home » Ideas » Fundamentals of quality management of local governments. Application of quality management systems in local governments

Fundamentals of quality management of local governments. Application of quality management systems in local governments

Introduction to work

Relevance of the research topic

One of the important foundations for building a socially oriented civil society is such an institution of society as local self-government. In Russia, the importance and significance of organs local government and significant efforts are being made to create an efficient and effective system of local government. The effective functioning of the institution of local self-government largely depends on how successful and fast the building of a democratic, socially-oriented society in Russia will be. One of the tools to increase the effectiveness and efficiency of the functioning of the institution of local self-government is standardization.

Standardization is an activity aimed at defining and developing requirements, norms and rules within which the local government operates, performs its functions in relation to citizens and other interested parties. At present, standardization has already covered the services provided by local governments, and the positive effect of such activities is becoming obvious. Standardization of management systems of local governments is aimed at systematizing all aspects of the activities of local governments within the existing legal framework of local governments.

International standards in the field of management, developed on the basis of advanced management methods, will standardize the management system of the local government, taking into account the innovations in the field of management embedded in them and, thereby, further increase the effectiveness of the body. Thus, the standardization of management systems based on the innovative model embodied in the ISO 9000 standards can serve as a good basis for creating an effective system of local self-government in Russia, aimed at maximizing the satisfaction of the needs and expectations of citizens.

The validity of the above can be confirmed by the fact that a large number of local governments around the world are actively using the standardization of management systems in their activities, and they have chosen models based on the requirements of international standards as management models. It is also worth noting that the governments of many countries provide extensive organizational and financial support for the standardization of management systems, and especially the introduction of quality management systems in local governments. To this end, special programs are being developed and funds are being created that are supported by the government and financed at the expense of the state.

The degree of development of the problem. The dissertation explores and analyzes the issues of standardization of management systems, development, implementation, maintenance of effective management models in local governments. Conclusions, recommendations of the author are based on information, experience,

accumulated by domestic And foreign experts in the field of local government, as well as in the areas of standardization, management and quality assurance.

During the research and writing of this dissertation, work was studied in the field of standardization and quality management, as well as in the development of the theory of local self-government. Among foreign authors, first of all, one can distinguish such as E. Deming, T. Jefferson, J. Juran, G. Jellinek, K. Ishikawa, F. Kotler, O. Mayer, Tocqueville, A. Feigenbaum, T. Von Yering, L . Stein.

Among domestic works, one can single out works in the field of standardization and quality management by such authors as Yu.A. Adler, V.Ya. Belobragin, V.B. Boytsov, A.V. Vladimirtsev, N.V. Voitolovsky, V.G. Grafsky, E.A. Gorbashko, O.E. Kutafin, O.A. Martsinkovsky, V.V. Okrepilov, Yu.F. Shekhanov, G.I. El-kin, as well as in the field of local self-government - V.F. Abramov, M.V. Baglai, G.V. Barabashev, N.V. Guard, V.I. Fadeev, G.N. Chebotarev.

At the same time, the issues of this dissertation remained insufficiently developed due to the fact that the existing works do not fully present a comprehensive justification for standardization and application various models management in local governments, taking into account their field of activity and features laid down by the legal and economic foundations of local government in Russia. This was the reason for choosing this topic for writing a dissertation work and predetermined the purpose of the study.

Purpose of the study. The aim of the scientific research was to develop guidelines in the field of standardization of management systems of local governments to create an effective model of the quality management system in local governments, aimed at continuous improvement and maximum satisfaction of the needs and expectations of consumers of services provided.

To achieve this goal, the dissertation considered and solved the following tasks:

conducted a study of the development of local self-government in Russia;

explored legal framework activities of local governments in Russia;

an analysis of the feasibility of applying ISO 9000 standards was carried out and the features of standardization of quality management systems in local governments were determined;

proposed methodological framework for the design and development of local government services based on the requirements ISO standard 9001;

an analysis of tools for evaluating the effectiveness of the implementation of quality management systems in local governments is proposed.

a model for evaluating the activities of local governments has been developed.

object research local governments have been selected that have implemented or are ready to start standardizing the quality management system.

