models has its own advantages and, at the same time, limitations. Various approaches to efficiency are manifested in structured complexes - aspects of organizational effectiveness: functional, structural, organizational, subject-target. The functional aspect includes performance; efficiency; adaptability, i.e. the ability to optimally perform given functions in a certain range of changing conditions; flexibility; efficiency and timeliness of identifying and solving management problems.

The structural aspect of efficiency, as a rule, is associated with the effectiveness of goal setting (comparison of normative and implemented goals, comparison of implemented goals and management results, comparison of the results obtained with objective needs); rationality of the organizational structure (distribution of responsibilities and powers, organization of relationships between employees and departments); compliance of the management system and its organizational structure with the management object; management style (legal forms, management methods and procedures); characteristics of officials (general cultural, professional, personal).

When considering the organizational and institutional aspect of effectiveness, it is important to emphasize that the assessment of effectiveness is derived from what place and what functions the organization performs in the system of interorganizational relations. In this regard, the factors, criteria, and parameters for assessing the effectiveness of public authorities will differ significantly from commercial organizations, since they have different targets and other components of organizational activity.

In the subject-target aspect of efficiency, depending on the targets, the subject of assessment and the compared parameters of organizational activity, types of efficiency are distinguished. These include: organizational, economic, technological, social, legal, psychological, political, ethical, environmental.

From the point of view of efficiency, any aspect (side) or characteristic of the activities of public authorities, considered as a social integrity and system, can be assessed.

Efficiency as an integral and structured characteristic of activity is not only an indicator, but also a process that needs to be organized and managed.

Performance assessment should be a continuous, total process of assessing the activities of government bodies, structural divisions and civil servants, which has as its content: the choice of a system of performance indicators; development of efficiency standards (standards and procedures); performance measurement; comparison of the actual performance status with the requirements of these standards.

The characteristics of the effectiveness of public authorities are multidimensional and depend on the goals formulated by the subject of assessment. At the same time, when using one or another technology for assessing effectiveness, it is necessary to clearly highlight:

1. The subject of assessment (his position, goals and value guidelines);

2. The object of assessment (it can be the entire management system or its individual element, for example, the scope of activity - process, result or consequences; structural and institutional aspect, personnel);

3.Efficiency tools (models, aspects, types and technologies for assessing effectiveness).

To evaluate the activities of public authorities, it is necessary to identify specific ones from the general criteria (economy, efficiency and effectiveness). This point is fundamental in preparing for the assessment. Some flexibility is needed in developing evaluation criteria. The criterion of effectiveness is the signs, facets, aspects of the manifestation of management activity, through the analysis of which one can determine the quality of management, its compliance with the needs and interests of society. A performance indicator is a specific measure that allows you to compare: the actual performance of authorities/employees with the desired or required; activities of the government in different time periods; the activities of various organs in comparison with each other.

Among the main requirements for evaluation criteria are the following:

1. The criteria should lead to the implementation of the assessment objectives and cover all identified problems;

2. The criteria must be sufficiently specific so that the assessment can be carried out in practice;

3. The criteria must be supported by appropriate reasons and/or come from authoritative sources.

In addition, the criteria used to evaluate the performance of authorities must be consistent with each other, as well as with those criteria that were used in previous assessments.

2.3 Integral indicators for assessing the effectiveness of public administration

In international practice, various integral indicators are used to assess the effectiveness of public administration, which were developed by international organizations.

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As noted above, today it would be fair to call public administration in Russia insufficiently effective to provide timely and high-quality public services to the population, as well as to develop the country as a whole in a variety of directions. Unfortunately, at present, the work of Russian government bodies requires profound changes and requires various kinds of recommendations that should be developed in all areas of society. The system for assessing the effectiveness of public administration should also be significantly improved. And only after these and many other transformations will we be able to see the results of the work of government bodies, the effectiveness of which will be expressed in the optimal and timely protection of the interests of the state and the population, various social groups and each person. This expresses the most important aspect of the concept of efficiency of the state apparatus.

In this regard, it is appropriate to recall the assessment that was given to the situation in Russia in the conclusion of the Constitutional Judge of the Russian Federation “On the state of constitutional legality in the Russian Federation,” sent on March 5, 1993 to the Supreme Council of the Russian Federation: “Russia is going through one of the most difficult periods in its history. The economy is in decline. The economic and social rights of citizens are not ensured, and interethnic conflicts continue unabated. Crime is on the rise. Radical movements pursuing unconstitutional goals are gaining strength. The government apparatus is plagued by corruption. Legal nihilism has become widespread even among senior officials of the Russian Federation and its constituent entities. People's dissatisfaction with the inaction of the authorities and confrontation between them threatens to result in a social explosion. The constitutional order of the Russian state is under threat."

