A systematic understanding of quality reflects the definition given in the Great Soviet Encyclopedia: “Quality is the essential certainty of an object or process, appearing in its properties and characterizing the fact that this object or process appears in given conditions, in connection and interaction with other given objects and processes " The above definition shows that quality is the essence of a thing, the basis of all its properties, and the “set of properties” is manifested in the relationship of a given thing with other things.

Currently, the Russian Federation has a number of state and international standards regulating the concept of quality. A comparative analysis of the terminology established in the listed standards shows that there are certain differences both in methodological approaches to quality and in the interpretation of basic concepts. Table 1 shows the main definitions of quality.

An integral understanding of quality, focusing on a synthetic, holistic coverage of all its aspects, became possible with the development of market relations. Today, when we talk about quality, we mean the general consumer assessment of the properties of goods or services, which includes all the factors that influence the choice of a supplier of goods or services by the consumer, and, therefore, implies an expanded interpretation of the concept of “quality.”

Internationally recognized expert in the field of quality E. Deming writes: “The consumer is the most important link in the production line. Quality must be aimed at meeting its needs - present and future."

Table 1 – Basic definitions of the concept “Quality”

* Requirement - a need or expectation that is stated, usually assumed, or required. Requirements may be made by various stakeholders.

State (municipal) services are services that are provided to individuals and organizations at their request by federal executive authorities, executive authorities of the constituent entities of the Russian Federation, management bodies of state extra-budgetary funds of the Russian Federation or local administrations within the framework of their competence.

Federal Law of the Russian Federation dated July 27, 2010 N 210-FZ “On the organization of the provision of state and municipal services” regulates relations arising in connection with the provision of state and municipal services, respectively, by federal executive authorities, bodies of state extra-budgetary funds, executive authorities of state power subjects of the Russian Federation, as well as local administrations and other local government bodies exercising executive and administrative powers.

According to this law, a public service provided by a federal executive body, a body of a state extra-budgetary fund, an executive body of state power of a constituent entity of the Russian Federation, as well as a local government body in the exercise of certain state powers delegated by federal laws and laws of constituent entities of the Russian Federation is an implementation activity functions, respectively, of a federal executive body, a state extra-budgetary fund, an executive body of state power of a constituent entity of the Russian Federation, as well as a local government body in the exercise of certain state powers delegated by federal laws and laws of constituent entities of the Russian Federation, which is carried out at the request of applicants within the limits established by regulatory legal acts of the Russian Federation and regulatory legal acts of the constituent entities of the Russian Federation powers of bodies providing public services.

Municipal service, provided by a local government body - activities to implement the functions of a local government body, which is carried out at the request of applicants within the powers of the body providing municipal services to resolve issues of local importance established in accordance with Federal Law of October 6, 2003 N 131-FZ " On the general principles of organizing local self-government in the Russian Federation" and the charters of municipalities.

Administrative regulation is a normative legal act that establishes the procedure for the provision of state or municipal services and the standard for the provision of state or municipal services.

A multifunctional center for the provision of state and municipal services is a Russian organization, regardless of its legal form, authorized to organize the provision of state and municipal services, including in electronic form, according to the “one window” principle.

Provision of state and municipal services in electronic form - provision of state and municipal services using information and telecommunication technologies, including using the portal of state and municipal services, multifunctional centers, universal electronic card and other means, including the implementation of electronic interaction within the framework of such provision between state bodies, local governments, organizations and applicants.

Portal of state and municipal services - a state information system that ensures the provision of state and municipal services in electronic form, as well as access of applicants to information about state and municipal services intended for distribution using the information and telecommunications network "Internet" and posted in state and municipal information systems that ensure the maintenance of registers of state and municipal services.

Along with the term “public services”, you can often find another one - “public services”, and often both of these terms are used in the same context, in relation to the same situations. As a result, the concept of public services, which is already not entirely clear due to its novelty, further loses its contours, merging with public services. To a certain extent, translations of foreign materials on these issues are also to blame for this, when “public service” is translated both as “public” and “state” services. If we add to this series “social” services, which are also part of our lives, then a situation arises when it is difficult to distinguish between state, public and social services.

It seems that it would be wrong to confuse these concepts, since they have different contents and characterize the services provided from different angles. At the same time, it would also be wrong to oppose them. In some cases, the same service can be state, public, and social. A public service, first of all, characterizes the entity providing the service: these are always government bodies. Local government bodies can provide similar public services, but, strictly speaking, such services cannot be considered as government services, based on the constitutional status of local government bodies.

The basic principles for the provision of state and municipal services are:

1) the legality of the provision of state and municipal services by bodies providing state services and bodies providing municipal services, as well as the provision of services that are necessary and mandatory for the provision of state and municipal services and are provided by organizations specified in part 2 of Article 1 N 210- Federal Law "On the organization of the provision of state and municipal services";

2) the application procedure for applying for the provision of state and municipal services;

3) the legality of collecting from applicants a state fee for the provision of state and municipal services, fees for the provision of state and municipal services, fees for the provision of services that are necessary and mandatory for the provision of state and municipal services;

4) openness of the activities of bodies providing public services and bodies providing municipal services, as well as organizations involved in the provision of state and municipal services;

5) accessibility of applying for the provision of state and municipal services and the provision of state and municipal services, including for persons with disabilities;

6) the possibility of receiving state and municipal services in electronic form, unless prohibited by law, as well as in other forms provided for by the legislation of the Russian Federation, at the choice of the applicant.

When receiving state and municipal services, applicants have the right to:

1) receipt of state or municipal services in a timely manner and in accordance with the standard for the provision of state or municipal services;

2) obtaining complete, up-to-date and reliable information on the procedure for providing state and municipal services, including in electronic form;

3) receiving state and municipal services in electronic form, unless prohibited by law, as well as in other forms provided for by the legislation of the Russian Federation, at the choice of the applicant;

4) pre-trial (out-of-court) consideration of complaints (claims) in the process of receiving state and municipal services;

5) receipt of state and municipal services in a multifunctional center in accordance with agreements concluded between the multifunctional center and bodies providing public services, and agreements concluded between the multifunctional center and bodies providing municipal services, from the moment the relevant interaction agreement comes into force.