Subject of research is a set of theoretical and methodological issues of standardization, development and implementation of management system models and a model based on the requirements of the ISO 9001 standard in local governments.

Theoretical and methodological basis dissertation research were the works and concepts of domestic and foreign scientists and specialists in the fields of economic theory, standardization, quality management, local government, theory of management and organization economic activity, international legislation and the legislation of the Russian Federation in the field of local self-government, international and domestic regulatory and methodological documents on standardization, quality management and local self-government.

The solution of the tasks set was carried out taking into account regulatory and information documents, materials of domestic and international conferences, forums and seminars on the topic under consideration.

Research information base made special and periodicals, information resources of the Internet, as well as materials collected by the author directly in the organization being surveyed.

Compliance of the dissertation with the Passport of the scientific specialty

The dissertation in its content, subject and methods of research corresponds to clause 13.4 "Organizational and economic problems of the formation and monitoring of quality management systems of an enterprise (organization)" and clause 13.28 "Assessment of the quality of products (services) and management systems of an organization as a subject economic activity» Passports of the scientific specialty 08.00.05 - "Economics and Management national economy(standardization and product quality management).

Scientific novelty dissertation research consists in the formulation, theoretical justification and solution of fundamentally new provisions relating to standardization, development and implementation of an innovative quality management system in local governments. In the course of the study, the following most significant results were obtained:

the structure and model of formation of local self-government is proposed based on the analysis of the local self-government system in Russia, problems are identified and ways to solve them are proposed;

formulated unified principles, approaches and requirements of local self-government management, developed methodological foundations for harmonization of local self-government management systems with the relevant legislation;

developed and proposed a standardization model for management systems of local governments, based on best practices in the field of management;

the principles and methodological foundations for the design and development of local government services are proposed, taking into account the requirements of the ISO 9001 standard;

a self-assessment model for local self-government bodies was developed, taking into account world experience and its harmonization with legislative requirements;

methodological bases for calculating the effectiveness of the implementation of quality management systems in local governments have been developed.

Research methods, reliability and validity. The formation of theoretical provisions and the development on their basis of methodological foundations for the standardization of management systems of local governments became possible due to the integrated use of methods of system analysis, reengineering of management systems, economic and financial analysis, expert assessments, as well as methods for conducting self-assessment. The reliability and validity of the methods used is confirmed by their use in various applied research and in the production practice of one of the local governments - the Administration of the city of Bataysk, Rostov Region.

Practical significance of the study is that the use of the findings obtained in the work will allow the heads of local governments to develop and implement a management system aimed at maximizing the satisfaction of the requirements and expectations of citizens, the business community and other stakeholders, increase the investment attractiveness of the territory of the local government and have a positive impact on activities of local governments in general.

One of the problems modern society is to increase the confidence of citizens in federal, regional and local governments. In this regard, local governments play an important role in creating a vibrant community in which cost-effective, systematic and quality service to citizens contributes to social development, economic prosperity and the strengthening of order at the local level. This should take into account federal and regional policy states. Ensuring the high quality of the work of local governments helps to conduct, adjust and improve the public policy of other levels of government and state system generally. This approach makes it possible to ensure the proper quality of the work of authorities at all levels: local, regional and federal.

The needs and expectations of citizens can vary greatly from region to region, but in general, local governments around the world are striving to achieve greater high level democracy and pluralism, necessary conditions which are the transparency and efficiency of their activities. This, in turn, requires the normal management of resources and processes of local governments as a system.

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

An example of the implementation of a quality management system

in the Shakhty municipality

The administration of the city of Shakhty of the Rostov region is the first municipality in the Russian Federation in which a quality management system has been introduced and certified in accordance with the requirements international standard ISO 9001 (Figure 3.10).

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

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

Improve the quality of work of municipal employees.