The search and implementation of the most important ways to improve the efficiency of public administration is a necessary objective prerequisite for preventing a crisis of power and management and overcoming it, which is vital not only for the further development, but even for the preservation of Russian statehood.

The main problems of ineffective public administration were discussed in paragraph 2.1. Having identified these problems, I would like to identify solutions that make possible a breakthrough in solving the problem of increasing the efficiency of public administration. Solving these problems will allow us to shift a huge layer of problems:

• · revise the principles of financing the state apparatus. Without increasing current budget expenditures, ensure an increase in the efficiency of the work of managers and, on this basis, limit the growth in the size of the state apparatus;
• · develop uniform principles for the job growth of civil servants at the federal and regional levels, including mechanisms for the effective use of the personnel reserve and personnel rotation in a unified public service system;
• · create a regulatory framework and modern infrastructure for the functioning of state power and administration, local government and self-government, training, advanced training and assessment of the work of state and municipal employees;
• · establish clear grounds, as well as procedures for bringing civil servants to disciplinary and financial liability; introduce the institution of disciplinary proceedings.

Mechanisms for increasing the efficiency of public administration are:

• 1. Moderate decentralization;
• 2. Improving the use of the information component of public administration;
• 3. Improving the quality of public services and the mechanism for their distribution;
• 4. The need to include the masses in active life;
• 5. Civil service reform and human resource development.

In order to have the most complete understanding of public administration in Russia at the present stage, it is necessary to consider not only the problems in this area, but also the prospects for its development. It is impossible not to agree that there are a lot of problems in the field of public administration and these problems can be criticized ad infinitum. This is an easy, simple, but useless task if we do not learn from these problems, if we do not learn from the mistakes and delusions of our ancestors and ourselves. The value of history consists only in teaching intelligent life and is completely determined by the ability of people to draw conclusions from it and create the future, relying on its total, both positive and negative heritage. History gives us the basics: knowledge and experience, the rest we must do ourselves.

This means that if in the past public administration did not live up to the expectations placed on it, then something must be done to change its condition for the better in the future.

In this context, it is quite possible to believe that the coming 21st century will impose increased and stringent demands on public administration, for which we must already begin to prepare. There are already grounds to assert that society will encounter conditions that will be characterized, on the one hand, by the limitation of the resources of the planet Earth necessary for human existence, and on the other, by an increase in demand for them due to the expansion of the civilizational needs of people. Evidence of this is the following trends: narrowing, and for some types, depletion of the possibilities for extracting mineral raw materials of the desired quality and volume; the aggravation, and in some places even the crisis, of the natural environment of mankind; complication, and in some places even going beyond the equilibrium limits of demographic processes, increasing anthropogenic pressure on the planet; a decrease in the pace and at the same time an increase in geographical unevenness in the development of production with corresponding social consequences; impoverishment of human culture due to excessive unification and imitation of disseminated and widely used social information.

Of course, the above does not exhaust the “challenges” of the future, which dictate new paradigms of thinking and behavior. There are many more of them, both global and local. But even those mentioned convincingly speak of the great complexity of the problems that face humanity and each individual nation. They have a different property than even those problems that worried people throughout the 20th century. And, accordingly, they require a different approach to public administration.

First of all, the very nature of the problems, their structure, scale and resources involved in their solution are such that only free enterprise, the play of market elements, competition, the dynamics of supply and demand, purely social forces and regulators cannot implement them. There will be a need for strong intergovernmental cooperation within the global community, with thoughtful, coordinated and rational public administration in each country. This is not about replacing or substituting other types of management, such as management, local government, public management and public self-government, free human behavior, but about the performance by public administration of the functions of coordination and integration of management processes on the territory of the country, within regions and continents, throughout planets

Speaking about public administration, it should be noted that today it needs a force that understands the role of the corresponding objective contradictions in the subjective factor, which is prepared for their analysis and resolution, and is capable of authoritatively influencing the consciousness, behavior and activities of people. Historically, such a force has developed in the form of state power and public administration exercised through it. The whole problem lies in the state of this force, in the level and nature of its development. After all, it can be simply rude, soulless, based on sanctions, as well as intellectual, creative, humane, based on knowledge.

Based on the foregoing, it is possible to derive such a perspective of public administration as the “advanced state”, which, with the right approach to the implementation of public administration, can be made the main criterion determining its effectiveness.

The “advanced state” of public administration means that in its system, mainly in its subject, modern scientific thought will be widely used, a free creative search for optimal management solutions will be adopted, the most trained specialists in various areas of management will be concentrated, and there will be an open comparison of management results with social needs, management will begin to serve the interests of society and promote its development.