Responsibilities of bodies providing public services, bodies providing municipal services, and organizations subordinate to state bodies or local governments:

1. Bodies providing public services and bodies providing municipal services are obliged to:

1) provide state or municipal services in accordance with administrative regulations;

2) ensure the opportunity for the applicant to receive state or municipal services in electronic form, unless prohibited by law, as well as in other forms provided for by the legislation of the Russian Federation, at the choice of the applicant;

3) provide to other bodies providing public services, bodies providing municipal services, to organizations subordinate to state bodies or local governments involved in the provision of state and municipal services provided for by law, upon interdepartmental requests of such bodies and organizations, documents and information necessary for provision of state and municipal services;

4) perform other duties in accordance with the requirements of administrative regulations and other regulatory legal acts governing relations arising in connection with the provision of state and municipal services.

2. Organizations subordinate to state bodies or local self-government bodies participating in the provision of state and municipal services are obliged to:

1) provide to bodies providing state services and bodies providing municipal services, at interdepartmental requests of such bodies, documents and information necessary for the provision of state and municipal services, as well as receive from bodies providing public services, bodies providing municipal services, other state bodies, local governments such documents and information;

2) perform other duties in accordance with the requirements of N 210-FZ “On the organization of the provision of state and municipal services” and other regulatory legal acts governing relations arising in connection with the provision of public services.

The provision of state and municipal services is carried out in accordance with administrative regulations.

The structure of administrative regulations must contain sections establishing:

1. General Provisions;

2) standard for the provision of public services;

3) composition, sequence and timing of administrative procedures, requirements for the procedure for their implementation, including features of the implementation of administrative procedures in electronic form;

4) forms of control over the implementation of administrative regulations;

5) pre-trial (out-of-court) procedure for appealing decisions and actions (inaction) of a body providing a public service, a body providing a municipal service, as well as officials, state or municipal employees.

The standard for the provision of state or municipal services provides for:

1) name of the state or municipal service;

2) the name of the body providing the public service or the body providing the municipal service;

3) the result of providing a public service;

4) the period for providing state or municipal services;

5) legal grounds for the provision of state or municipal services;

6) an exhaustive list of documents required in accordance with legislative or other regulatory legal acts for the provision of state or municipal services, divided into documents and information that the applicant must submit independently, and documents that the applicant has the right to submit on his own initiative, since they are subject to representation within the framework of interdepartmental information interaction;

7) an exhaustive list of grounds for refusal to accept documents necessary for the provision of state or municipal services;

8) an exhaustive list of grounds for refusal to provide state or municipal services;

9) the amount of fees charged to the applicant for the provision of state or municipal services, and the methods of collection in cases provided for by federal laws, adopted in accordance with them by other regulatory legal acts of the Russian Federation, regulatory legal acts of constituent entities of the Russian Federation, municipal legal acts;

10) the maximum waiting period in line when submitting a request for the provision of a state or municipal service and upon receiving the result of the provision of a state or municipal service;

11) the deadline for registering the applicant’s request for the provision of state or municipal services;

12) requirements for the premises in which state and municipal services are provided, for the waiting room, places for filling out requests for the provision of state or municipal services, information stands with samples of their completion and a list of documents required for the provision of each state or municipal service;

13) indicators of accessibility and quality of state and municipal services;

14) other requirements, including those taking into account the specifics of the provision of state and municipal services in multifunctional centers.

Public services are classified according to the following criteria:

- organizational and legal status of the public service provider;

- organizational and legal status of the consumer of public services;

- form of provision.

According to the organizational and legal status of the public service provider, the following groups are distinguished:

Services provided to consumers directly by government agencies;

Services provided to consumers by government agencies that are not government agencies, whose activities are financed from the state budget;

Services provided to consumers by public and private organizations that have won public procurement tenders for their targeted implementation.

According to the organizational and legal status of the consumer of public services, the following groups are distinguished:

Services provided to individuals;

Services provided to legal entities.

According to the form of provision, the services provided are distinguished:

On paper;

Through information and communication means;

On an electronic storage medium;

Orally in direct contact.

Picture 1 -

Figure 7 - Components of an objective indicator of the quality of provision of public services

Indicators of accessibility and quality of public services are determined to evaluate and monitor the activities of both public service providers in general and individual officials. Common indicators for all services are accuracy and timeliness of execution, accessibility, costs of their implementation, and the presence of justified complaints. The composition of accessibility and quality indicators is divided into two main groups: quantitative and qualitative.

The group of quantitative indicators of accessibility, which are characterized by measurable indicators that make it possible to objectively evaluate the activities of public service providers, includes:

Service waiting time; the institution's work schedule;

Location of the institution providing the services;

Number of documents required to receive the service;

Cost of the final result of the service (for paid services);

Availability of benefits for certain categories of service consumers.

Qualitative indicators of the availability of services provided include: the degree of complexity of the requirements that must be met to receive the service; reliability of information about the services provided; availability of various channels for obtaining services; simplicity and clarity of information and instructional documents.

The group of quantitative indicators for assessing the quality of services provided includes: compliance with the deadlines for the provision of services; number of justified complaints.

Qualitative indicators include: accuracy of fulfilled obligations towards the consumer; service culture (politeness, aesthetics); quality of staff work results (professional excellence).

Both in our country and abroad, the provision of public services is closely associated with the public service. And this is no coincidence, because the state provides services through a special apparatus - civil servants. Already in the Concept of reforming the civil service system of the Russian Federation, approved by the President of the Russian Federation on August 15, 2001, it was established that interaction between the civil service and civil society is carried out on the basis of compliance, in particular, with the principle of legality and legal regulation of the activities of government bodies and civil servants, eliminating the possibility manifestations of subjectivity and avoidance of arbitrariness when civil servants provide public services and make decisions.

To determine the gap in the existing Russian experience in developing public service standards, it is useful to compare this experience with the best global practices. The Marianne Charter (France) was used as an object of comparison, which contains not only the standard of public services itself, but also recommendations for its implementation. The document is a methodological guide intended for persons whose responsibilities include the application and monitoring of compliance with service standards. The charter is aimed at improving the quality of service and reception of the population in government institutions.

The Marianna Charter, in contrast to the Russian experience, contains not only the parameters of the minimum acceptable quality, but also a process of continuous improvement, which makes it much more consistent with the approach of the ISO-9000 series standards.

Russian standards are more similar in style to instructions, although attempts to develop a different style are made by all developers of the standards considered. The unity of the Charter made it possible to devote a significant place in its implementation to the exchange of experience, including between bodies providing completely different public services (different ministries). In Russia, the diversity of approaches, including simply due to different functional terminology and originality of stylistics, complicates the conditions for the exchange and dissemination of OIV experience.

