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Functions of the public service. Federal State Civil Service: Essence, Structure Management and Financing of the Civil Service

Divorce
25.12.2020

1. System-structural analysis of the civil service.

2. Typology of public positions.

3. Structure and functions of the federal civil service.

4. The effectiveness of the public service.

System-structural analysis of the civil service

Public service - specialized activity of civil servants, which is a mechanism for implementing the political will of the state.

The public service is seen as social institution, organizational institution and information and communication system. According to the content, the goals of the public service can be: social, economic, political, organizational and legal.

Social goals of public service:

1. ensuring and exercising the powers of the state in the field of social protection of the population;

2. creating conditions for communication between the state apparatus and society;

3. solution of national management tasks;

4. ensuring a certain standard of living for the population.

Economic goals associated with increased efficiency state regulation, support for entrepreneurship, reducing the cost of maintaining the administrative apparatus.

Political goals aimed at strengthening rule of law, to create conditions for communication between the state apparatus and the population.

Organizational Goals characterize the expected results of the execution and provision of the powers of the relevant state bodies, characterize the professionalism of the state power, focused on improving the norms and rules in the public service, on improving the organizational structure of the state apparatus.

Legal purposes reflect the intended results on the implementation of relevant legislation by civil servants.

Functions of the public service:

1. as a legal institution:

– implementation of laws;

– development of laws, normative legal acts;

– compliance with the legislation on public service;

– regulation of the legal status of a civil servant.

2. as a social institution:

– production of state social services;

– realization of interests, rights and freedoms of citizens;

- resolution of social conflicts;

– effective solution of social problems of the state.

3. in relation to public law relations between the state and employees:

– legal and social protection civil servants; creation of conditions for professional growth;

- definition legal regulations passing public service.

4. organization of public service as a professional activity:

– implementation of public administration;



- organization of the apparatus for the implementation of the powers of state bodies;

– Ensuring responsibility and discipline of civil servants.

As a social institution, the public service is a historically established stable form of organizing joint activities of persons in the service of the state.

Acting as an element of the social structure, the civil service has a number of features:

1. public service is a sphere of professional activity;

2. public service acts as a link between the state and the citizen;

3. has a social orientation;

4. is not only a legal but also an ethical system.

The social nature of the functioning of the public service is manifested through its functions:

1. the function of social organization (the public service is a model of organization, has a regulating effect on all institutions of society, while the principle of rationality is achieved through professionalism, competence, consistency of all parts of the public service);

2. the function of social communication (through the channel of the public service, public opinion is studied, the attitude of a citizen to various state acts, programs, projects for the implementation of state policy, as well as local and regional features are taken into account in its implementation);

3. function social information(it is the public service that is the carrier of information, therefore relations arise in the public service system regarding the possession of information and its use).

The implementation of the above two functions allows us to conclude that the public service acts as an information and communication system.

4. function of regulation (on behalf of the state, the civil service regulates relations in the labor market, housing, etc.);

5. educational function.

Public service as an organizational institution- this is an autonomous specialized group of people, a set of organizational norms, methods, rules and standards, as well as a means of uniting and regulating the activities of civil servants.

public service is a set of processes or actions that lead to the formation and improvement of the relationship between parts of the system (from the point of view of the process approach).

public service- this is internal order, consistency, interaction of more or less differentiated and autonomous parts of a given system (from the point of view of a system approach).

public service- this is an association of people who jointly implement some programs and act on the basis of certain rules and procedures (in terms of the definition of an organization).

Organizational principles of public service:

1. fundamental or initial principles:

- the supremacy of the Constitution of the Russian Federation and federal laws over other normative acts, job descriptions in the performance of their duties by civil servants and ensuring their prev;

- division of state power into legislative, executive and judicial;

- the unity of the system of state power;

- delimitation of jurisdiction between the federation and its subjects.

2. the principle of a professional nature:

- equal access of citizens to public service in accordance with their abilities and professional training;

– the principle of professionalism and competence of civil servants;

- the principle of stability of civil servants and the ranking of positions and titles.

3. organizational principles:

- the unity of the basic requirements for public service;

– the principle of obligation for civil servants of decisions taken by superiors government organizations in accordance with the legislation of the Russian Federation;

- the principle of publicity (control over the activities of the public service);

- the responsibility of civil servants for the preparation and decisions they make;

- non-partisan state power;

separation of religious institutions from state power.

The main aspects of public service as an organizational institution:

1. orderliness of the public service;

2. consistency of the civil service;

The tasks of the public service as an organizational institution include:

1. creation of conditions for professional growth;

2. implementation of the solution to the problems of labor stimulation.

Division of managerial labor- this is the isolation of certain types of work and their assignment to individual workers.

Forms division of labor:

· functional(characteristic is the division of managerial labor in terms of content, role and place in the hierarchy and performance of managerial functions);

· hierarchical;

· technological(involves the division of the management process into separate stages);

· professional(represented by the content of professional requirements that characterize each position, a certain specialization of positions).

Position- this is an established social role performed by a person in state, public, private organizations, enterprises and institutions.

There are two main job levels:

1) strategic(management level). This includes positions of the highest form of management activity.

2) proper managerial or tactical level, i.e. These are the lower levels of management.

When designing a position, it is necessary to take into account its bases:

1) activity basis. It constitutes the content of its main tasks, functions or activities.

2) legal basis, includes a set of powers and responsibilities that this position is vested with.

3) information and communication basis, which reveals the position in the system of information, communicative relations both within the organization and outside it.