Public administration in an “advanced state” has the following characteristic features: deep consideration in management decisions and actions of the real possibilities of specific objective conditions and subjective factors, dynamics and trends of their changes; orientation of state policy towards the use of the most progressive methods, forms, mechanisms and resources recommended by world practice and applicable in the modern historical situation for solving pressing problems of people's life; close interaction of scientific thought and management practice, developed public expertise of fundamental government decisions, maintaining the preparedness of management personnel at the level of modern public knowledge; openness and receptivity to new sources and resources of management, the ability to timely master the most progressive mechanisms and methods for solving management problems; flexibility and adaptability of its elements and their systemic relationships, the potential for constant self-improvement, development and improvement of the control influences emanating from it.

The main thing in the “advanced state” of public administration is that among people professionally engaged in it, there always exists intellectual, creative intensity, strong analytical and predictive thinking, a social orientation of professed values, high and sincere personal morality, and skills in democratic management of social processes , consciousness, behavior and activities of people. In many countries, both society (citizens), and political organizations (those in power or aimed at seizing it), and professional managers (officials and managers), and owners (in their various types) have realized that for normal social development it is necessary a well-organized and functioning state apparatus, and in it are the best, most trained and talented representatives of the people. Over time, such awareness will come and take root in Russia, if we begin to seriously reform the sphere of public administration today.

As a result of the analysis of the processes taking place in our society and especially in the public administration system, seven types of resources were identified, the use of which in the future will have a positive impact on ensuring the rationality of public administration.

We are talking about strengthening relationships with society and overcoming the alienation of the state apparatus (authority) from citizens. The authoritarian-bureaucratic system of socialism collapsed, but alienation remained, and in some respects intensified. With the bells ringing about the rights and freedoms of man and citizen, many people found themselves outside of normal public life. Much is said about strengthening the systemic nature of public administration, which at present not only has not become higher, but in many ways has been completely lost. The question is raised about deepening the democracy of public administration, which is necessary in any modern society, because the latter, due to objective reasons, cannot develop outside the framework of democracy. The formation of a new statehood gives rise to hopes, but their implementation in the proclaimed model is very far away. Attention is drawn to improving the information support of public administration, without which, in the context of a huge array of processed management information, it is simply impossible to rationally manage on a societal scale. The development of human potential in public administration is considered as a complex problem, since the personnel of both the subject of public administration and managed objects must be properly trained to effectively conduct management processes. Attention is focused on improving the style of public administration, which, as it were, accumulates and practically implements science, art and management experience. In conclusion, we talk about measuring the effectiveness of public administration, through the mechanisms of which society not only evaluates the results of management, but also generates feedback to identify errors and weaknesses.

For the development of public administration in the future, it is important that those responsible for making decisions on all aspects of development are interested in studying and understanding scientific information. There is a need for an established process of improving public administration.

To summarize, it should be noted that the realities of our society at the present time, the harsh reality to which everyone is forced to adapt, are directly dependent on the effectiveness of public administration and are inextricably linked with it. In any society, there is interaction between the state and society, the quality and level of which is determined by the effectiveness of management policies.

The integrity of the state and the unity of society are the result of effective government, the basis for ensuring their security and the condition for achieving the well-being of the people. Therefore, increasing management efficiency should be one of the priorities when reforming the public administration system.

As the main strategy for improving the activities of state and local government bodies, a results-based management strategy is currently being implemented, providing for their assessment based on performance indicators normatively defined in Decrees of the President of the Russian Federation of August 21, 2012 No. 1199 “On assessing the effectiveness of the activities of executive bodies authorities of the constituent entities of the Russian Federation" and dated April 28, 2008 No. 607 (as amended on October 14, 2012) "On assessing the effectiveness of the activities of local governments of urban districts and municipal districts." In pursuance of the Decrees, the Government of the Russian Federation has developed and approved methods for assessing efficiency (Resolution of the Government of the Russian Federation dated April 15, 2009 No. 322 and Order of the Government of the Russian Federation dated September 11, 2008 (as amended on December 18, 2010) No. 1313-r (as amended on May 15, 2009) .2010)

The current level of development of society in Russia requires state and municipal authorities to pay more and more attention to the formation of a conceptual model for increasing the efficiency of government and state institutions, simultaneously with the introduction of new comprehensive mechanisms for goal setting and goal achievement, as well as result-oriented budgeting.