The unity of the Charter is potentially convenient for recipients of services, since the unity of the structure makes it easy to navigate and find the necessary information in the standard of any service.

Russian standards are not yet so focused on service recipients; there are even proposals to create special adapted versions of standards for distribution.

The Charter consists of mandatory, additional and special conditions. Mandatory conditions must be fulfilled by everyone, but the form of execution may vary. To do this, the Marianna Charter has specially marked places for filling out specific compliance forms (templates), for example: “We inform you of our opening hours: (must be specified).” Additional conditions are not mandatory, they are a kind of recommendation for improvements. Government agencies may adopt other additional requirements appropriate to the nature of the service. In Russian practice, an approach with different levels of requirements was found only in one case. The existing domestic experience does not yet contain a focus on continuous improvements. In fact, standards are intended to set the level that needs to be achieved, and this is where the improvement process ends. The charter is written in the form of a template. The studied Russian experience also contains preferences for the formulation of a basic text with a unified structure, with further adaptation of the standard to the specifics of individual services.

An analysis of regional experience in standardizing the services of executive authorities suggests that the issue of correlating the processes of standardization and regulation of government bodies is currently unresolved. In fact, the regions have not yet begun to implement measures to develop administrative regulations. In a very limited number of cases, for example in the program of the Samara region, there is an indication of the formation of administrative regulations as a mechanism for changes in the activities of executive authorities.

At the same time, the regulatory framework of the Russian Federation regarding certain aspects of administrative reform determines the connection between administrative regulations and standards of public services, as, for example, in Government Decree No. 679 of November 11, 2005 “On the procedure for the development and approval of administrative regulations for the performance of public functions and administrative regulations for the provision of public services.” The process of regulating the activities of executive authorities includes:

Requirements for the procedure for providing public services, as part of the administrative regulations;

Mandatory independent examination and public discussion of administrative regulations;

Conducting surveys of recipients of public services as part of the technological chain for developing standards.

The connection between service standards and administrative regulations for the activities of executive authorities has been explicitly discovered in the practice of the activities of executive authorities in Tatarstan.

The Republic of Tatarstan uses the approach of including public service standards into a set of administrative regulations.

The Center for Economic and Social Research of the Republic of Tatarstan developed and submitted to the Cabinet of Ministers of the Republic of Tatarstan a draft resolution “On the development of a system of administrative regulations for the provision of public services by executive bodies of state power.”

In accordance with this approach, an administrative regulation is a normative legal act that establishes the procedure for the implementation by an executive authority of a state function related to the provision of public services. Part of the administrative regulations of the state function related to the provision of public services is the public service standard.

A public service is understood as the activity of an executive authority to fulfill the request or requirement of citizens and organizations for the recognition, establishment, change or termination of their rights, as well as obtaining material and financial resources for their implementation in the case and in the manner prescribed by law, establishing legal facts, or providing information on issues within the competence of the executive body of state power and included in the register of public services.

The standard of a public service refers to mandatory rules that establish, in the interests of the recipient of a public service, requirements for the provision of a public service, including characteristics of the process, form, content and result of the provision of this public service.

There are various models for classifying the functions and powers of government organizations, adopted in countries such as the USA, Canada, Germany and a number of other countries.

Canada has adopted a model of government activity, The Government of Canada Strategic Reference Model (GSRM), which divides government services not only into areas (areas), such as healthcare, education, and so on, but also into types in terms of the final results of service delivery. This is a fairly useful classification from the point of view of implementing e-government information systems, since the type of final result largely determines the nature and specificity of the technologies required for implementation.

The 19 types are listed below according to the Canadian classification of service outcomes:

funds: receiving or providing funds;

(Units of) resources: provision of goods, equipment, premises;

transportation: people and other objects;

consulting;

matching detection, referrals and connection discovery;

new knowledge: performing research;

protection and stimulation;

recreational and cultural opportunities;

education and training;

rehabilitation and care;

period of validity of the agreement: reaching agreements, resolving disputes;

period of validity of the permit: regulation, licensing, issuance of permits, certificates, etc.;

period of protection: monitoring, prevention, elimination of threats, risk reduction;

intervention: responding to threats and emergencies, providing assistance, restoring order;

compliance with rules and court decisions;

fines and sanction periods;

rules (laws, rules, strategies, plans, standards);

implementation of changes (organizations, work rules, systems).

In turn, the activities of the state are divided into 22 areas, which are divided into two large groups:

public services and functions of the state (Public Program Types) - 12 types of functions;

providing public services (Provider Program Type) – 10 types of functions.

Public services include the following categories:

socio-economic development;

science and knowledge generation;

Natural resources;

environment protection;

healthcare;

lawmaking, democratic and human rights;

social sphere;

culture;

education;

security and law and order;

judicial branch;

national security and defense.

The following areas of state activity include:

rule-making (public regulation), planning and management;

administrative and economic management;

human resources (personnel) management;

financial management;

information and technology management;

management of assets, funds, buildings, etc.;

communications management;

procurement and supply management;

administrative services;

professional services.

As a result, the Canadian public service delivery model can be represented as follows (Fig. 8).

Line of business (functions) describe the authority to achieve results in a specific area. The description of the government's activities includes:

target group;

needs of the target group (addressed through program implementation);

regulatory support (scope and level of authority granted to achieve results);

performance results and their impact (desired trend in the level of fulfillment of needs and the consequences of this);

efficiency and effectiveness indicators;

strategy model;

responsibility for implementation.

Descriptions of business lines provide the context for service delivery.

Areas of activity can be grouped according to the principles of serving similar target groups and similar needs.

Classification of services by areas of activity and types of results allows us to build a matrix “areas of activity (functions) – types of services,” as shown in the figure below. At the intersection, the number of public services that relate to this direction and type is indicated.

Figure 8 - Canada's public service delivery model

Of interest is the model for classifying public services, which was proposed by the consulting company “Booze, Allen, Hamilton” and which was accepted with minor changes in Germany. This classification has proven its usefulness. The German Federal Government has identified approximately 400 services.