Raise the level of municipal services provided.

Systematize the processes of administration.

Get away from the principle irreplaceable person» by eliminating the human factor

by order federal agency on technical regulation and metrology December 27, 2007 N 570-st approved the national standard of the Russian Federation GOST R 52614.4-2007 "Guidelines for the application of GOST R ISO 9001-2001 IN LOCAL GOVERNMENT" This standard was introduced with September 1, 2008.

Standard prepared by Open joint stock company"Research Center for Control and Diagnostics technical systems» (JSC NRC KD) based on our own authentic translation of the standard. Introduced by the Technical Committee for Standardization TC 10 "Promising production technologies, management and risk assessment".

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

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

The standard under consideration offers a consistent and systematic approach to quality management in local governments. This standard has been developed to assist local government personnel in applying ISO 9001:2005. It is also necessary to take into account the differences in the specific conditions of local governments and the culture of the region, and remember that there is no one way to operate a quality management system based on ISO 9001. Therefore, this International Standard provides examples related to the functioning of a quality management system in local governments.

The purpose of this standard is to apply it throughout the scope of services provided by a local government. Requirements for services are established in GOST R 52113-2003 “Services to the public. Nomenclature of quality indicators», including any requirements of an unforeseen nature.

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

The purpose of this International Standard is to assist local governments in understanding and implementing a quality management system that meets the requirements of ISO 9001 and the needs and expectations of citizens.

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

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

Improving the competence of officials;

Increasing the responsibility of officials;

Documentation of internal regulations for the provision of services, identification and elimination of duplicating and redundant functions in local governments;

Increasing public confidence in local governments.

The guidelines help local governments to link the basic quality management concepts defined in the ISO 9000 series of standards with practices and terminology commonly used by local governments.

It is assumed that the local government has a short and medium term plans or work program for the provision of its services. However, a plan or program does not guarantee that the needs and expectations of society will be fully met if the processes necessary for the effective implementation of the plan or program are not perfect. This International Standard aims to provide an in-depth understanding of local government processes to assist it in implementing an effective quality management system.

Third party certification of the quality management system is not a requirement of this International Standard, although local authorities may choose to certify the quality management system to the requirements of ISO 9001. Compliance with these requirements can be checked using internal audit, as well as based on complaints and / or requirements of consumers, users, other citizens and the local community as a whole.

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

ISO 9000 states that the success of an organization requires that the management of the organization be systematic and transparent in all its activities. This is especially true for local governments, where transparency and accountability to citizens is vital to building their credibility. Success will be achieved by establishing a comprehensive quality management system that addresses the needs and expectations of all stakeholders. The quality management system of a local government should cover all activities and processes that affect its ability to meet the requirements of citizens and other interested parties, such as higher authorities.

Keywords

FIRE SAFETY/FIRE SAFETY/ BODIES OF LOCAL SELF-GOVERNMENT/ LOCAL GOVERNMENT AUTHORITY / QUALITY MANAGEMENT SYSTEM/ QUALITY MANAGEMENT SYSTEM / MANAGEMENT / CONSUMER / CONSUMER / PROCESS MODEL/ PROCESS MODEL / PERFORMANCE CRITERIA / SOCIAL RESPONSIBILITY/ SOCIAL RESPONSIBILITY / EFFICIENCY CRITERION

annotation scientific article on economics and business, author of scientific work - Makarkin S.V., Vorobieva E.P., Sinyakova Yu.V., Latypov S.R.

Issues of development quality management systems(QMS) in the field of providing fire safety and its implementation in the activities of local governments. The sequence of actions for creating quality management systems in the area of providing fire safety. The main methods and tools used to organize the management of the activities of local governments, as well as the most significant criteria for evaluating performance are considered. quality management systems. Based on the analysis of typical processes in accordance with the provisions of IWA 4:2009, a process model quality management systems local self-government bodies of the municipality in the field of providing fire safety.

