Lecture. Methods of public administration

The tasks and functions of state regulation are implemented in the specific actions of the bodies and officials exercising control.

The form is an objectified external expression of the essence of the activities of bodies and officials who manage within the framework of their assigned competence.

The variety of tasks and functions of public administration determines the existence various forms management activities that are provided for by law. Usually they are fixed in special (general and individual) provisions, charters and other acts regulating the activities of executive authorities.

The type of a specific form of management activity is determined by the nature of the actions of executive authorities to implement the functions assigned to them. In some cases, these actions entail legal consequences, in others they do not (for example, organizational and mass work). In accordance with this, the forms of activity of executive authorities are divided into legal and non-legal. A characteristic feature of the legal system of management is that the state-imperious, executive-administrative, sub-legislative nature of the powers of executive authorities and their officials is most clearly manifested here.

Legal forms are classified according to their content, purposefulness and mode of expression.

Law-making management activity consists in the development of legal norms, their improvement, change and cancellation, i.e., in the creation of regulatory acts of management.

The law enforcement activity of bodies and officials consists in the actions of management entities to bring a specific fact of legal significance under the relevant rule of law in order to adopt an individual act, that is, to resolve specific administrative cases based on the rules of law.

By purposefulness, the legal forms of management activity are divided into internal and external. Moreover, both internal and external legal forms of management can be both law-making and law-enforcement.

According to the way of expression, legal forms of management are divided into verbal (both written and oral) and conclusive.

Non-legal forms of managerial activity include forms of organizational and logistical actions in management. These include the preparation of all kinds of certificates, reports, office work, paperwork, holding all kinds of meetings, etc.

An objectified expression of the legal form of activity of subjects of state administration is a legal (legal) act of management.

A legal act of management is a unilateral legal and authoritative will based on the law of an authorized subject of executive power, aimed at establishing administrative and legal norms or the emergence, change or termination of administrative and legal relations in order to implement the tasks and functions of public administration.

A legal act of management, as a rule, is issued as a written legal document, which requires compliance with certain, officially established rules (procedures) that provide for the procedure for preparing a draft act, its discussion, examination, approval, etc. But legal acts of management can also have an oral expression (for example, within the framework of official relations between the head and employees of the management apparatus directly subordinate to him).

Legal acts of management are subdivided according to their legal properties; by validity period; on the territory of action; by the nature of the competence of the bodies issuing them; on bodies and officials publishing them; and in the form of expression of these acts.

According to their legal properties, legal acts of management are divided into normative acts, individual acts and acts of a mixed nature.

According to the period of validity, legal acts of management are divided into urgent, unlimited and temporary.

According to the territory of action, legal acts of management are divided into acts that are in force throughout the territory of the Russian Federation; acts in force on the territory of the subject of the Russian Federation; acts in force on a part of the territory (territory of the district, city).

According to the nature of the competence of the bodies issuing them, acts are divided into general, sectoral and special (intersectoral).

According to the bodies issuing them, legal acts of management are divided into those issued by the President of the Russian Federation (decrees and orders), the Government of the Russian Federation (decrees and orders), ministries and state committees (orders, instructions, orders, etc.), administrations (orders, decisions).

According to the form of expression, legal acts of management are divided into written, oral and conclusive.

Public administration methods are understood as methods (techniques) of influence of the subject of management on the object of management, which is used to achieve the goals and objectives of management.

The main methods of state administration are persuasion and coercion.

On the basis of the ratio of the methods of persuasion and coercion, other special methods are distinguished. So, according to the nature (content) of the control action, moral and political methods (education, propaganda, moral encouragement) are singled out; organizational methods (coordination, consistency); sociological methods (interviewing, questioning, observation); psychological methods(motivation, authority).

Administrative methods, as a rule, are qualified as methods of non-economic (direct) control action on the part of the subjects of state-administrative activity on the relevant objects. Their direct nature is manifested in the fact that the subject of management, within the framework of the competence assigned to him, manages directly - through the adoption of a managerial decision (legal act of management), legally binding on the subject of management, i.e. for the addressee. The non-economic nature of these management methods means that the real object of management is the conscious-volitional behavior of the controlled, which is regulated through the impact on the will and consciousness of the controlled (the so-called “subordination of wills”) through persuasion or coercion to proper behavior.