The classification proposed in Germany takes into account two criteria:

the first criterion is the “depth” of coverage by the service of the “added value chain”: information service – communications – transactions. This is a well known and widely used scheme. It is estimated that approximately one third of services are primarily informational in nature, however, in many cases these services include some additional functionality beyond simply publishing information on the Web. Another third are procedures for processing various applications, which generally require the implementation of complex processes and regulations and contain transaction execution components;

the second criterion is the content of the service.

It is interesting that almost 3/4 of all services of the German Federal Government (73%) belong to services of types 1, 2, 6 and 7: “Collection, processing and provision of general and specialized information”, “General procedures for processing applications received by government departments” ", "Procedures for providing assistance and assistance."

This classification of public services makes it possible to analyze to a greater extent what kind of technical solutions and IT infrastructure are required to provide them, and to reuse elements of these solutions.

Figure 9 - Classification of public services proposed by Booze, Allen, Hamilton, adopted in Germany

It is very important to set the right priorities in the sequence of implementation of public services. It is obvious that it will take time and resources to implement all the services provided to citizens and businesses, of which there are usually about 1,000 in the country. Therefore, it is necessary to set appropriate priorities, giving preference to those services that simultaneously require a long cycle and large labor costs for authorities to provide, and at the same time for which citizens and legal entities apply most often.

ANNOTATION

The training manual examines the main approaches to determining the quality of the provision of state and municipal services and public administration in general, used in world practice and introduced into public authorities of modern Russia. The measures taken within the framework of the Administrative Reform to regulate and standardize state and municipal services are analyzed as the basis for the formation of a system of regulatory requirements for the quality, accessibility of public services and the comfort of their provision. Based on the results of an experimental study, the authors proposed a model for organizing monitoring of state and municipal services.
The textbook may be of interest to anyone interested in the problems of the effectiveness of public administration bodies.

The textbook is an electronic version of the book:
Monitoring of state and municipal services in the region as a strategic tool for improving the quality of regional management: experience, problems, recommendations. Textbook / S.I. Nedelko, A.V. Ostashkov, S.V. Matyukin, V.N. Retinskaya, I.A. Murzina, I.G. Krevsky, A.V. Lukanin, O.S. Koshevoy. Under general ed. V.V. Markina, A.V. Ostashkova. – Moscow, 2008. – 321 p.

INTRODUCTION
1. The concept of new public administration and administrative reform in modern Russia
1.1. Theoretical and methodological foundations of the concept of modern public administration
1.2. Administrative reform in the Russian Federation: prerequisites and methodological basis for reforms
1.3. Formation of a strategic management system as the basis for the long-term development of public administration in modern Russia
2. Efficiency of state and municipal management: concept and approaches, domestic assessment practice
2.1. The problem of determining the effectiveness of state and municipal government
2.2. International methods for determining the effectiveness of state and municipal government
2.3. Assessment of the quality of public administration in modern Russia at the federal level
2.4. Assessment of the quality of management in modern Russia at the regional and municipal levels
3. Concept and classification of state and municipal services
3.1. The problem of the definition of “public service”
3.2. Classification of state and municipal services
4. Regulation and standardization of state and municipal services
4.1. The concept of standards and regulations of state and municipal services
4.2. Problems of developing standards and regulations for state and municipal services in modern Russia.
5. The quality of state and municipal services and the problem of its assessment
5.1. Concept and approaches to determining the quality of state (municipal) services.
5.2. System of indicators for assessing the quality and accessibility of state and municipal services.
5.3. A system of factors that have a negative impact on the quality and accessibility of state and municipal services.
5.4. Methodology for assessing consumer satisfaction with the quality and comfort (availability) of the provided state (municipal) service (using the example of a pilot study).
6. Monitoring as a tool for ensuring the quality of state and municipal services.
6.1. The concept and directions of monitoring the effectiveness of the provision of state and municipal services.
6.2. Approaches to building a model for monitoring state and municipal services.
7. Information in the system of state and municipal administration and service provision
7.1. Concept, classifications and requirements for information used when making decisions in the field of state and municipal administration and provision of services
7.2. The concept and content of secondary information: general information
7.3. Concept of documentary information
7.4. Analysis of secondary (documentary) information
8. Working with primary information
8.1. Collection of primary information: general information
8.2. Sample research of primary information: sample design
8.3. Random sampling methods
8.4. Formation of step sampling
8.5. Non-random sampling methods
8.6. Sizes of sample populations.
9. Methods for obtaining primary information about the external and internal environment
9.1. An approach to the classification of sociological methods for obtaining primary information
9.2. Concept and types of surveys
9.3. Questionnaire survey (Questionnaire)
9.4. Opinion polls on the Internet
9.5. Focus group method
9.6. In-depth interview
9.7. Expert assessments
9.8. Experiment
9.9. Observation
9.10. Modeling
10. Processing of primary data
10.1. Tools to support the analysis of monitoring materials and their presentation
10.2. Use of information and communication technologies to automate work in the field of monitoring and assessing the quality of provision of state and municipal services
10.3. Presentation of analysis results (requirements for the report, presentation and visualization of information)
CONCLUSION
LIST OF INFORMATION SOURCES USED

Introduction
In modern conditions of functioning of the public administration system in various countries, the relevance of the problem of increasing the efficiency of public administration is significantly increasing. This problem cannot be solved without the introduction into the work of public authorities of effective modern management techniques that are adequate in complexity to the new conditions and require openness, efficiency and adequacy from the public administration system in relation to the demands of the external environment.
Increasing the efficiency of state and municipal administration is the main goal of the Administrative Reform being carried out in modern Russia. An important direction in achieving this goal is improving the quality and accessibility of state and municipal services as a main aspect of the effectiveness of public administration. Thus, according to the concept of New Public Management, which is the methodological basis of administrative reform in modern countries, the essence of modern public administration reforms is the transition to a client orientation of executive authorities, which implies, first of all, the focus of their work on meeting the needs of their consumers - citizens.
given and organizations.
At the same time, a necessary element of organizing management in the system of executive authorities is monitoring the effectiveness of the work of authorities, which is a system of regular monitoring and evaluation of the results of the activities of management bodies related to the achievement of the goals of their work, the implementation of tasks and programs, as well as the timely identification and elimination of errors and deviations in work, monitoring the reliability of the results obtained. The most important component of the public administration monitoring system is the monitoring of state and municipal services provided by executive authorities.
As the practice of administrative reforms in recent years in modern Russia demonstrates, one of the difficulties of the ongoing reforms is the lack of a unified methodological support for the measures being implemented. For example, federal legislation does not formulate a clear definition of the quality of public services. In science, there are several approaches that evaluate the quality of services from different positions. The authors of this manual substantiate the approach to determining the quality of state (municipal) services from the point of view of two most important parameters: 1) the quality of the content of its final result; 2) the quality of receiving a service, related to the comfort of its provision and accessibility for the consumer. In this case, these parameters
should be clearly stated in administrative regulations and standards of state and municipal services and act as the basis for the formation of a system of regulatory requirements for the quality, accessibility of public services and the comfort of their provision.
As the analysis of domestic experience in organizing the provision of state and municipal services by executive authorities shows, today the problem of building a comprehensive system for assessing the effectiveness of public services is relevant due to the lack of established generally accepted monitoring models at the federal and regional levels.
The team of authors based on the results of implementation in 2006-2007.
pilot projects “Development and implementation of standards for public services, administrative regulations for the execution of government functions and the provision of public services in the executive bodies of government in the Penza region” and “Development and implementation of a system for monitoring the availability and quality of public services in the Penza region based on the implementation of administrative regulations and standards of comfort and Quality" within the framework of the implementation of the Federal Target Program "Administrative Reform", a model for organizing monitoring of state and municipal services in the region is proposed based on a comprehensive analysis of information from primary and secondary sources using software for its processing, analysis, and presentation of results.