4) Material, characterizes the entire volume of material costs associated with this position. This includes the financial allowance of a civil servant; all expenses for social benefits and guarantees; expenses related to retirement and medical care(insurance); expenses for equipping the workplace of a civil servant and ensuring his activities in this particular position.

The first three bases constitute a functional position.

Any position can be characterized in terms of requirements:

1) professional qualification requirements(to experience: general, specialty, knowledge of laws, normative documents);

2) personal qualities and abilities:

a) socio-psychological;

b) medical and physiological.

The documents governing the position:

1) job description(it is determined what a civil servant should do, the method of implementation is not prescribed);

2) job description(contains rules, prescriptions of what to do and how to do it, a more regulated, more rigid clear document);

3) job description.

Typology of public positions:

The typology of public positions determines their relationship with powers bodies of state power both at the federal and at the level of subjects of the federation. On this basis public office subdivided into categories.

With a new approach:

According to Federal Law No. 79 of July 27, 2004 “On the State Civil Service of the Russian Federation” and the Presidential Decree of December 31, 2005 “On the Register of Positions of the Federal State Civil Service”, public civil service positions are classified as follows:

1) Leaders(these are the positions of heads and deputy heads of state bodies and their structural divisions; positions of heads and their deputies territorial bodies federal bodies executive power and their structural subdivisions, heads and their deputies of representative offices of state bodies and their structural subdivisions, who are replaced for a certain term of office or without limiting the term of office);

Requirements:

but) professional knowledge(Constitution of the Russian Federation, FKZ, Decrees of the President, Decrees of the Government, etc., knowledge of the basics of management and organization of labor, forms and methods of automated control systems, work schedule, labor protection rules, fire safety);

b) professional skills(These are professional skills in leadership, business negotiations, public speaking, interaction with other bodies, control, analysis, forecasting decisions, demanding, constructive criticism use of modern office equipment, software products, recruitment methods, presentation of documents in a “good stylistic” way, etc.)

These requirements apply to the other three categories as well.

2) Assistants (advisers)- positions established to assist persons holding public positions, as well as heads of state bodies, heads of territorial bodies of federal executive bodies, heads of representative offices of state bodies in the exercise of their powers and replaced for a certain period, limited by the term of office specified persons or leaders.

Requirements (established by Order of the Ministry of Justice):

but) professional knowledge(The same);

b) professional skills(providing solutions to the tasks set by the manager, their prompt solution, work planning, systematic improvement of professional knowledge, work with documents).

3) Specialists- these are positions established for the professional provision of the implementation of state bodies of their tasks and functions and replaced without limitation of the term of office.

Requirements:

but) professional knowledge(The same);

b) professional skills(work in the area corresponding to the direction of activity of this structural unit, examination of draft regulations, effective planning of working time, analysis and forecasting, use of best practices, preparation of business correspondence).

4) Providing specialists- positions established for organizational, informational, documentation, financial, economic, economic and other support of the activities of state bodies and replaced without limitation of the term of office. These are employees who provide the activities of managers and specialists.

Requirements:

but) professional knowledge(official schedule, procedure for working with official information, etc.);

b) professional skills(ensuring the fulfillment of tasks and functions for organizational, informational, financial, economic and other support for the performance of activities, performance discipline, record keeping, the ability to work with modern software products).

All positions of the civil service are divided into groups: higher, main, leading, senior, junior. Groups 1-2 correspond to managers, groups 1-3 to assistants, groups 1-4 to specialists, groups 2-5 to specialists.

According to the law "On the Fundamentals of Civil Service in the Russian Federation", the following qualification categories are established:

Acting State Counselor;

State Counselor;

Advisor to the Russian Federation;

Civil Service Advisor;

Public Service Referent.

Each of the categories is divided into three classes: the highest fifth group corresponds to a real state adviser, the fourth group - to a state adviser, the third - to an adviser, etc. (the youngest - to the civil service assistant).

When designing the apparatus of state authorities, it is recommended certain ratio positions: the number of leaders - no more than 10%, senior - no more than 40%.

By number:

Department 35 units and more;

Management 20 units and more;

Department 10 units and more;

Department within a department or department at least 5 units.

The structure of the department must have at least three structural subdivisions (departments).

additional information: In 2004, in the Russian Federation, there were 9 employees of public authorities per 1000 people, in the Chita region - 12. Over the past 10 years, the number of LSGs in the Russian Federation has increased by 300 thousand people. In the Russian Federation, the number of employees of government bodies increased by 10%, in the Chita region - by 35%.

Structure and functions of the Federal Public Service

The federal public service is an administrative activity to ensure the powers of federal state bodies. On the organizational side, it acts as an administrative and managerial system that unites the apparatuses of the three branches of government.

It consists of:

Civil Service of the Houses of the Federal Assembly

Public service government

Public service of ministries and departments

Public service of the central election commission

State service of the Accounts Chamber

Three federal courts and prosecutors

The federal public service includes two levels of subsystems:

Primary level forms the civil service of the three branches of government

Secondary the level is formed under the influence of differentiation of the three subsystems of the primary level.

public service federal legislative authorities are represented by two subsystems of the secondary level (the public service of the Federation Council and the public service of the State Duma)

public service federal executive authorities includes several dozen subsystems of the secondary level (the public service of the President of the Russian Federation, the public service of the government, the public service of ministries and departments)

public service federal judiciary power consists of four subsystems of the secondary level (Civil Service, Constitutional Court, Supreme Court, Supreme Arbitration Court, Prosecutor General's Office)

Peculiarities:

I. The functions of the civil service are of a coordinating nature:

1) information and analytical

2) organizational and technical

3) documentary support

4) legal support

5) financial and economic support

6) staffing

7) expert

8) preparation of procedures for the adoption and implementation of management decisions.