The effectiveness of the activities of state and municipal executive authorities can be determined, firstly, by the costs of providing services to the population, as well as the quantity and undoubtedly the quality of services, and secondly, by the costs of the resulting result of the professional work of a state civil (municipal) employee or executive body , the level of productivity in the public sector, as well as the consistency of the budget process with the performance of state and municipal executive bodies.

Creating conditions for the effectiveness of public administration is a necessary element in the process of public administration, as it allows us to determine both the quality of the public administration system in the performance of government functions and the provision of public services, and the overall quality of political management in the country.

Analyzing various approaches to determining the effectiveness of the activities of public authorities, we can conclude that it is customary to distinguish between the economic and social efficiency of the activities of public authorities. Since the political effectiveness of public administration is associated with such phenomena as the vertical of power, the distribution of power, legitimacy, the level of democratization of society, economic efficiency is determined by production volumes, the degree of openness of the economy, freedom of doing business and much more. The social efficiency of public administration in practice consists of establishing clear, workable mechanisms of social interconnection.

Following the statement of Grigory Vasilyevich Atamanchuk, a very important place for all government power must be given to the social effect that society receives throughout the entire life cycle of a product, service, or idea. The essence of the social effect is that it must be sustainable, reproducing, progressive, contain not only the result, but also the source and means for subsequent development, act as a constant and strong link in the chain of continuous reproduction of social life.

G.V. Atamanchuk divides the social efficiency of public administration in general and the activities of public authorities, in particular, into three types:

• 1. General social efficiency - reveals the generalized results of the functioning of the public administration system (that is, the totality of government bodies and the objects they manage).
• 2. Special social efficiency - characterizes the state of organization and functioning of the state itself as a subject of managing social processes.
• 3. Specific social efficiency - reflects the activities of individual management bodies and officials, individual management decisions, actions, and relationships.

The analysis carried out allows us to conclude that existing assessment systems are focused on solving problems of local importance; analysis of the situation of public administration, from the point of view of the main directions of administrative reform fixed in its concept, leaves the processes of reforming the civil service system and budget management outside the scope of research attention and other important trends.

Several approaches to the problem of increasing the efficiency of public administration have been developed in the scientific literature. The main ones of these approaches include the following.

• 1. Leadership concept. Representatives of this approach link the effectiveness of public administration with leadership skills, management style, individual characteristics and qualities of heads of ministries and departments, systems for their selection, evaluation, task performance, motivation and professional development.
• 2. Weber's theory of rational bureaucracy. This theory requires that the administrative bureaucracy be separated from politics, have a hierarchical structure, functional specialization, clear work rules and job descriptions, and separation from property, which will create the necessary preconditions for effective work.
• 3. Life cycle theory. The main idea of ​​this school is to show the dependence of the effective work of government departments on the influence of constantly and cyclically forming coalitions or groups within the organization.
• 4. The concept of professionalism. This concept places the effective activities of state and municipal bodies in direct dependence on the presence of career (professional) officials, well trained, with extensive work experience, who are guided by their main mission - serving the state and society, and the departments themselves have a certain level of autonomy and are solution-oriented main national tasks and problems.
• 5. The concept of economic responsibility. The concept is based on an economic approach, which proves that increasing operational efficiency is associated with the presence of a competition mechanism among departments, a system for introducing innovation, as well as political accountability of government bodies, primarily to taxpayers.
• 6. Theory of social ecology. A relatively new theory that argues that the performance of bureaucracy depends on the nature of the external environment (the ecology of the organization) and the ability of public administration to manage change and innovation in order to adapt to these changes.

It is obvious that all these theories and concepts focus on one aspect of the effectiveness of public administration. Apparently, it would be more correct to talk about creating a model of effective public administration. And for this it will be necessary to implement a set of political, legal, organizational, and economic measures.

The first thing that Russian citizens, political organizations (those in power or aspiring to it), professional managers (officials and managers), and property owners need to do is to realize that normal social development requires a well-organized and functioning state apparatus, and it contains the best, most trained and talented representatives of the people.

Historical experience shows that management subjects can put forward reasonable goals (what to strive for, what to want), form the necessary management functions for this (how to achieve goals), create working organizational structures (mechanisms for interaction between people) only if they better and higher developed than managed objects. You cannot lead controlled objects (influence them) if you don’t know why, where and how to lead them.

It is impossible to achieve this goal without creating a rational system for selecting and promoting civil servants. The existing system of selection and promotion of government officials is not able to attract the most trained and talented Russians to public service on a mass scale.