Electronic version of the book: [Download, PDF, 2.14 MB].

To view the book in PDF format, you need Adobe Acrobat Reader, a new version of which can be downloaded free of charge from the Adobe website.

To assess the quality and accessibility of state and municipal services, determine priorities for their optimization, as well as to evaluate the results of ongoing reforms, it is necessary to continue the practice of monitoring the quality and accessibility of state and municipal services.

The purpose of monitoring is to determine the actual number of applications, the scale of time and material costs when the applicant receives the final result of an application to government bodies and organizations (in general for the public service and for each application).

When conducting monitoring, all the applicant’s appeals to all government bodies necessary to obtain the final result of interaction with the state, including appeals to subordinate, affiliated and other organizations, must be taken into account.

The essence of monitoring is to collect information about the parameters under study during surveys, in-depth interviews, questioning of recipients of state and municipal services and conducting “control calls”.

government services included in monitoring on an ongoing basis (the most popular government services for citizens and businesses);

public services included in monitoring in accordance with current priorities.

For each service for which optimization is carried out or will be carried out, it is advisable to assess the change in the level of costs of the applicant - before and after optimization.

It is necessary to introduce a system of intradepartmental monitoring of the quality of provision of state and municipal services with the involvement of representatives of the public. For these purposes, it is proposed to develop a standard methodology for conducting intradepartmental monitoring of the quality of provision of state and municipal services.

At the federal level, methodological support is organized for conducting regular monitoring at the regional and local levels.

The basis for monitoring the quality of regional and municipal services should be programs adopted at the level of the highest executive body of state power of a constituent entity of the Russian Federation to reduce administrative barriers and improve the quality and accessibility of state and municipal services.

8. Organization of the provision of state and municipal services on the “one window” principle in multifunctional centers

Providing state or municipal services on the “one-window” principle involves a one-time application by the applicant to the multifunctional center.

The multifunctional center represents the interests of applicants in interaction with bodies providing state and municipal services and organizations involved in the provision of state and municipal services. The Multifunctional Center also represents the interests of bodies providing public services and bodies providing municipal services when interacting with applicants.

The provision of state and municipal services on the “one-stop-shop” principle should ensure a significant reduction in the costs of applicants when interacting with state authorities and local governments. The “one window” principle should be implemented by a multifunctional center by organizing interaction with bodies providing public services or bodies providing municipal services, without the participation of the applicant in accordance with regulations and an interaction agreement.

In this regard, significant optimization of state and municipal services and ensuring interdepartmental interaction are necessary. The implementation of uniform quality standards for the provision of state and municipal services in multifunctional centers throughout the Russian Federation must be ensured.

Lists of state and municipal services provided in multifunctional centers must be approved at the federal, regional and local levels.

In the constituent entities of the Russian Federation, programs should be approved to optimize and improve the quality of provision of state and municipal services, including on the basis of multifunctional centers, providing for the possibility of obtaining state and municipal services on a “one-stop shop” principle in each municipal entity in the constituent entity of the Russian Federation. The development of requirements for the structure and content of these programs, as well as monitoring their compliance with the established requirements, is carried out by the federal executive body authorized by the Government of the Russian Federation, which provides methodological support in the creation of a multifunctional center. At the same time, quality control of the provision of state and municipal services must be ensured at all levels of public authority; all state and municipal services in the multifunctional center must be provided on the “one window” principle.

It is necessary to determine the requirements for multifunctional centers by category depending on the locality. Access points to the services of a multifunctional center, including services provided electronically, can be organized by equipping small rooms (with 1 - 2 windows) that meet comfort standards and are provided with information and technical means, including in local administrations, post offices, bank branches, as well as by organizing mobile (mobile) groups of a multifunctional center. It is necessary to regularly monitor the activities of the multifunctional center for compliance with established requirements, as well as the quality of provision of state and municipal services on the basis of the multifunctional center.

The procedure for providing state and municipal services, the list of documents required from the applicant to obtain the service, and their form are, as a rule, contained in the by-laws of the federal, regional and municipal levels. The requirements established therein place the main burden of collecting documents and confirming a particular status on the applicant, which contradicts the requirements of the Federal Law “On the organization of the provision of state and municipal services” and does not allow the “one-stop shop” principle to be fully implemented. To remove existing regulatory restrictions on the possibility of providing state and municipal services in the “one window” mode, it is necessary to make appropriate changes to the acts of the Russian Federation, acts of the constituent entities of the Russian Federation and local governments.

The development of multifunctional centers is a necessary condition for the formation of an information society, since a multifunctional center must provide access to portals of state and municipal services and thereby help improve the level of computer and legal literacy of the population and overcome the digital divide between the constituent entities of the Russian Federation. Multifunctional centers should become a point of access for the population to electronic government and municipal services. Mechanisms should be provided aimed at stimulating the implementation by constituent entities of the Russian Federation of measures to create multifunctional centers, including incentives for achieving results in improving the quality of the provision of state and municipal services.