II. The civil service of the three branches of government are not subordinate to each other, and interact on the principles of confederalism.

III. The public service has a normative character.

IV. The civil service does not claim any advantage between the various branches of government.

Features of the civil service of the federal legislature:

There are usually four types of parliamentary administration:

Centralized

Partially centralized

Partially decentralized

Decentralized

On the organizational side, public service upper house of Parliament (Federation Council) can be divided into four groups of devices:

1) leadership of the administrative apparatus of the Federation Council

2) secretaries

3) central office

4) apparatuses of committees

All of them operate on the basis of the principles of dual subordination.

public service lower house ( The State Duma) divided into five groups of devices:

1. Apparatuses of factions and deputy groups;

2. staffs of committees and commissions;

3. secretariats;

4. central office;

5. case management.

The structure of the civil service of the federal executive power:

The highest level of the public service of the executive branch is the public service of the President of the Russian Federation, the public service of the Government is weakly subordinated to it.

The lowest level is the civil service of ministries and departments, which are directly subordinate to the civil service of the Government, and through it the civil service of the President.

The goals and objectives of the public service cause a lot of controversy. The question of the method of setting goals in management is complex and practically not developed, therefore, we will consider the goals of the public service as a form of reflection of socially important problems in regulations.

Due to the fact that in modern Russia there is no definite hierarchy of goals and theoretical explanations are few, those that are often contradictory.

According to Yu. Starilov, the main goal of the civil service is the practical implementation of the functions of the state, the solution of its tasks, the preservation of the well-being of citizens, the satisfaction of public interests in accordance with the Constitution of the Russian Federation and regulations.

A.F. Nozdrachev, on the contrary, describes the goals of the civil service as follows:

  • management of the work of the state apparatus;
  • formation of requirements for public positions;
  • determining the level of training of civil servants;
  • analysis and evaluation of the efficiency of the state apparatus;
  • providing guarantees for the provision of civil servants.
Remark 1

In this approach to determining the goals of the civil service, the emphasis is on the administrative needs of officials, and the needs and interests of people are not taken into account.

Summarizing what has been studied, we can distinguish several signs of the goals of the civil service for their classification:

  • by priority level:
    • strategic;
    • tactical;
  • according to the results:
    • final;
    • preliminary;
  • by deadline:
    • long;
    • medium;
    • short;
  • by region public life:
    • economic;
    • political;
    • social;
    • spiritual.

Tasks of the public service

Due to the fact that civil servants take part in the preparation of draft regulatory documents, management plans, introduce initiatives for changes in the composition of state bodies, provide public services, the following can be distinguished among the main tasks of the civil service:

  • fulfillment of the tasks set by the Constitution of the Russian Federation;
  • development of a country development strategy;
  • search for personnel capable of implementing the country's development plan;
  • formation of the composition of state power;
  • making decisions on important current issues of the life of the country;
  • protection of rights, freedoms and legitimate interests citizens, ensuring the proper development of the human personality;
  • creation of the necessary conditions for the performance of the functions of state bodies.

VD Grazhdan believes that the civil service in the public administration system performs two tasks simultaneously. The first task addresses the issue of supporting the political leadership in administrative (apparatus) work; and the second - in the study of the difficulties that arise in the management and representation of the interests of all segments of the population.

Remark 2

Thus, the tasks for each type of public service are enshrined in regulatory legal acts.

Public Service Functions

The concept of "civil service functions" and their types are also not studied and formulated in regulatory legal acts.

Some researchers refer to the functions of the public service as independent and certain types official activity. Others talk about practical compliance with the law.

But in a general sense, we can say that the functions of the civil service include the main areas of influence of civil servants on public relations to achieve the goals and objectives of the state.

Based on the fact that the bodies of state power and state administration belong to the civil service, their functions are the same. This provision is based on the fact that the powers of public authorities in accordance with the law Russian Federation provided by the public service.

The functions performed by civil servants can be divided into general and special.

The general functions of the civil service include:

  • management of affairs in a general sense;
  • determination of the correct model for the development of the state and society, its implementation;
  • analysis of the nature of the development of society and forecasting changes;
  • analysis of decisions made and anticipation of the results of these decisions in terms of the pace, indicators and processes of development of society;
  • organization of the correct work of state bodies in the provision of public services;
  • compliance with the actual indicators of the development of society and the state with the planned ones;
  • accounting for these indicators;
  • harmonization of the activities of various state bodies to achieve the common goals and objectives of the state;
  • collection, receipt, processing, analysis of information necessary for the implementation state activities.

Recently, the civil service is perceived by society as a body that provides public social services, in particular, this applies to education, health, security, etc. In this regard, one can take into account such a function of the public service as the production of public services.

Based on the fact that the civil service forms in society a respectful attitude towards the human person, state and law bodies, then with the dynamic development of society, the civil service should perform an educational function.

Civil servants participate in the development of programs, laws and political decision-making, balance the relationship between different social strata population in all areas of society. Therefore, one of the functions is regulatory.

The special functions of the civil service include:

  • creation of bills, tk. civil servants are involved in this process;
  • application of laws in society;
  • protection of the law. To perform this function, control and supervision bodies have been created, methods of coercion are used.

In the provisions on structural divisions all authorities and job descriptions functions of civil servants are specified and tasks are specified.

Remark 3

The use of legal, economic, organizational and administrative, socio-psychological methods make it possible to perform the functions of the public service.