The essence of persuasion is that it is a method of influencing social relations, and its content includes a set of specific measures to influence people's consciousness and behavior. Important forms of persuasion: clarification of the requirements of the law, legal propaganda, criticism of antisocial acts, reward system.

Being a kind of state coercion, administrative coercion is used mainly as an extreme means of ensuring and protecting law and order in the field of public administration.

Measures of administrative coercion are various. According to their intended purpose, they can be divided into three groups: administrative and preventive measures; administrative and preventive measures and measures of administrative responsibility.

Administrative and preventive measures of a coercive nature are applied, as follows from their name, in order to prevent possible offenses in the field of public administration, to prevent other phenomena harmful to the public security regime. The most typical among them are: control and supervisory checks; inspection of things and personal inspection (customs, police); verification of identity documents; administrative detention; introduction of quarantine (in case of epidemics and epizootics); examination of the medical condition of persons and the sanitary condition of catering establishments, requisition of property, etc.

Administrative preventive measures are intended to stop illegal actions and prevent their harmful consequences. They are also diverse and are used by various bodies and officials. Their most typical examples are: demands to stop illegal actions; direct physical impact; the use of special means; the use of weapons; compulsory treatment; prohibition of operation of vehicles, etc.

Measures of administrative responsibility are applied in case of committing an administrative offense and the next topic of the course is devoted to them.

Administrative methods are subdivided: according to the form of expression; by legal properties; according to the method of influence and the form of prescription.

According to the form of expression, administrative methods are divided into administrative-legal, expressed in legal form, and administrative-organizational, expressed in the commission of any organizational actions by the subject of management. According to their legal properties, administrative methods are divided into normative (instructions, instructions, etc.) and individual (prescriptions in the form of direct orders). According to the method of influence, they are divided into binding, empowering, encouraging the commission of socially useful actions and prohibiting the commission of certain actions. And according to the form of prescription, administrative methods of management are divided into categorical (mandatory), surety (when a higher body entrusts the performance of functions that are not within the competence of lower bodies) and recommendatory.

Economic methods affect the objects of management not directly, but indirectly, since their control effect is achieved through material incentives, the creation of such economic conditions that encourage the controlled to proper behavior. The main thing here is that the proper behavior of controlled subjects is achieved by influencing their material interests, i.e. indirectly, in contrast to the methods of direct power influence (this can be, for example, material incentives in case of successful activity, the provision of property or tax benefits, etc.).

Methods of public administration in modern conditions

Methods of public administration- these are techniques, means, ways of influencing the state on the social life of people. The methods of influencing the ruled are manifold: a) direct (immediate) influence, based both on the authority of the subject of power, and on external coercion; b) influence through motives and needs - stimulation of desired behavior and activities; c) through the system of values ​​- information, education, training; d) through the surrounding social environment - changes in working conditions, the status of the organization; change in the organization of cooperative activities of people. Each of them is carried out means. Hence the grouping of control methods.

Depending on the means of control, methods differ: administrative-legal, organizational, political, economic, social, informational, ideological and socio-psychological. Other typologies are possible. By the nature of the impact : democratic, authoritarian, coercive, manipulative, mobilization, participatory. According to the impact : revolutionary and reformist, innovative and conservative.

Administrative and legal methods are based on the hierarchical structure of the governing state entity. Their essence is the impact on those managed according to the “order-execution” type. The relationship of direct subordination of the managed to the manager is ensured by the system of legislation, the exercise of power “vertically”, the application of prohibitive sanctions, up to legal coercion. Toolkit of administrative and legal methods: law, by-laws, directive, order, order, regulation, instruction, etc. Subject , applying these methods - bearer of administrative power.

An example of the implementation of the administrative-legal method can be any resolution or order of an executive authority containing mandatory instructions for lower authorities to carry out certain activities to manage the subjects within their jurisdiction.

Administrative and legal methods are characteristic of the bureaucratic model of a managerial organization. It is distinguished by: rigid centralization of power (in the form of unity of command); formalization of the rules of conduct for members of the organization and standardization of tasks; inviolability of the organizational hierarchy (each lower level is under the direct control of the higher; each member of the organization has a narrow strictly established circle of rights, duties and competencies, etc.). This model is effective in a stable environment and a low level of technology used. It will inevitably face difficulties as the uncertainty of the managerial situation increases and the tasks solved by the organization become more complex.