Information systems to support the activities of all multifunctional centers existing on the territory of the Russian Federation must be combined into a single all-Russian information system to support the activities of multifunctional centers, providing:

integration with automated systems of state authorities, local governments and organizations involved in the provision of state and municipal services;

integration with information resources, including a single portal;

generation of reporting on the activities of multifunctional centers, necessary for analysis and development of proposals for further improvement of the activities of multifunctional centers.

In order to stimulate the process of providing state and municipal services on the basis of multifunctional centers, it is necessary to make a transition to reimbursement of the costs of a multifunctional center for the provision of services to authorities of various levels at the expense of the relevant budgets by providing interbudgetary transfers. It is necessary to develop mechanisms for providing funds from budgets of all levels to reimburse the costs of multifunctional centers, create an appropriate regulatory legal framework, remove regulatory restrictions, and also introduce new financing mechanisms into practice.

To implement uniform approaches to ensuring the quality of provision of state and municipal services in multifunctional centers throughout the Russian Federation, the legislation must clearly define the powers of executive authorities and local governments to ensure the creation and operation of multifunctional centers.

At the same time, at the federal level it is necessary to adopt documents providing for:

the procedure for assessing the compliance of a multifunctional center with established requirements;

a list of services that must be provided in multifunctional centers;

requirements for concluding agreements, methodological recommendations for the creation of multifunctional centers and requirements for concluding agreements on interaction between multifunctional centers and federal executive authorities, bodies of state extra-budgetary funds, government bodies of constituent entities of the Russian Federation and local governments;

unified rules, requirements and standards in the field of quality of provision of state and municipal services in multifunctional centers;

procedure for maintaining the register of multifunctional centers.

Subjects of the Russian Federation, if interested in creating multifunctional centers on their territory:

develop regional programs in this area, organize their implementation and financing;

create (establish) and ensure the activities of multifunctional centers;

interact with local governments on issues of placing multifunctional centers on the territory of municipalities, participation of local governments in the creation and maintenance of the activities of multifunctional centers, provision of municipal services on the basis of multifunctional centers;

monitor the quality of provision of state and municipal services, implement the “one window” principle in multifunctional centers on the territory of a constituent entity of the Russian Federation.

Based on the results of 2013, at least 1,500 multifunctional centers should operate in cities (urban districts) and municipal areas on the territory of the Russian Federation.

Issues of assessing the quality of provided state (municipal) services have an economic, political, and social aspect. Outsourcing the provision of state (municipal) services requires the use of an effective methodology for assessing the quality of the services provided. On the other hand, in the process of selecting a task performer, the use of a methodology for assessing the quality and effectiveness of the performer is required. At the moment, there is no single and effective method for assessing the quality of outsourcing services. However, it is the “quality” category that does not come first when concluding an outsourcing agreement.

To ensure improved quality and accessibility of mass and socially significant public services to citizens, the Ministry of Economic Development of Russia conducts annual monitoring of the quality and accessibility of public services, as well as studies of the degree of satisfaction of citizens with the quality of the activities of state authorities and local governments in terms of the provision of state, municipal services and the implementation of control and supervisory functions. In accordance with Decree of the President of the Russian Federation dated May 7, 2012 No. 601 “On the main directions for improving the public administration system”, by 2018 the level of satisfaction of citizens of the Russian Federation with the quality of the provision of state and municipal services should be at least 90%.

Monitoring and assessing the quality of services provided is a mandatory element in outsourcing processes.

A study conducted by the Outsourcing.ru portal revealed that “price is no longer the primary factor influencing the final decision. 52% of respondents answered that the cost of services is acceptable and corresponds to the declared level of quality. 31% expressed the opinion that prices are high, but the quality of services meets expectations. Thus, only 21% of respondents decided that savings were higher on the list of priorities than quality.” According to another study (Kuzbass Business Portal), 46% of respondents (26 respondents out of 57) had to change an outsourcer for the following reasons: 60% were not satisfied with the quality or level of service requests, 30% were looking for a lower price, 10% were due to other reasons .

The Ministry of Economic Development of Russia analyzed the results of monitoring the quality and availability of state (municipal) services for 2011. Let us present some results of this analysis. Answers to the question “How do you assess the quality of the provision of state (municipal) services?” showed the following picture (Fig.)

Figure 4.1 – Assessment of the quality of service provision by entrepreneurs and citizens as a result of the survey

During the research process, the Higher School of Economics assessed the level of satisfaction with the quality of government (municipal) services using two options

First option – Calculate the share of citizens who rate the quality of state (municipal) services as “Good” and “Rather good” (% of respondents). According to this method, 74.6%, including 65.7%, of respondents who applied for the service from organizations, and 75.7% of citizens who applied for the service in a personal capacity. This is a good indicator. The advantage of this technique is its simplicity, the disadvantage is that the opinion of many respondents who were not included in the survey is not taken into account.

The second technique is based on calculating a formula that takes into account the distribution of responses.

R=D 1 +D 2 +0.75D 3 +0.25D 4

Where D 1 is the share of those who rated “good”,

D 2 – share of those who rated “rather good”,

D 3 – share of those who found it difficult to answer,

D 4 – the proportion of those who rated it “rather bad”.

The results of the assessment of the submitted method are as follows: the level of satisfaction in general is 67.2 points out of 100, the level of satisfaction of entrepreneurs is 61.1 points, citizens are 68.0 points out of 100.

Figure 4.2 – State authorities (local self-government) to which respondents applied

Figure 4.3 – Assessment of the influence of individual factors on citizens’ satisfaction with the quality of government (municipal) services.

The concept of outsourcing comes down to three basic principles: first, everyone should do their own thing and be able to concentrate only on it. The second is the solution of related

tasks should be entrusted to someone who can handle them better. Third, this distribution of work saves the customer money and generates income for the contractor.

To date, most government bodies have carried out some work to identify redundant and duplicative activities, the advantages and disadvantages of the outsourcing model have been assessed, however, some tasks continue to be performed ineffectively and not always at a high quality level. This is due to the fact that due to the lack of a methodology for assessing the effectiveness of third-party organizations and the imperfection of Russian legislation, “unscrupulous contractors” are allowed to serve government agencies and perform business functions under outsourcing agreements.