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Modern scientists believe that humanity reached the peak of its socio-political self-organization when the first powers appeared. After all, state power is the most complex formation of people. It should also be noted that its existence largely depends on human activity. In other words, there should always be subjects that serve the state power, and also actually implement it in a real policy. Initially, such people did not have a certain social or legal status. However, over time, a separate class appeared, the purpose of which was to serve for the benefit of their state. This social structure developed over many centuries and centuries. Over time, it has acquired legal consolidation. People serving their state enjoyed honor and respect in society. This attitude has persisted to this day, only in modern world civil servants have benefits and other advantages of their legal regime. The author will try to reveal in the article all aspects of the public service in Russia.

What it is?

Any country, if we imagine it as a specific person, has a management apparatus, thanks to which its main functions and tasks are implemented. At the same time, the structure of such a coordination center may be different depending on the internal aspects of building power, the ruling regime, social order society, etc.

Nevertheless, there is one constant aspect: any apparatus exists because it is controlled by people. It is these entities that create the basis for activities for the benefit of the country in a broad sense. this concept. Given the facts presented, we can conclude that the civil service is a professional activity carried out in the public administration apparatus. Its main task is to implement the functions of the country. The civil service in Russia has a certain structure, as well as specific features. These aspects of the administrative apparatus were formed under the pressure of the historical development of this socio-legal category.

History of the administrative apparatus

The civil service has evolved over centuries. Already in Ancient Rome there was a rather cumbersome bureaucratic apparatus, which later migrated to the state structure of Byzantium. A characteristic feature of this period was the class and clan dependence of all civil servants. They, as a rule, were appointed to positions according to the principle of personal dependence on a superior patron. Later, the main emphasis was on the analysis of abilities and moral qualities.

As for Russia, on its territory, activity in the administrative apparatus has its own characteristic features. The civil service of the Russian Federation is largely based on the principles developed during the period of the USSR and Tsarist Russia.

Civil service in modern Russia

The civil service of the Russian Federation is an activity of a professional nature of citizens to ensure and implement the main functions and tasks of the state. If we analyze this concept more scrupulously, then civil servants of the authorities of the Russian Federation provide the powers of the following structures:

Powers, Russia;

Federal bodies, other central authorities;

Subjects of the Russian Federation;

Authorities of subjects of the Russian Federation;

Persons performing the functions of federal state authorities;

Persons performing the functions of state authorities of the constituent entities of the Russian Federation.

In addition, the federal civil service has an internal structure. The distribution of functional areas between its elements makes it possible to more quickly and accurately implement state tasks throughout Russia.

Civil service structure

The public service bodies are single system control apparatus of the Russian Federation. The powers between them are divided on the basis of existing species civil service. Taking into account the provisions of the Federal Law “On the System of the Civil Service of the Russian Federation”, the following types of it can be distinguished, namely:

1. State civil service.

2. Military.

3. Law enforcement service.

The organs of each of these types have their own specifics of work. To understand the essence of their activities, it is necessary to consider each type separately, as well as to analyze the points of their contact.

State civil service of the Russian Federation

Let's consider this structure in more detail. Civil service in Russia is the main way to regulate the executive, legislative and judicial system authorities in the country. Its basis is the professional work of citizens in positions in the represented bodies of various branches of the administrative apparatus. The civil service, or rather its tasks, is aimed primarily at ensuring the normal state turnover in Russia. This is its main difference from other spheres of state activity. For example, military service and law enforcement perform extraordinary tasks that go beyond the normal legal regime.

The normative regulation of the civil service of the Russian Federation is carried out primarily by the constitution, as well as other federal laws, namely:

1. Federal Law "On the system of public service". This regulation has already been presented in the article earlier. It indicates the foundations according to which various types of public service coexist and implement their functional tasks.

2. Federal Law "On the State Civil Service of the Russian Federation". The law regulates in detail the issues of civil service in Russia, as well as the procedure for its direct implementation.

In addition to federal legislation, there is a fairly extensive by-law normative base created by the President of the Russian Federation and central government bodies.

It is also necessary to note the great role of constitutional norms in the process of regulating the civil service. Given the fact that the Constitution of the Russian Federation enshrined the foundations legal system state, the civil service, regardless of its type, must comply with the norms of the basic law.

Positions and ranks of the civil service

The federal civil service differs from the military and law enforcement not only in its goals and objectives, but also in the presence of official ranks, not titles. As for the positions, they are divided into main categories, and they, in turn, into groups. Such a structure allows the most accurate distribution of responsibilities between civil service employees. There are four job categories in total:

1. Managers - carry out direct coordination of the activities of a particular government department.

2. Assistants - a specially established position for all kinds of assistance to the heads of various departments.

3. Specialists are a number of positions that are entrusted with the function of direct implementation of state tasks.

4. Supporting personnel - a set of positions that are established for organizational, informational or economic support of state bodies and departments.

The class ranks of the civil civil service are an alternative to ranks. They are assigned in accordance with the position based on the results of the exams passed by each civil servant. Class ranks (ranks) are retained by a civil servant for life. Plus, the ranks provide the payment of additional remuneration, the amount of which is regulated by decrees of the President of the Russian Federation.

In order to understand in more detail the essence of the civil service, it is necessary to consider the activities of a specific body that belongs to this form of management apparatus. federal Service state registration, cadastre and cartography is a perfect example of the civilian form of the administrative apparatus.