CREATION AND IMPLEMENTATION OF A QUALITY MANAGEMENT SYSTEM IN THE ACTIVITIES OF LOCAL GOVERNMENTS FOR ENSURE FIRE SAFETY

Questions of development and deployment in activity of local governments of quality management system in the field of ensuring fire safety are considered. Purposes of creation of SMQ (Quality Management System ), and also consumers of services of local governments services and interested parties are defined. The sequence of actions for the creation of quality management system in the field of ensuring fire safety with a concretization of the planned actions, the expected result and responsibility of performers is presented. Responsibility and obligations of the management in quality are established. Long-term goals are formulated and possible measurable indicators of their achievement are offered. Specifics of activity of local government are reflected in studying of questions of management of documents and records on quality with allocation of their identifying signs. Ways of obtaining objective information on satisfaction of consumers are investigating. Forms of exchange of information taking into account productive functioning of SMK are defined. Questions of competence of staff of local governments and criteria of quality of the rendered administrative services are considered. The main methods and tools used for the organization of management of activity of local governments, and also the most significant criteria of an assessment of productivity of quality management system are defined. On the basis of the analysis of standard processes according to the provisions IWA 4:2009 the process model of quality management system of local governments of municipality in the field of ensuring fire safety with allocation of processes of the management , the main and auxiliary processes is developed.

Therefore, in the authorities, the concepts used in business about effective organization activities, including elements of the quality management system.

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

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

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

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

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

The competitive advantage of nations, according to the World Bank experts, in the modern world depends on the quality government controlled, and therefore our "super-corporation" must become a customer-oriented firm through system improvements.

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

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

Setting up a quality management system (QMS) at the first stage
in business, it begins with a description of the current activities of the organization (“as is”) in the format of an organizational and functional model.

The presence of such a description allows:

systematically present the activities of the organization - unequivocally fix all types of products and services, functionality (key processes in a "folded" form) and the existing organizational structure;
compare the activities of the organization with the requirements contained in the standard
ISO 9001:2000 and identify areas of structure and function optimization.

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

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

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

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

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

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

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

Review of Russian experience

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

Here is a description of 4 projects.

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

Process flow improvements included:

elimination of unnecessary movements of the applicant between departments, some stages due to the lack of the need for their implementation, repeated requests for approval of various documents in the same service;
reducing the time for passing documents at each stage;
combining the procedure for issuing two orders into one, repetitive stages of harmonization of various documents.

The process was reorganized as follows.

We took a photo of the working day of specialists. Placed service workers in one office, having previously tested for psychological compatibility. We organized a commission visit of specialists from various departments to the facilities, for which we bought a Gazelle. We created a sector for monitoring the passage of legal acts in the structure of the administration. And they did what the reform of self-government bodies gave them the right to do: instead of the two orders that have been issued so far (the order to approve the project of the site boundaries and the order to provide the land), they began to issue one with all the ensuing conciliation procedures.

As a result of minimizing the contacts of the applicant with the official and reducing the time for passing documents, the cost of the service in the "green corridor" was reduced by 40%. The principle of "one window" and the tight deadlines for paperwork with the new approach made it possible to practically get rid of corruption on the part of officials. In fact, there is no one to give a bribe, no time and no reason.

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

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

Second example.

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

Let us note that the participants completed practical tasks on the development of maps and algorithms of processes in executive authorities, apparently on paper, because there is no mention of using any software.

What does this mean for public administration?

This means that if you need to make changes to the business process, this will have to be done again on paper.

And if there is a reorganization in the administration, which often happens in government bodies, all the documentation instantly loses its relevance and they simply stop using it.

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

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

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

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

During the development of documents, several main directions are distinguished.

First, for all public services rendered and functions performed, passports of functions are issued. We have experience in this work. Certification of functions in the Administration of the region will allow to conduct a primary analysis for duplication, reduction and the possibility of transferring for execution to non-governmental organizations. Passports that have passed the analysis are the basis for the approval of the register of public services and state functions of the Regional Administration.