One should also take into account the fact that the most trained and talented representatives of the people must be adequately paid for their work. Here is what Guy Brabant, President of the International Institute of Administrative Sciences, said about this problem: “Too low pay for civil servants is fraught with two dangers. One of them (and this is typical for Moscow, Paris, and Mexico City) is the outflow of the best personnel to the private sector. The second danger is corruption, which is clearly present where employees who control citizens or enterprises receive much less than the persons they control." As experts emphasize: “Cheap administration is the most expensive administration in the world. You can save money on management personnel, on technical equipment of administrative bodies, but for such savings

the state has to pay exorbitant prices.”

But the costs of increasing salaries for officials should be proportional to the results of their activities. Managers should be paid not for the process, but precisely for the result of their work, setting the salary in a certain proportion to the minimum or average salary in the country or subordinate territory.

In addition, Russia needs to adopt the experience of developed countries, where programs for improving the state apparatus are constantly being developed and implemented, various structures are created for these purposes in the form of ministries, departments, agencies, etc. In developed countries, almost every political party in its program documents has a section dedicated to improving the public service.

Effective public administration is impossible without a long-term strategy for the socio-economic, political-legal and spiritual-moral development of the country, its priorities, and rational mechanisms for solving current problems.

An effective model of public administration can only be built by a society capable of self-organization and not subject to manipulation, aware of the essence of existing problems in public administration and seeing rational ways to solve them.

Increasing the efficiency of public administration requires changes in the philosophy of public administration. Subjects of public administration need to have a clear understanding of what is happening inside the managed system itself, between the managed system and its external environment, and what government bodies are doing.

In modern conditions, subjects of public administration are required to have a clear vision of promising paths for the development of the state and society. Outstanding results are achieved by seizing opportunities, not by solving problems. When solving problems, one can only hope to restore the previous state or eliminate restrictions in achieving a result. To achieve outstanding results, resources must be directed toward seizing opportunities rather than solving problems. The main thing is not how to manage, but how to identify long-term goals and concentrate resources and forces on them. Concentration is the key to real socio-economic results. Today, no principle of efficiency is violated as consistently as the principle of concentration. This is also typical for the activities of government bodies. They tend to try to do a little bit of everything.

For the sustainable development of the state, the competence of civil servants alone is not enough; a leading position is what leads to the sustainable development of the state.

The effectiveness of the activities of government bodies and civil servants consists in ensuring that they achieve socially significant goals related to the needs and interests of the people in the shortest possible time at the lowest cost of economic, financial, labor, natural and other resources. Or, more precisely, the effectiveness of government bodies and civil servants is determined not by how much has been done, but by whether everything has been done that is necessary for the normal life of the majority of the people.

Statistical and sociological data indicate the low efficiency of government agencies and civil servants in modern Russia. In this regard, to increase the efficiency of government bodies and civil servants, it is necessary to implement a set of political, legal, organizational and economic measures.

The effectiveness of government bodies and civil servants depends critically on the quality of the country's political leadership, its political consciousness and responsibility, and ability to lead.

SELF-TEST QUESTIONS

• 1. Compare the concepts of “efficiency of public administration” available in the scientific and educational literature.
• 2. What indicators are used to assess the effectiveness of state authorities and local government?
• 3. What factors influence the effectiveness of public administration?
• 4. Formulate the main directions for increasing the efficiency of public administration.
• 5. Analyze philosophical approaches to effective public administration.

• Lobanov V.V. Public administration and public policy: textbook. St. Petersburg, 2004. pp. 288-289.
• Public service. Search for efficiency. Foreign experience. Vol. 13. M., 1996. P. 26.sh Ibid. P. 21.

Public administration is the practical, organizing and regulating influence of the state on the social life of people in order to streamline, preserve or transform it, based on its power. Currently, several theoretical and methodological approaches to determining the essence of efficiency can be distinguished. In different fields of activity, the understanding of efficiency has its own specific characteristics. In its most general form, efficiency is understood as: the ability to achieve results; the significance of obtaining a result for those for whom it is intended; the ratio of the significance of this result to the amount of effort spent on achieving it. For example, in politics the term “efficiency” is considered as something positive and desirable, thereby obtaining the meaning of a value characteristic of activity. In relation to the activities of government bodies, this term has become an effective political symbol, capable of organizing public opinion in support of certain proposals. A comprehensive assessment of the effectiveness of government agencies should be carried out taking into account the following two aspects. The target aspect - efficiency is assessed based on the dynamics of progress towards the standard values ​​of target indicators of socio-economic development in accordance with the “costs - results” criterion. Evaluation criteria: degree of progress towards current goals; dynamics of indicators characterizing the general goals of socio-economic development; compliance with environmental and social development constraints; effective GDP growth; quality of life of the population; the effectiveness of projects and programs implemented with the participation of the government. Functional aspect - performance assessment is based on indicators of the quality of execution of basic management functions and the availability of conditions for their implementation. Evaluation criteria: quality of the target strategic planning and management system; legislative, regulatory and methodological support; availability and quality of work of functional units of target planning and management; availability of an information and analytical system for assessing the socio-economic situation; the presence of informal market infrastructure institutions; availability of a system of training and advanced training for employees of government bodies. Recently, the effectiveness of public administration is often considered from the perspective of two measurable components: technical efficiency and economic efficiency. The technical efficiency of public administration is determined by the degree to which the set goals are achieved, taking into account public interests. It reflects the compliance of public administration with the requirements of the external environment, taking into account the impact it has on the state of society, and is associated with quantitative and qualitative indicators, the important characteristics of which are their efficiency and regularity. The economic efficiency of public administration is defined as the ratio of the cost of volumes of services provided to the cost of volumes of resources attracted for this purpose. It reflects the internal state of affairs in the public administration system, its own activities. As an economic category, economic efficiency reflects the relationship between achieving the desired result and the costs incurred. It is efficiency that most characterizes the level of economic development of a country, directly or indirectly reflecting the quality, condition and level of use of all types of resources involved in the production process. After defining the concept of “efficiency of public administration”, it is necessary to familiarize yourself with the criteria for the effectiveness of public administration.