Registration, Cadastre and Cartography Service

The Federal Service for State Registration, Cadastre and Cartography is an executive body in Russia that carries out a unified federal cadastral registration of property, registration property rights on it and spatial data of Russia. The service has subordinate institutions, such as FGBU (Federal State state-financed organization) and others. The regulation of activities is carried out through the relevant ministry, namely the Ministry economic development Russian Federation. Initially, the Federal State Service for Cadastre, Cartography and Registration was subordinate to the Ministry of Justice, which fundamentally did not meet the principles of jurisdiction and structuring of the state administration apparatus.

Service Permissions

The State Cadastre, Cartography and Registration Service is endowed with a number of functions for registering rights to real estate, transactions with similar property, carrying out cadastral registration, etc. Within the framework of the powers granted, the department carries out the following activities:

  1. Keeps a register of registration of rights to property.
  2. Compiles a special register of self-regulatory organizations.
  3. Carries out activities for the maintenance of the real estate cadastre on the territory of the Russian Federation.
  4. Maintains a special catalog of geographical names of certain places.
  5. Carries out land, geodetic supervision, and also controls the implementation of the land management process.

The presented activities are regulated by some decrees of the President of the Russian Federation.

Law enforcement

The Russian State Law Enforcement Service is an integral part of the country's administrative apparatus. But the law enforcement service has a number of differences from the military and civilian. Firstly, it has a special structure, and secondly, its functional tasks are of an extraordinary nature. Analyzing the federal legislation of Russia in this area, we can say that the law enforcement service is the activity of professional citizens holding positions in law enforcement agencies to ensure and implement law and order, legality, security of the individual and society, as well as the state itself. As for state security, in this case we are talking about the constitutional order, the regime of democracy, the territorial integrity and sovereignty of the country. Special ranks are assigned to people holding positions in law enforcement and public security services.

Regulation and structure

The management of the public service of law and order is carried out at the expense of existing legislation. However, the regulatory framework of the law enforcement sphere is significantly different from the civil one. There is no single standard legal act for all organs in the area. Thus, the legal regulation of each law enforcement structure is carried out by issuing a separate law and creating a sectoral legal framework. This fact is due not only to a large difference in functional tasks, but also to the rather cumbersome structure of these organs.

Law enforcement agencies include the following structures:

  • Ministry of Internal Affairs, Ministry of Emergency Situations, Federal Migration Service of Russia.
  • Investigative committee.
  • Prosecutor's Office of Russia.
  • FSKN, FTS.
  • Federal Penitentiary Service of the Ministry of Justice of Russia.

Other public services may be included in the number of these bodies by decision supreme bodies state power. Some bodies do not have higher departments in the structure of executive power. Therefore, the administration of the federal service public sphere Law enforcement in some cases is carried out within the department itself. Sometimes the lack of a single regulator has a rather negative effect on the very mechanism of law enforcement services. Nevertheless, the system of law enforcement agencies in Russia is sufficiently developed, which ensures the high-quality performance of their functional tasks.

military service

Military service is in many ways similar to law enforcement, primarily a set of extraordinary tasks. However, it is impossible to completely identify these two types of civil service. Like other types of state activity, military service is the professional work of citizens in the armed forces of Russia, which is aimed at organizing the defense and security of the state. It follows that due to its tasks of protecting the defense, military service has an exclusive character. Employees in this area are assigned military ranks in accordance with their position.

Today, the sphere of defense in Russia is a fairly prestigious area of ​​activity. The status of military personnel is regulated by presidential decrees, as well as the following regulations: “On the status of military personnel”, “On military service and military service.

So, in the article the author tried to answer the question of what the public service is, and also presented the characteristic features of this activity. In conclusion, it should be noted that this area will never lose its significance, because without it the state will not be able to implement its main functions.

The question of the goals and objectives of the public service, despite its importance, is largely staging. The fact is that the methodology of goal-setting in management in general and in public administration in particular is the least developed. The goals of the civil service can be considered as a form of awareness and consolidation by state bodies in the relevant regulatory legal acts of socially significant urgent problems.

At present, Russia does not have a well-defined "tree of goals". There are few theoretical developments in this regard, moreover, they often contradict each other. So, Yu. II. Starilov believes that the main goal of the civil service is the practical implementation of the functions of the state, the solution of its tasks, ensuring the welfare of society, satisfying public interests based on the principles and provisions established in the Constitution of the Russian Federation, federal laws and laws of the constituent entities of the Russian Federation.

In turn, A.F. Nozdrachev identifies the following goals of the public service:

  • - streamlining the work of the state apparatus;
  • – establishment of requirements for the functions and powers of government positions;
  • - determination of the competence and professional readiness of civil servants;
  • - regulation of methods and procedures for analyzing and evaluating the effectiveness of the functioning of the state apparatus;
  • – formation of conditions for providing civil servants, including material, social and legal guarantees of public service.

It is easy to see that in the latter approach to defining the goals of the civil service, civil servants focus mainly on the needs of the apparatus, while the needs and interests of the people are in the background.

Objectives of the public service can be classified:

  • 1) according to the degree of public importance:
    • - strategic, related to the quality of life of society, its preservation or transformation;
    • - tactical, defining specific actions in time and space to achieve strategic goals;
  • 2) according to the results:
    • - final;
    • – intermediate;
  • 3) by time:
    • – long-term;
    • – medium-term;
    • - short-term;
  • 4) by spheres of public life:
    • – economic;
    • - political;
    • – social;
    • - spiritual.