Secondly, in the process of developing directly in the structural subdivisions of administrative regulations for the provision of public services and administrative regulations for the performance of public functions, there will be a secondary screening of services and functions for which it is not possible to create an administrative regulation. Consulting and examination of the developed documents will be carried out by quality auditors assigned to the divisions. Pilot samples of administrative regulations and methods for their development have already been created in the Department of State Regulation of Economic Activities.

To contribute to the quality and timeliness of the entire range of work on the project will be purchased for each division of the selection legal documents, standards, guidelines. All developed documents of the quality management system are combined into a single electronic library of the quality management system of the Administration of the Yaroslavl Region.

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

And one more project of setting quality management in the authorities.

"Ministry economic development and Trade of the Russian Federation was the first ministry to certify its Quality Management System.

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

Since April 2004, the Ministry of Economic Development of Russia has been working on the implementation of the QMS in the Department new economy Department of Corporate Governance of the Ministry of Economic Development of Russia. The scope of the Quality Management System is the activities of the Ministry for the implementation of the FTP " Electronic Russia» in the part assigned to the Ministry of Economic Development of Russia.

In June 2004, the Certification Association tested the Quality Management System of the Ministry of Economic Development of Russia for compliance with the requirements of the international standard ISO 9001:2000 and GOST R ISO 9001-2001. During the audit, minor inconsistencies in the QMS of the Ministry were identified. By the beginning of September, all discrepancies were eliminated, and the certification body decided to issue certificates of compliance of the Quality Management System of the Ministry of Economic Development of Russia with the requirements of these standards.

The QMS of the Ministry is based on software DocsVision "Quality Management", corporate system based on the DocsVision electronic document management platform, problem solving construction, support and development of the Organization's Quality Management System. "Quality Management" performs the functions of managing the QMS processes, and also solves the complex task of office automation, including the creation, routing and execution of documents, maintaining an electronic archive and organizing office workflow.

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

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

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

Thus, the following is typical for QMS implementation projects in Russian authorities:

locality of implementations (QMS affects one or more processes),
backward technologies for the implementation of QMS - either unrelated files of an electronic library, or without an information technology platform at all, QMS documents are created on paper.

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

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

What software is better to use to create, implement and maintain a QMS?

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

This means that it is necessary to represent the activities of the enterprise in the form of a model of interrelated processes:

satisfaction-oriented processes customer needs,
processes that support this activity,
management processes.

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

This approach is transferred to the authority as follows.

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

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

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

As a result of building and optimizing the model of the activity of the authority
using the GOS-Master 2.0 program, an administrative model “as it should be” will be obtained, in which all the main aspects of organizing activities will comply with the requirements of the ISO 9000 standard. The QMS of a public authority will be reflected in its administrative model, which will allow issuing the entire package of necessary documents regulating activity (execution of the powers established by the authority), which is one of the main requirements of ISO 9000 quality management standards.

Thus, a modern solution that makes it relatively easy to solve the problem of “creating and constantly updating” is to support not a system of interrelated documents, but organization information models, which will generate the required documents. In addition, thanks to the technology of creating documents from a single model, they will not contradict each other.

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

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

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

The main purpose of the E-Master:

support for the development and monitoring of organizational and administrative documents, including QMS documents;
storing electronic versions of documents, identifying their status and working with them, taking into account user access rights.

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

But in Russian practice, there are no projects for setting up a QMS on a scale of the whole government agency using special software tools that simulate its activities on a modern information technology basis, perhaps because it is not very known that such tools exist.