The concept of “efficiency criterion” of public administration denotes a characteristic or a set of characteristics on the basis of which the effectiveness of the management system as a whole, as well as individual management decisions, is assessed. The specific meaning of the term “assessment” is the ambiguity of the procedure for people to evaluate the results and consequences of the same actions and decisions of the managing subject. Assessing the effectiveness of public administration is necessary not only for state authorities, but also for society, which allows monitoring the quality of the activities of state institutions. And for civil servants - improvement of management activities. The objects of efficiency assessment are various results of management activities: means of subsistence, types of social relations, processes, specific acts of activity, etc. They are called “object values”. Objects are assessed, i.e. their social significance is determined in accordance with ideals, principles, goals, concepts, norms, etc. These phenomena are classified as “subjective values”. They should be distinguished from “subject values” (objects of assessment). The effectiveness criteria are based on the principles of public administration, since they are objectively determined regulatory requirements developed by the practice of social and public administration, and means of regulating the relationship between the goals and results of management activities. The principles express the requirements of objective control laws; their action is associated with the implementation of the functions of the management system and stimulates the initiative and initiative of the controlled masses. Criteria for the effectiveness of public administration are formed on the basis of a system of subjective values ​​expressed in the ideology of the social-state system, in the strategic goals of the ruling entity - the political course, in the concepts, political guidelines and norms of the management system, behind which there are common national-state interests. Often the interests of the ruling classes or dominant national-ethnic groups are presented as such. The above explains the relativity of the evaluative criteria of effectiveness, their dependence primarily on the type of political system, as well as the specific historical conditions in which it operates. Values, goals, concepts, principles of public administration, the regulatory framework of the management system, and finally, public needs and interests - all these elements of criteria for the effectiveness of public administration are variables determined by the social and state system, the political regime and the specific environment (historical and natural) in which the political community lives. Together, they constitute a mechanism for responding to the behavior of the state as a community of people to changes in the external environment and its internal state, a system of control over external and internal processes of change. The wider the scope of control, i.e. rational influence, the higher the management efficiency. But control, rational management of society and the environment cannot expand indefinitely. In organizational theory and administrative management, efficiency is defined as the ratio of net positive results (the excess of desired consequences over undesirable ones) and acceptable costs. In economics and management studies, there are two approaches to assessing efficiency. The first is related to the assessment of technical efficiency, the second - economic efficiency. Technical efficiency indicators reflect the nature of the activity being assessed: it indicates that “the right things are being done.” Indicators of economic efficiency characterize how the assessed activity is implemented, how productively the expended resources are used, i.e., how “correctly these things are done.” The effectiveness of managerial or administrative work is assessed by determining the relationship between the result obtained and the resources expended. In studies of the effectiveness of public administration, several theoretical and methodological approaches can be distinguished that link effectiveness with certain factors.