When clarifying the tasks of the civil service, it must be taken into account that civil servants are actively involved in the development of draft laws, programs expressing the country's domestic and foreign policy, proposals for changes in the structure of state bodies, current decisions of state authorities, in the provision of public services. Therefore, among main tasks of the civil service the following can be distinguished:

  • – provision constitutional order;
  • – development of a strategy for the economic, social, political development of the country;
  • - selection of personnel capable of implementing the country's development strategy;
  • - creation organizational structures state power;
  • - making decisions on important operational issues of the life of the country;
  • – protection of the rights, freedoms and legitimate interests of citizens, creation of conditions for the development of the human personality;
  • – creation of the necessary conditions for the implementation of the functions of state bodies.

According to V. D. Grazhdan, in the system of public administration, the public service is intended to perform a dual task. Firstly, this is the provision of administrative (hardware) support to the political leadership of the country; secondly, the study of management problems and the interests of all segments of the population, which is so necessary for state bodies.

In this way, each type of public service performs its tasks established in regulatory legal acts.

The concept of "civil service functions" and their types have not yet been defined in regulatory legal acts, which reflects one of the gaps in the legal regulation of this institution. In scientific and educational literature the question of the functions of the civil service is predominantly staging. Some authors understand the functions of the public service as independent and relatively separate types of public service activities. Others consider the functions of the public service as an organization for the practical implementation of legal norms.

Public Service Functions- the main directions of the impact of civil servants on public relations to achieve the goals and objectives of the state.

It can also be argued that the functions of the public service as a whole coincide with the functions of public authorities and public administration. The last statement is based on the fact that the civil service, in accordance with the legislation of the Russian Federation, is designed to ensure the powers of state authorities.

The functions performed by civil servants are divided into socio-political (general) And special legal.

TO general functions of the civil service can be attributed:

  • – management public affairs(in this regard, the public service can be considered as an organizational institution);
  • - goal setting - a function whose purpose is to determine the parameters optimal functioning the state and society as a whole, the model of its future development, the algorithm of public administration;
  • - forecasting and modeling the development of society and government bodies (this function is based on the analysis of trends in social development, it is associated with the prediction of changes in society and government bodies due to any events or purposeful actions);
  • Planning is decisions made in advance about what to do, when to do it, and who will do it. government bodies(in the course of planning, directions, proportions, rates, quantitative and qualitative indicators of the development of certain processes in society and government bodies are determined);
  • - organization - the creation and streamlining of the structure of the civil service and state bodies, their staffs, processes of state administration for the sustainable and dynamic development of society and state bodies (the purpose of the public service is to organize the life of citizens and, as you know, civil servants directly or indirectly ensure the process social organization of a person);
  • - control - establishing the compliance or non-compliance of indicators of the development of society and the public service with internal or external standards and the level set by plans and programs;
  • - accounting - fixing in quantitative indicators the processes taking place in society and in the public service;
  • - coordination - harmonization of the activities of various state bodies to achieve the common goals and objectives of the state;
  • - information support for the activities of state bodies and the life of society, i.е. collection, receipt, processing, analysis of information necessary for the implementation of state activities.

IN last years the public service is increasingly seen as producer of public social services. We are talking about education, health care, security, and so on. Therefore, we can talk about such a function of the public service as the production of public services.

The public service performs educational function. It plays an important role in the formation in the public consciousness of a respectful attitude towards the human person, institutions of state and law.

For the dynamic development of society, it is of great importance regulatory function of the civil service. Civil servants play an active role in regulating relations between social groups in the economic, political, social and ideological spheres of society. For these purposes, rules, regulations are established, the direction of actions of citizens and civil servants is set. This is manifested in the development of various programs, bills, and political decision-making.

TO special-legal functions of the public service relate:

  • – law-making(civil servants take an active part in the development of draft regulatory legal acts, their examination, analytical and reference work of the law-making process);
  • – law enforcement(civil servants implement the norms of constitutions, laws and other normative legal acts of the Russian Federation and subjects of the Russian Federation).
  • – law enforcement(public servants protect established norms rights from violations by the subjects of legal relations, for this purpose, control and supervision bodies, methods of coercion are used).

The specific functions of civil service structures and civil servants are established by the regulations on the structural subdivisions of the apparatus of state authorities and job descriptions.

The functions of the public service are carried out with the help of legal, economic, organizational and administrative, socio-psychological methods.