QMS staging project

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

Table 2

	Target	Result
Preparing for the project
Conducting seminars for senior and middle-level civil servants. 1. About ISO 9000-2000 standards. 2. Technologies and tools used in the creation and operation of the QMS. 3. On the plan for the implementation of the QMS project in the OIV	Acquaintance with modern technologies quality management. Formation of a sense of responsibility for the implementation of the project.	Personnel mastered the concept of quality. Potential project participants from the side of the EIA, who understand the composition and methods of solving problems
Training the members of the working group on how to work with the GOS-Master 2.0 program	Training of specialists who will maintain the system of quality documents	Trained employees
Project planning Formation of the specified scope of work, the composition of the working group, the schedule for the development of the QMS and its approval by the management of the OIV.	Coordination of the plan-schedule of the project	QMS creation plan
Project implementation
Construction of the initial organizational and functional model of OIV. Identification and initial certification of the system of processes of the EIA and its comparison with the requirements of the ISO9000 standard	Definition of deficiency of functions, processes, documents	Initial process specifications. Requirements for their optimization
Building strategic model OIV. Development of a quality policy, a tree of goals, a preliminary system of indicators of the quality of processes and methods for their measurement	Creation of a mechanism for linking the strategic and process levels of management	Formalized system of strategic goals of the OIV, operational goals and process indicators.
Construction of a process model of the RIA Assessment of maturity level and development of process models: definition of goals and indicators, information support mechanisms, certification and documentation QMS processes	Full identification and necessary development of the process system	ISO 9000 compliant administrative model
Development and implementation a complete set of QMS documentation using an electronic model. Delivery and setup of a document management system and information portal(E-Masters).	Implementation of the system of QMS documents for ISO requirements 9001:2000	A complete system of OIV regulations. Including documented procedures for all key processes QMS documentation available for maintenance and use.
Final preparations for certification
Training of the Commissioner for Quality and internal auditors	The presence of a specialist in the field of quality management. Creation of an audit team to run internal audit processes	Certified specialist in the development, maintenance and improvement of the QMS. Trained group of employees (2 people)
Pilot operation of the QMS, internal audit to meet the requirements of ISO 9001:2001 and corrective actions based on their results: elimination of deviations identified during trial operation QMS	Checking and testing the functioning of the QMS OIV	Effectively functioning QMS
Final audit of documentation and preparation for QMS certification. Selection of an independent certification body.	Achieving the suitability of the created QMS for certification	Application for QMS certification

The principal feature of the proposed project: the use of the Russian software tool GOS-Master2.0, created specifically for the authorities, corresponds to the course of the country's leadership to reduce dependence on foreign software manufacturers.

"Guidelines for Performance Improvement"

Decree of the Government of the Russian Federation of November 11 2005 . N 679 "On the procedure for the development and approval of administrative regulations for the performance of state functions and administrative regulations for the provision of public services." The text of the resolution was published in the Collection of Legislation of the Russian Federation of November 21 2007 . N 47 Art. 4933

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

See: O. Goncharova. Improving the quality of municipal services is a requirement of the time! // Standards and quality. - 2006. - No. 10. - S. 78, 79 ..

0 0 20/11/2018

QMS in the state structure: works or not

CIBO specialists described the experience of implementing certain quality management tools in government organizations ambiguously. Opinions were divided. On the one hand, experts singled out a formal approach, lack of motivation, labor costs, resource costs, and substitution of concepts.

And on the other hand, they noted an increase in the quality of the result, validity in profile application, i.e. by sectoral areas of activity. The approach was recognized as especially relevant for companies that offer a specific consumer a certain final “product” or “service” that has its own specific consumers.

I absolutely do not agree that the QMS in government agencies is a “substitution of concepts”. QMS can be implemented in relation to the result of a specific process, for example, the provision of a certain public service, or to the activities of a certain unit in the structure of a public authority. However, in any case, the principles of the QMS are applied in a complex way to a certain management system of an organization that produces a product or service.

As you know, the quality system is a general paradigm within which it is possible to effectively implement and correctly coordinate tools and methods of various nature that can help improve performance and anticipate customer requirements (0.1 - ISO 9001: 2015). CIBO experts spoke about the experience of applying various practices implemented in various state institutions within the framework of the QMS: it was - it was. The results have been mixed.

Case 1. Budgeting with an eye on results

The PB project, one of the tools of the management system, was implemented in the mid-2000s. Its implementation, from the point of view of federal executive authorities, is the calculation of the costs of maintaining government bodies.