The main approaches to the selection of criteria for assessing the performance of third-party organizations when determining the best conditions for fulfilling a contract for the supply of goods, performance of work, and provision of services are set out in Federal Law No. 94-FZ. The criteria for evaluating and comparing applications here are the contract price (unit price of goods, services, etc.); functional characteristics (consumer properties) or quality characteristics of the product; the quality of work, services and (or) qualifications of the competition participant when placing an order for work or provision of services; costs of operating the product; product maintenance costs; terms (periods) for supplying goods, performing work, providing services; the period for providing quality guarantees, works, services; the scope of providing quality guarantees for goods, works, and services. Developed instead of 94-FZ, Law No. 44-FZ establishes new requirements for the description of the procurement object, justification of the initial price of the contract, securing an application for participation in the procurement, evaluation of applications, as well as for procurement participants. These requirements will apply to all methods of identifying suppliers (contractors, performers).

The justification for the initial (maximum) contract price is regulated by Law No. 44-FZ in much more detail than by Law No. 94-FZ. Please note that the provisions on such justification will also apply to the price of a contract concluded with a single supplier (contractor, performer). Customers will be required to follow one or more of the following methods for justifying the initial contract price:

Method of comparable market prices (market analysis);

Normative method;

Tariff method;

Design and estimate method;

Costly method.

The priority is the method of comparing market prices, the rest can be used only in the cases specified in Parts 7 - 11 of Art. 22 of Law No. 44-FZ. When using the market price comparison method, the customer sets the initial (maximum) contract price based on information on market prices of identical goods, works and services planned for procurement, and in the absence of identical goods, works and services - homogeneous goods, works and services.

Law No. 44-FZ changes the criteria by which applications from participants in procurement procedures are evaluated. According to law 94-FZ, only one criterion is mandatory - the contract price. Now, when holding a competition, in addition to the contract price, the customer must use at least one more evaluation criterion established by Law N 94-FZ: quality of work, costs of operating the product, terms for providing a quality guarantee, etc. (part 4 of article 28 of Law N 94-FZ, clause 6 of the Rules for evaluating applications for participation in a competition for the right to conclude a state or municipal contract (civil contract of a budgetary institution) for the supply of goods, performance of work, provision of services for the needs of customers , approved by Decree of the Government of the Russian Federation of September 10, 2009 N 722).

Law No. 44-FZ contains a rule according to which the customer, when determining a supplier (contractor, performer) by any method other than an auction, will be required to apply at least two criteria, one of which must be price.

Thus, in addition to the contract price, Law No. 44-FZ specifies the following criteria:

Expenses for the operation and repair of goods, for the use of work results;

Qualitative, functional and environmental characteristics of the procurement object;

Qualifications of procurement participants, including their availability of financial resources, equipment and other material resources necessary for the execution of the contract, specialists and other workers of a certain skill level.

Such evaluation criteria as the period (periods) for delivery of goods, performance of work, provision of services, the period and scope of providing a guarantee of the quality of goods, work, services, are not specified in Law No. 44-FZ, in contrast to Law No. 94-FZ.

With regard to the contract price, it is established that the significance of this criterion should not be lower than the significance of the criterion of costs for the operation and repair of goods and for the use of the results of work (Part 5 of Article 32 of Law No. 44-FZ). If the state has established fixed prices for goods, work, services, then the customer has the right not to use the criteria of price and costs for the operation and repair of goods, for the use of the results of work (Part 8 of Article 32 of Law No. 44-FZ).

However, this interpretation also contains a number of shortcomings and inconsistencies, which we will analyze after considering the procedure for assessing the effectiveness of performers (third-party organizations) according to the criteria outlined above.

According to the current law, for the main types of orders (except for R&D), the significance of the two criteria “Quality of procurement” and “Qualification of the contractor” should not exceed 20%, and according to Resolution No. 722, the total significance of the criteria “Costs on components of life

cycle", "Terms...", "Warranty conditions" cannot also exceed 20%. Hence, the minimum significance of the “Contract Price” criterion cannot be less than 60%. Since the last three criteria vary slightly among different performers, the main “struggle” for the highest level of efficiency is between “Price” (the importance of which increases) and “Quality of performers” (the importance of which cannot exceed 20%).

The new law has changed the significance of the criteria. So, the sum of significance

two criteria “Contract price” and “Life cycle costs” must be at least 50%, since the second component (according to Resolution No. 722) cannot be estimated at more than 10%, then the share

The “contract price” remains 40% (instead of 60% under the law 94-FZ). 50% remains for the remaining components, but the total importance of the deadlines for fulfilling orders and warranty obligations cannot be more than 10%. Thus, the total importance of the criteria “Order Quality” and “Qualification of Performers” increases to 40% versus 20% under 94-FZ and is equalized with the significance of the “Contract Price” criterion.

Neither Law 94-FZ nor the new Law 44-FZ define the methodological basis for calculating a comprehensive indicator for assessing the effectiveness of the contractor (third-party organization) when fulfilling an order.

One more drawback should be noted. Legislative and accompanying documents do not establish maximum quality levels of criteria, below which the performer should be recognized

unable to perform the functions of an order, even if the overall rating of this performer according to a comprehensive assessment of his effectiveness is the highest.

The specialized scientific literature offers various methods for assessing the effectiveness of a performer. The process of calculating a complex indicator for assessing the performance of the performer (third-party organization) can be presented in the form of a multi-level hierarchical system. The performers' places are ranked according to the value of the complex indicator; the one with the maximum value of this indicator comes first.

Assessment of indicators in accordance with the Concept of reducing administrative barriers and increasing the accessibility of state and municipal services for 2011-2013, approved by Order of the Government of the Russian Federation of June 10, 2011 No. 1021-r, including:

· the number of applications by a citizen of the Russian Federation to the state (municipal) authority of the Russian Federation to receive one state (municipal) service;

· the number of requests from business representatives to the state (municipal) authority of the Russian Federation to receive one state (municipal) service related to the field of entrepreneurial activity;

· average waiting time in line when citizens of the Russian Federation apply to a state (municipal) body of the Russian Federation (minutes);

· the level of exceeding the established regulatory deadlines for the provision of state (municipal) services related to the field of entrepreneurial activity (percentage);

· the level of citizens' satisfaction with the quality and accessibility of state and municipal services provided directly by state authorities and local governments (percentages);

· level of citizens' satisfaction with the quality and accessibility of state and municipal services provided in the MFC (percent);

· other indicators formed on the basis of regular monitoring of the quality of provision of state (municipal) services and the performance of state and municipal functions;

· comparison of the obtained data with international ratings.