  • Cm.: Starilov D.N. General course administrative law: in 2 vols. M.: Porma-INFRA, 2002. T. 2. S. 42.
  • Cm.: Nozdrachev A.F. Civil service: a textbook for the training of civil servants. M.: Statut, 1999. S. 73.
  • Cm.: Citizens V.D. State civil service: textbook, allowance. M.: Yurkniga, 2005. S. 48.
  • See: Ibid. S. 50.
  • Public service in the system of power and public administration
    • The concept of the dichotomy of state power
    • Political Power and Public Service: General and Special
    • Public administration as the main function of the state civil service
  • Theoretical and methodological foundations of public service
    • General scientific approaches to the theory of public service
      • The structure of the theory and methodology of public service
    • The concept of "public service"
    • The nature of the civil service
      • Goals, tasks, functions of the state civil service
  • public service as socio-legal institute and professional career
  • The system of public service of the Russian Federation
    • The essence and structure of the public service system of modern Russia
    • Basic principles of building and functioning of the public service system of the Russian Federation
  • Federal State Civil Service: essence, structure, features
    • Federal public service: concept, distinctive features, functions
    • Structure and features of the federal civil service
    • The specifics of the organization and functioning of the civil service in federal government bodies
      • State service of the federal executive branch
      • Public service of the judiciary
  • Public service of the constituent entities of the Russian Federation
    • Constitutional foundations for the functioning of public authorities of the constituent entities of the Russian Federation
    • Legal regulation and organization of the state civil service of the constituent entities of the Russian Federation
    • Comparative analysis federal legislation and the legislation of the constituent entities of the Russian Federation on issues of the state civil service
      • Admission (admission) to the civil service
      • Legal status civil servant of a constituent entity of the Russian Federation
  • Civil servant: concept, classification
    • Civil servant: concept, signs
    • Classification of civil servants of the Russian Federation
  • Positions of the state civil service of the Russian Federation
    • Civil service positions: concept
      • Signs of public office
    • Classification of positions of the state civil service of the Russian Federation
    • Register of positions of the federal state civil service
  • Passage of the state civil service
    • Theoretical foundations of public service
    • The main types of the civil service process
    • Legal and organizational framework for the civil service of the Russian Federation
      • Organization of public service
  • Social and legal status civil servant of Russia
    • Status of a civil servant: concept and classification
    • Essence and signs social status civil servant
    • Legal status of a state civil servant of the Russian Federation
      • Basic duties of a civil servant
      • Civil service restrictions
      • Prohibitions related to civil service
  • State guarantees and liability in the civil service of the Russian Federation
    • Basic and additional state guarantees for civil servants
    • Incentives and disciplinary action in the civil service
  • Public Service Management
    • Conceptual Framework for Civil Service Management
      • Subjects and objects of management
    • The system of management of the civil service of the Russian Federation
      • Federal level of government
      • The level of management of the subjects of the Russian Federation
    • Improving the efficiency of the Russian civil service management system
  • Reform and development of the public service system of the Russian Federation
    • Theoretical foundations of civil service reform
    • Legal basis reforming the public service system of modern Russia. Federal reform program
    • The main directions of reform and development of the public service system of the Russian Federation
    • Problems and prospects for the development of the state civil service of the Russian Federation
  • State personnel policy and personnel doctrine
    • Theoretical foundations of state personnel policy
    • Priority directions of the state personnel policy of the Russian Federation
    • personnel doctrine. Problems of state personnel policy in modern Russia
  • Legal basis and subject-object base of the state personnel policy
    • Legal basis of the state personnel policy and personnel activity of modern Russia
    • Subjects and objects of state personnel policy
      • Objects of state personnel policy
  • Basic principles and mechanisms for the implementation of the state personnel policy
    • Basic principles for the implementation of the state personnel policy
    • Mechanisms for the implementation of state personnel policy in the public administration system
      • The mechanism of regulatory support of personnel policy
      • Mechanism organizational support personnel policy
      • Research mechanism of personnel policy
  • State personnel policy in the system of state civil service
    • Essence, tasks and principles of personnel policy
    • Priority areas of personnel policy and personnel work
    • Development of the personnel of the civil service of the Russian Federation
  • Personnel work and personnel service of a state body
    • Personnel work in a state body: essence and content
    • Personnel service government agency
  • Formation of the personnel of the civil service
    • Qualification requirements for public civil service positions
    • Theoretical and organizational foundations of personnel selection
    • Ways to fill public positions
  • Personnel technologies for assessing the personnel of the state civil service
    • Theoretical foundations for assessing civil service personnel
      • Methodology for assessing civil service personnel
    • Competition and test for admission to the civil service
    • Certification in the civil service
      • Qualification exam for civil servants
  • Formation and training of a personnel reserve in the civil service
    • Conceptual, legal and organizational foundations for the formation of a personnel reserve
    • The procedure for the formation and preparation of a personnel reserve
    • Features of the formation of a reserve of managerial personnel
      • The program for the formation of a reserve of managerial personnel in the city of Moscow
  • Business career management
    • Service and business career: essence, classification, stages
      • Career advancement
    • Strategy, tactics and technologies for managing a business career
      • HR technologies
    • career growth factors
  • Professional Development. Additional professional education of civil service personnel
    • Legal framework and principles for the professional development of civil servants
    • Organization of additional vocational education
    • State order for professional retraining and advanced training of civil servants
  • Corruption in public authorities
    • The essence of corruption social phenomenon
      • Aspects of corruption
    • Causes and forms of spread of corruption in public authorities
      • Forms of manifestation of corruption
    • Legal Basis and Anti-Corruption Measures in the Public Service System
    • Organizational measures to combat corruption in the civil service
  • Moral foundations of public service and personnel policy
    • Moral principles of personnel policy and performance of civil servants
    • Requirements to official behavior civil servants. Settlement of conflict of interest
    • The principle of serving the state and society
    • Moral problems of civil servants
  • Foreign experience of public service and personnel policy
    • Modern European experience in the organization of the civil service
      • Public civil service in the UK
      • Public civil service in France
      • State civil service in Germany
    • Public service management in foreign countries
    • Personnel management in public service in Western countries
      • Personnel policy in the civil service in France
      • Personnel policy in the civil service in the UK
      • Personnel policy in the public service in the United States
    • Modern foreign experience formation of a personnel reserve in the public service
  • The experience of public service and personnel policy in Russia
    • Public service in Tsarist Russia
    • Career policy and public service in tsarist Russia
    • Public service in the party-Soviet period

Federal public service: concept, distinctive features, functions

Within the framework of the level classification, the state civil service is divided into two levels: the highest - the federal state civil service and the lowest - the state civil service of the constituent entity of the Russian Federation. The military and law enforcement services are by law forks of the federal public service.