In these calculations, according to the ideologists of POR, in addition to the monetary maintenance of officials, the costs of material support should have been included.

The cost calculation was planned for a three-year period. As a result, each individual function of federal executive authorities received a cost estimate.

The costs of "providing" subdivisions were added to the costs of maintaining "sectoral" subdivisions that directly exercise the powers of the federal executive authorities and perform a specific function.

As a result, the budget calculated according to this methodology exceeded the amount of funds provided for the maintenance of federal executive bodies by a multiple.

Case 2. Methodologies for monitoring the quality of financial management in subordinate organizations of federal executive authorities

At one time, the federal executive authorities developed a methodology for monitoring quality financial management subordinate organizations. In fact, it was a copy of the methodology developed by the Russian Ministry of Finance for assessing federal executive authorities. The financial management quality monitoring system included a list of indicators by which subordinate organizations were evaluated. Based on the results of monitoring, the central office of the federal executive authorities formed a rating of the quality of financial management of organizations. As a result, organizations that won first places were encouraged.

This assessment was of a formal nature, since:

for all types of subordinate organizations, a unified system of monitoring indicators was used. However, the subordinate structures are not comparable due to differences in functions and budgetary powers;

monitoring methodology did not take into account changes in legislation;

the analysis of the quality of the initial data submitted by the organizations in the central office of the federal executive authorities was not carried out to calculate the monitoring indicators. It was possible to transmit distorted/incomplete information in order to get more high positions in the ranking;

the final results of the assessment of the quality of financial management were calculated by the central office of the federal executive authorities without the use of automated information systems;

the final results of the assessment of the quality of financial management were not analyzed. Accordingly, management decisions were not made to eliminate the shortcomings of processes and procedures;

the heads and employees of the structural divisions of the central office, as well as subordinate organizations, were not interested in the monitoring results. They considered this tool interfering with their direct job duties.

CIBO created a new methodology for monitoring the quality of financial management. It met the requirements of the legislation and included a number of promising areas.

By analyzing the reasons for the failure to achieve financial management quality indicators and timely adoption management decisions the quality of observed processes and procedures improved.

However, a number of shortcomings still remain:

weak interaction between structural subdivisions of the central office of federal executive authorities;
heads of some structural divisions of the central office and subordinate organizations remained uninterested in monitoring the quality of financial management, because they did not understand the purpose of the tool;
lengthy stages of approval of changes/adjustments to the methodology and assessment results.

However, the work done is assessed positively: a deep analysis of processes and procedures was carried out, shortcomings were identified, which were partially eliminated "in hot pursuit". The most significant and systemic shortcomings formed the basis of indicators for monitoring the quality of financial management. Thus, they are constantly monitored, the causes of occurrence are identified and measures are taken to eliminate these shortcomings. It is important that the heads of the financial and economic structural unit were interested in the methodology.

Case 3. Organization of the public and business center "City of the Future"

From the point of view of the idea and approach to implementation, the case for the implementation and certification of the QMS of the administration of the city of Shakhty, Rostov Region, is interesting. The main result of the implementation of the QMS was the creation of the country's only public and business center "City of the Future" (ODC), opened in November 2009 in Shakhty.

The goal of the project is to place services providing state and municipal services to the population in one building. The result is the optimization of work processes, the rejection of intermediaries in the provision of services and, to a large extent, an increase in the quality of public services.

At the first stage, by the end of 2009, it was planned to place 11 services in the City of the Future building. These are structural divisions of the administration, federal and municipal organizations, utilities.

Due to the introduction of the QMS, the administration leaders already at the first stage achieved the following results:

reduction of the term for the execution of official documents by two to three times;
reducing the time for consideration of citizens' requests (115 reception windows serving up to 2,500 people a day);
improvement of traceability and transparency of document flow;
unification of the office workflow system;
improving the performance discipline and responsibility of employees.