The quality of the services provided can also be indicated by such information as the valuation of citizens’ losses from poor-quality provision of government (municipal) services (Table)

To assess the quality of provision of government (municipal) services, scoring can be used to determine the rating of service providers. Let us present the results of an analysis of the quality of provision of such a service as “Registration of a legal entity. When carrying out this analysis, the rating was determined by the cost of the service and by time, and then the consolidated rating by federal subjects (Table 4.1)

Table 4.1 - Cost estimate of citizens' losses from poor-quality provision of government (municipal) services

Topic 4 System of indicators for assessing the quality and accessibility of public services

The introduction of a system for assessing the quality and accessibility of public services provided by consumers is an effective method of studying the current state of affairs in the field of service provision and developing ways to further improve these services, taking into account the needs and expectations of the service recipients themselves. The monitoring may be based on the system of indicators proposed below, detailing the criteria for the quality and accessibility of public services.

Indicators, distributed according to criteria characterizing the quality and comfort of public services can be divided into two main groups: 1) general; 2) specific.

The composition of the general indicators is compulsory for all services, as it reflects the main problems faced by consumers of public services. In addition to general indicators, specific indicators should also be developed that reflect the specific features of the process of providing a particular type of service. Specific indicators for each type of service are determined individually, based on its specific features and problems encountered in the process of provision.

Indicators for assessing the quality and accessibility of government (municipal) services:

1. Timeliness and efficiency

In general, timeliness represents the time spent by the consumer to receive the service from the moment of request.

Timeliness ensures that authorized bodies, institutions and individual officials fulfill their obligations to provide services and carry out related procedures within the time limits established by regulatory legal acts.

Composition of general indicators:

% (share) of cases of provision of services within the prescribed period from the date of submission of documents. The indicator is defined as the ratio of the number of cases of service provision on time to the total number of consumers served for a specific service X100%.

% (share) of consumers who waited in line for service for no more than 40 minutes. The indicator is defined as the ratio of the number of cases of waiting in line for no more than 40 minutes to the total number of consumers served for a specific service X100%.

Examples of specific indicators used in world practice: 1) % (share) of applications for determining the amount of pension benefits considered within 60 days from the date of receipt of the application; 2) % (share) of visitors received within the established 20 minutes from their assigned reception time; 3) % (share) of benefit payments within 10 working days from the date of receipt of the application; 4) % (proportion) of cases of emergency medical assistance arriving within 15 minutes from the moment of the call.

2. Quality of provision of public services

Indicators of service quality, depending on the nature of the service provided, may include: indicators of accuracy of data processing, correctness of paperwork, quality of the service process.

Composition of general indicators.

% (share) of consumers satisfied with the quality of the service provision process. The indicator is determined as the ratio of the number of consumers satisfied with the quality of the service provision process (the number of ratings is good and very good) to the total number of clients served for a specific service X100%.

% (share) of cases of correctly executed documents (correctly made accruals, calculations, etc.) - The indicator is determined as the ratio of the number of cases of correctly executed documents to the total number of documents issued for a specific service X 100.

Examples of specific indicators used in world practice: 1)% (share) of cases of accurate calculation of pension accruals; 4) % (share) of correctly issued passports; 3) % (share) of consumers satisfied with the waiting conditions; 4) % (share) of compliance with sanitary standards.

3. Availability of government services

Accessibility consists of assessing the simplicity and rationality of the process of providing a service, the clarity and quality of information explaining the order and procedures for providing services. In world practice, accessibility is determined by the quality of documents regulating the process of providing services and the effectiveness of the current information system, creating conditions for people with disabilities. Availability is determined by various spatiotemporal parameters. The main indicators that allow us to evaluate it are: the number and distance of public service points, work schedule.

Composition of general indicators.

% (share) of consumers satisfied with the quality of information about the procedure for providing the service. The indicator is determined as the ratio of the number of consumers satisfied with the quality of information about the procedure for providing a service (the number of ratings is good and very good) to the total number of clients served for a specific service X100%.

% (share) of cases of documents filled out correctly by the consumer and submitted the first time. The indicator is determined as the ratio of the number of cases of documents correctly filled out by the consumer and submitted the first time, to the total number of clients served for a specific service X100%.

% (share) of services information about which is available via the Internet. The indicator is determined as the ratio of the number of services, information about which is available via the Internet, to the total number of services provided X100%.

Examples of specific indicators used in world practice: 1) %(proportion) of applications for services filled out correctly upon first application; 2) % (share) of services for which it is possible to fill out an application via the Internet or send it by mail; 3) average distance of consumers from the place of service provision.

4. Appeal process

An important role in the process of serving the population belongs to clear and well-established procedures for appealing against actions (inaction) of officials who are in direct contact with consumers. To evaluate their actions and provide feedback, it is necessary to provide appropriate indicators characterizing: the effectiveness and efficiency of the process for considering and resolving complaints, the level of consumer satisfaction with the existing procedure and timing of complaints.

Composition of general indicators.

% (share) of justified complaints to the total number of consumers served for this type of service. The indicator is determined as the ratio of the number of justified complaints to the total number of consumers served for a given type of service X 100%.

% (share) of justified complaints reviewed and satisfied within the established time frame. The indicator is determined as the ratio of the number of cases of consideration of a complaint within a specified period to the total number of complaints filed X100%.

% (share) of consumers satisfied with the existing appeal procedure. The indicator is determined as the ratio of the number of consumers satisfied with the existing complaint procedure (the number of ratings is good and very good) to the total number of clients who filed complaints X 100%.

% (share) of consumers satisfied with the terms of appeal. The indicator is determined as the ratio of the number of consumers satisfied with the established deadlines for appealing (the number of ratings is good and very good) to the total number of surveyed consumers who filed complaints X 100%.

1) % (share) of complaints reviewed and satisfied within 10 days; 2) % (share) of justified complaints, based on the results of consideration of which measures were taken, and service recipients were informed; 3) % (share) of complaints that, after consideration, were found to be unfounded.

5. Service culture

Politeness reflects consumer satisfaction with the attitude of staff in the process of providing a service, and willingness to provide effective assistance when difficulties arise.

Composition of general indicators.

%(share) of consumers satisfied with the politeness of the staff. The indicator is defined as the ratio of the number of consumers satisfied with the politeness of the staff (the number of ratings is good and very good) to the total number of consumers surveyed X 100%.

Examples of specific indicators used in world practice:% (share) of consumers who noted the rude attitude of the staff of a government body or institution.