An attempt to define the concept of "federal public service" was made by the domestic legislator back in 1993 in the Regulations on the federal public service, approved by Decree of the President of the Russian Federation No. 2267 of December 22, 1993, although even before that, in Art. 11 of the Constitution of the Russian Federation, the constitutional division of state power (and hence the public service) into “state power in the Russian Federation” and “state power in the constituent entities of the Russian Federation” was fixed, with the delimitation of subjects of jurisdiction and powers. Article 71 of the Constitution referred the federal public service to the jurisdiction of the center, i.e. Russian Federation.

In the Regulations on the Federal Public Service, a rather voluminous formulation of the federal public service was also given: “The federal public service is carried out in accordance with the Constitution of the Russian Federation, legislative and other regulatory acts of the Russian Federation in public positions in the Administration of the President of the Russian Federation, the Office of the Government of the Russian Federation, in the apparatus of the chambers Federal Assembly RF, Constitutional Court RF. Supreme Court RF. Supreme Arbitration Court Russian Federation, the Central Election Commission of the Russian Federation. Accounts Chamber Russian Federation, in federal state bodies subordinate to the President of the Russian Federation and the Government of the Russian Federation, as well as in other positions, in accordance with the legislation of the Russian Federation.

As you can see, this formulation does not contain a definition of the concept and essence of the federal civil service.

In 1995 in federal law“On the Basics of the Civil Service of the Russian Federation” No. 119-FZ, which legalized the institution of the civil service, the legislator again refers to this topic. So, in Art. 2 very briefly states that the Russian civil service is divided into two levels: federal and subjects of the Russian Federation. But the definition of the essence of the federal civil service was not given, since the scientific basis of this concept had not yet been developed, and practical experience was completely absent.

The Concept of Reforming the System of the Civil Service of the Russian Federation (2001) and the Federal Program "Reforming the Civil Service of the Russian Federation" (2002) also did not give a detailed interpretation of the essence of the federal civil service and its features, mentioning only that a single system of civil service is formed by various types of federal civil service and public service of the subjects of the Russian Federation.

First time on legislative level the definition of the essence of the federal civil service was formulated in the Federal Law "On the system of public service of the Russian Federation" No. 58-FZ (2003). In Art. 4 of this legal act states: - professional service activities of citizens to ensure the execution of the powers of the Russian Federation, as well as the powers of federal state bodies and persons holding public positions in the Russian Federation. The concepts of “positions of the federal civil service” and “federal civil servant” are also introduced there.

An analysis of this concept shows that the normative definition of the civil service of the Russian Federation in general is the basic one for it. The hallmark is that the federal service civil servants ensure the execution of powers only federal structures And officials: Russian Federation, federal government agencies and politicians federal level.

Along with the normative, it is advisable to give a theoretical definition of this concept, indicated in the works of a number of scientists - sociologists and political scientists. Here, in our opinion, an integrated, generalizing approach is acceptable: federal civil service is the central public administrative system country, a legal, social and organizational institution at the federal level, designed to perform the tasks and functions of the state, the professional service activities of citizens of the Russian Federation, replacing the positions of the state civil, military and law enforcement service in federal government bodies formed in accordance with the Constitution of the Russian Federation and federal legislation.

The analysis allows us to highlight the distinctive features of the federal civil service:

  • this service consists in the implementation on behalf of the state of public administration throughout the country;
  • federal state bodies in which the federal state service functions are created on the basis of the Constitution of the Russian Federation and federal legislation;
  • this service ensures the execution of the powers of only federal government agencies and politicians at the federal level;
  • federal government employees receive salaries at the expense of funds federal budget;
  • legal, organizational and other foundations of the federal civil service, as well as the legal status of federal civil servants are regulated by federal legislation.

The basis of the federal civil service is the staff positions included in Register of positions in the federal civil service. In accordance with the legislation, state positions of the federal civil service are divided into positions of the federal civil service (in federal government bodies), military and law enforcement service positions. Civil service positions may be established in a federal state body different types. Positions will be implicated by federal civil servants - Russian citizens carrying out professional official activity to the positions of the federal civil service and receiving financial support at the expense of the federal budget. This is a normative definition.

Personnel composition federal civil servants is fairly representative.

According to Rosstat data for 2008, the total number of state civil servants of the Russian Federation was 770.8 thousand people. Of these, there were 548.4 thousand federal civil servants, 222.4 thousand in state authorities of the subjects of the Federation. 469.3 thousand, in judiciary and the prosecutor's office - about 79.1 thousand. It can be stated that in quantitative terms, the personnel corps of federal civil servants is optimal and generally meets the requirements of the public administration system.

Purposes and functions of the federal civil service are not clearly defined either in regulations or in the scientific literature. Based on the essence and social role of the federal civil service as administrative activities to ensure the execution of the powers of federal state bodies, then the main goal of the federal state service is to serve the interests Russian state and society quality assurance of the performance of the functions of the state, its federal bodies and officials. Being an instrument and mechanism of the state, the federal civil service ensures the efficiency and stability of public administration on a scale of the Russian Federation.

As for the functions of the federal civil service, they can be seen to a greater extent in the normatively fixed provisions and regulations of individual federal state bodies. As part of ensuring the execution of the powers of federal authorities, it is advisable to single out several main functions: information and analytical; organizational and technical; preparation and decision-making procedures; implementation of the adopted management decision; legal; financial and economic; personnel; expert; documentation.

The listed functions do not exhaust the whole variety of functions of the federal civil service, but show the most significant areas of activity. These functions are implemented in all federal state bodies, regardless of their belonging to one or another branch of government. In each of these bodies, the civil service has other functions specific to this body.