• 1) An approach based on the concept of leadership. Representatives of this direction link the effectiveness of an organization with leadership skills, management style, individual characteristics and qualities of government leaders, selection systems, assessment of task performance, motivation and professional development of civil servants.
• 2) An approach that develops the theory of Weber's rational bureaucracy. From the perspective of this approach, attention is focused on the hierarchical structure, functional specialization, and the presence of clear principles for regulating the professional activities of civil servants, which are considered as necessary prerequisites for the effective functioning of government structures.
• 3) The approach to performance efficiency associated with the theory of life cycles consists of considering the effectiveness of public administration in conjunction with assessing the influence of constantly and cyclically forming coalitions or pressure groups in government bodies. The nature of decision-making in bureaucratic structures and their effectiveness are considered in the context of the life cycles of organizational development.
• 4) Within the framework of the concept of professionalism, effective activity is directly dependent on the professionalization of public authorities, the presence of career (professional) officials, and the level of their professionalism and competence.
• 5) An economic approach that connects increasing the efficiency of government bodies with the presence of a competition mechanism among departments, a system for introducing innovation, as well as political and social accountability of government bodies, primarily to taxpayers.
• 6) Ecological approach, which emphasizes that the results of the bureaucracy depend on the nature of the external environment (ecology of the organization) and the ability of public authorities to manage changes and innovations in order to adapt to these changes.
• 7) An approach based on the concept of quality management. Within the framework of this approach, the main focus is on creating a system of continuous improvement of processes and public services in government bodies; involving civil servants in this activity, making maximum use of their creative potential and organizing their group work. Quality management is based on the relationship between the potential of public authorities and performance results with constant correlation with strategic goals and the involvement of employees in quality processes, their training, increasing their competence and motivation. Depending on what is recognized as the main sign of effectiveness, three groups of criteria are distinguished: value-rational, goal-rational and pragmatic. Determining the effectiveness of management based on the compliance of the results of decisions and their consequences with the values ​​​​recognized by the state, expressed in the political strategy, we call the value-rational criterion. If the compliance of the results of decision execution with the set goals and practical tasks expressed in government programs and plans is taken as an indicator of management effectiveness, then such a criterion is called goal-oriented. Measuring management efficiency according to the “input-output” or “input-result” type is characterized by a pragmatic criterion. These management criteria are general, as they can be used when assessing decisions related to the activities of a managing entity in any area of ​​public life. At the same time, each type of criterion can be applied to the analysis of decisions at various levels, scales and significance for the state and society. The value-rational criterion will help politicians and theorists assess the effectiveness of global, system-wide decisions of government and top-level management, the results and consequences of which are manifested in profound changes in the entire society or in many of its spheres. It is incorrect to judge the effectiveness of such decisions by individual positive results, as well as by identified losses. Both are felt and comprehended by the ruling subject and the governed gradually, often over a long period. Moreover, it is impossible to express these results and expected consequences in any exact numerical values. Only by considering what happened, what is happening and possible results through the prism of the value system, the analyst will be able to determine the positive or negative effectiveness of these large-scale management actions of a state entity (M. Weber). The goal-oriented criterion is also a general, comprehensive one, but it is focused on assessing the effectiveness of management according to fairly specific indicators that characterize the immediate results of achieved goals, solved problems, implemented strategies and programs, taking into account the government resources used. The integral indicator - the correspondence of the results to the interests of the state and society - is also more specific than “compliance with values”. The noted assessment indicators can be recorded using quantitative methods and qualitative characteristics. For example, indicators of the level and quality of life, political activity of citizens - voters, health status. The effectiveness of many government decisions at the highest and regional levels cannot be measured quantitatively, however, even in such situations, the latter can play a supporting role. The pragmatic criterion of effectiveness involves assessing the effectiveness of individual specific decisions of governing bodies at different levels. However, primitive pragmatism motivated by so-called common sense and the ubiquitous scarcity of resources should be avoided here.

Analysis of theoretical and methodological approaches to determining efficiency allows us to conclude that, as a rule, economic efficiency and social efficiency are distinguished. The independence of these types of efficiency is, of course, relative, since they are in close unity and interconnection. When analyzing the effectiveness of public administration, the social effect plays a special role. The essence of the social effect is that it must be sustainable, reproducing, progressive, and contain a source for subsequent social development. Russian sociologist G.V. Atamanchuk divides the social efficiency of public administration in general and the activities of public authorities in particular into three types:

• 1. General social efficiency. It reveals the results of the functioning of the public administration system (i.e., the totality of government bodies and the objects they manage). Types of criteria for overall social efficiency:
  • · level of labor productivity correlated with global parameters for its corresponding types;
  • · the rate and scale of growth of national wealth, calculated according to the UN methodology;
  • · the level of national well-being of people per capita and with a breakdown of income of various categories, as well as in comparison with the standards of developed countries;
  • · orderliness, safety and reliability of social relations, their reproduction with increasing positive results.
• 2. Special social efficiency. It characterizes the state of organization and functioning of the state itself as a subject of managing social processes. The criteria for this type include:
  • · the expediency and purposefulness of the organization and functioning of the state management system, its large subsystems and other organizational structures, which is determined through the degree of compliance of their control actions with goals objectively based on their position and role in society. It is necessary to establish legislatively what goals each government body should implement and, upon achieving them, evaluate the relevant managers and officials;
  • · standards for time spent on solving management issues, on developing and passing through any management information;
  • · style of functioning of the state apparatus;
  • · regulations, technologies, standards that every manager and civil servant must follow;
  • · the complexity of the organization of the state apparatus, resulting from its “fragmentation”, multi-stage nature and abundance of managerial interdependencies;
  • · costs of maintaining and ensuring the functioning of the state apparatus.
• 3. Specific social efficiency. It reflects the activities of each management body and official, each individual management decision, action, and relationship. Among the criteria we can highlight such as the degree of compliance of the directions, content and results of the management activities of bodies and officials with those parameters that are indicated in the legal status (and competence) of the body and public position; the legality of decisions and actions of state authorities and local self-government, as well as their officials; reality of control actions.

Along with the general criteria of effectiveness in science and practice, those specific to each sphere of management are used: political, social, economic, etc. The content of each of them also includes a general requirement: compliance of the results of management activities with certain state values, goals and norms, principles of management and social interests. The specificity is determined by the essential signs of efficiency, manifested only in this type of management. For example, for political management, this is the level of development of the political activity of the masses and the protection of human rights and freedoms; for social - ensuring improved quality of life, etc. The general criterion is specified and supplemented by a special one, used to determine the effectiveness of management of individual spheres of public life. Thus, the theoretically known definition of the effectiveness of management activities as the ratio of “net positive results (the excess of desirable consequences over undesirable ones) and acceptable costs” can be successfully developed when assessing decisions on specific socio-economic issues related to individual organizations and industries. The effectiveness of public administration is manifested at all levels of system functioning: from an individual organization to a local society, from a local level to a regional level, from a regional community to a social system and its political organization - the state. At each level, efficiency is measured by its own criteria that characterize the relationship between goals and results, and on another level, the correspondence of results to the interests of managers and managed, expressed in goals. Public administration, as we have emphasized more than once, is focused on purposefully changing the managed public object in the interests of the latter and the state. The effectiveness of management activities in any area is ultimately measured by the extent to which the goal is achieved. Within the framework of the general criterion, which serves as a guide for determining the effectiveness of numerous individual decisions on specific issues, pragmatic criteria developed in the theory of social management are applied. Atamanchuk G.V. Theory of public administration. Publisher: Omega-L, 2004. - P.240

One methodological requirement should be emphasized: the effectiveness of each specific decision must be determined in accordance with a criterion determined by the content of the decision and its results. We need a specific approach to the selection of criteria and taking into account the specific situation of decision making and execution. So, if we are talking about a decision related to the extraction of some resources by a subject or their distribution, then the application of the criterion “resource supply - costs - results” - in this case needs significant adjustment. The result of the execution of this decision is the acquisition of the required resources. Costs are the use of a certain type of capital: political, social, informational, etc. Most likely, the effectiveness of this type of management action should be determined according to the “goal - result - interests” model or according to the “cost-benefit” criterion, on the basis of which decisions on the allocation of resources are made. Assessing the effectiveness of certain government programs (economic, social or cultural development) is possible using the following indicators: the volume of work performed and activities carried out, correlated with expenses; implementation of officially established standards for the consumption of goods and services; the level of satisfaction of the needs and requests of the population for certain services and necessities of life, which is recorded, in particular, by surveys of the population and analysis of complaints and suggestions from citizens; dynamics of growth of budget allocations, etc. Effective specific decisions of government organizations are, therefore, optimal. Those that ensure the implementation of generally significant goals, but are not associated with high costs; those that bring significant gains to one side, but do not require large losses for the other side. An optimal solution is one that produces significant positive results for all parties (“super-optimal solution”); a solution that ensures the achievement of a combination of conflicting actions, interest groups, the practical elimination of specific sources of conflict or the settlement of the latter Holzer M, Productivity, public administration and democracy. P.36. To increase the efficiency of public administration of certain spheres of public life in Russia, it is necessary to introduce a systematic assessment of their activities. The implementation of the goals and objectives of a systematic assessment will allow: to maximally orient public administration in various areas towards achieving goals and complying with the restrictions of economic development; to form an organizational and legal mechanism for achieving them that is adequate to the set goals; ensure reporting and systematic assessment of the results of program-targeted activities, development on its basis of measures to correct the action; increase the effectiveness, productivity, efficiency and quality of management activities in any area. Thus, it seems necessary to create an effective system of public management of the processes of socio-economic development, taking into account modern requirements for ensuring transparency and efficiency of the activities of state institutions