Difficulties in implementing the QMS in the federal executive authorities

Among the characteristic problems that arise in the implementation of quality management tools in the public sector, the following nine can be named.

Inertia in decision-making and low initiative. On the one hand, the state structure is characterized by inertia in decision-making. This is due to the need for constant coordination of even the simplest changes. On the other hand, there is a strong dependence on the decisions of higher managers and lack of independence in decision-making, there is no internal interest of the staff, as well as an adequate system of motivation. Low initiative is due to constraining factors in the form of prosecutorial supervision, excessive regulation of the issues of organizing the activities of government bodies.

Weak communication with subordinates. Even the most enterprising and talented employees eventually lose interest in the work process if they are not heard by management.

Limited resources. To introduce quality management tools, additional resources and an increase in the burden on employees of state institutions are needed.

Delayed results. To achieve a visible result, it is necessary to overcome many bureaucratic barriers and the disinterest of performers.

Insufficient organization of the retraining process. Not enough attention is paid to the coverage of the topic of QMS. Outside the framework of training and retraining of personnel, the study of “management tools and technologies” is the desire and initiative of the official himself.

Officially recognized irregular nature of activity. A significant amount of instructions aimed at "satisfying curiosity" - various reports, certificates, the preparation of which is not formalized in job regulations.

The effectiveness of the implementation of tools is not tracked. The work of specialists is hampered by the lack of adequate calculations of the effectiveness of the implementation results management technologies. The situation for achieving the results of such implementation worsens the lack of personal responsibility of the top official who made the decision on the mass implementation of the technology.

Lack of terminology. There is no single glossary for all state bodies.

The lack of interest of government officials. Lack of understanding of the goals of implementation and lack of choice (an order came from above) lead to the fact that the QMS becomes a formality. Hence, insufficient staffing and resource support for the design and implementation of technologies.

prospects

Despite the shortcomings, more and more modern instruments is integrated into the public sector of management, for example, the so-called program-targeted instruments. Unfortunately, many government programs as long as it is formal. However, the first steps to solve the problems have been taken.

At the same time, the experience of government agencies in a number of countries can be positive. For example, not so long ago, the government of India decided to get certified for compliance with ISO 9001. Dozens of government agencies in Poland have introduced various management standards. This was one of the requirements for joining the European Union.

The International Organization for Standardization is actively developing standards for government agencies. Specialized standards have already been released that adapt the requirements of ISO 9001 to the needs of civil services. The trend cannot help capturing Russia in the end.

Expert opinion: the main problem is the lack of a process approach

Mikhail Dmitriev, head non-profit organization"New Economic Partnership", in the past - the head of the Center for Strategic Research:

“To date, the results of the implementation of the QMS in the public administration system cannot be considered unambiguously successful. One of the main reasons for this is the attempt to use the QMS to manage poorly structured activities that are not organized in the form of full-fledged formalized processes.

Our experience in analyzing current activities in federal executive authorities shows that most of the functions and services are not performed in a process format. Under these conditions, it is difficult to manage performance, apply statistical methods of performance analysis and, moreover, to reliably assess the objective needs for resources and funding.

There is a widespread opinion of civil servants that this or that activity in the federal executive authority is already a process (at least on the basis that there is an approved administrative regulation). But upon careful study, we have almost never come across an administrative regulation that would adequately reflect the real content of the activity.

For the same reason, it is difficult to recognize the successful introduction of PB, which in most cases results in bureaucratic imitation. It is necessary to at least clearly separate the issues of budgeting process and project activities. Each of these activities requires specific rules for planning and executing budget expenditures. These features must be taken into account in regulation budget process. But until recently, this was not given importance.

Only in the last year and a half, pilot testing of new budgeting mechanisms within the framework of state programs has begun. They take into account the specifics of budgeting process and project activities and set the task of normative fixing of these differences. In any case, for the successful implementation of the QMS, it is necessary to transfer the current activities of the federal executive authorities into a process format. Given the current extremely unsatisfactory level of application of process methods, this task may take at least 4-5 years to solve.”