Organizational Methods are based on legal norms and the specific power of the organization as a system. This is management by creating organizations or improving existing ones to solve certain problems. Every organizational process is a form of a specific management process. The coordination of functions, the optimization of their implementation, the prevention or overcoming of dysfunctions, the harmonization of structures, the activation of the participants in the control system - all this is largely ensured by a quality organization.

Organizational methods affect all stages of management. Here is a set of typical organizational actions: distribution of roles between participants in managerial relations or making adjustments to the existing scheme of role statuses; redistribution of powers, duties and responsibilities, verification of performance; development and implementation of tools for the implementation of organizational and managerial power: regulations, instructions, guidelines, etc.; personnel movements; improvement of the internal communication system, etc. Organizational measures in combination with administrative means of influence (order, order, etc.) form administrative and organizational methods.

Political methods of management(guidelines) are ways of directly or indirectly (mostly) influencing the behavior and activities of those controlled by political means. First of all, we are talking about the state policy developed and implemented by the ruling power. Economic, social, national and other strategies are the most important guiding factors of the state's influence on society and on the management system itself. Public (open) policy is an organizing and mobilizing force. Its impact on the controlled masses and social processes is the influence of common interests, of which politics is a concentrated expression. Political methods are an integral part of democratic management technologies. The latter are made up of the entire complex of democratic forms, norms and procedures for political actions and relations that have developed in the practice of democratic states. At the highest level of the organization of power, the leading place is occupied by the technologies of parliamentarism - normatively fixed forms, methods, means and procedures for collective discussion and adoption of legislative acts. Parliamentary debates, opposition activities, lobbying of groups and interests in parliament, the practice of parliamentary inquiries to the government, parliamentary hearings, as well as various types of elections as forms of expressing the will of the majority are just some of the most effective forms of the political process.

The specificity of political methods is in influencing people's behavior, on their choice of forms of participation (or non-participation) in the political process, on their attitude to the system of dominant values, on the formation of the socio-political situation desired for the state, on the attitude of citizens to power, etc.

Economic Methods usually considered in relation to administrative and legal when it comes to the problems of state regulation of the economy. The main difference between economic methods and administrative-legal, political and other methods lies in the impact of material, mainly financial means on the interests of the governed. The economic factor is not an instrument of direct violence; he compels managed to act in accordance with material needs, with the desire to have the means to satisfy them or to accumulate them.

The distribution and redistribution of material and financial resources by state bodies, the regulation of financial flows in the country, the development and implementation of budgets are the main tools for managing economic methods. And in relation to a person, these are mechanisms of material incentives for labor and entrepreneurship. The most important incentive is profit; the power of wealth, money.

social methods, as well as economic ones, they are used by the managing subject in order to motivate the activity of the governed by changing the social environment and satisfying vital needs and interests. The essence of social methods lies in the impact on the factors that motivate the driving forces of people's social activity, on the factors that block their influence, on the factors that cause a person to be satisfied with the conditions of his life and the results of specific activities, and those that cause dissatisfaction, stimulate social passivity or even alienation. from public affairs.

The arsenal of social means of controlling influence on the managed includes both technologies for the formation of reasonable needs, as well as means of social control and incentives. Among the state technologies are the development and implementation of national social standards; legislative consolidation and implementation of the subsistence minimum of the population and regulation on its basis of systems of wages and pensions; a combination in social policy of state forms of providing the population and services of the private sector, state support with market mechanisms for its implementation.

Ideological Methods are focused on activating the public consciousness of people and is subordinated to the formation of a system of motivations corresponding to the goals of state policy. The practical forms of implementing ideological methods are diverse, but the main thing is the promotion of socially significant ideas and spiritual values ​​by all possible means. modern means through the activities of all institutions of training and education and, of course, the media. Elements of ideological technologies: concepts, ideological attitudes, appeals, slogans, state symbols, politically and ideologically oriented terminology. The method of influence is the persuasion of people, the manipulation of mass consciousness and behavior. At present, aggressive technologies of ideological coercion and spiritual violence against a person are beginning to dominate. The struggle of ideologies acquires the sharpest forms and provokes political confrontation, reaching the point of violent conflicts. Civilized rules of state administration, of course, exclude such consequences of the application of ideological methods.

Information Methods- a set of information technologies for influencing the control object. The means of influence is various types of information: service, scientific, propaganda, etc. The main tool of information technology is the modern mass media industry. Information as an element of managerial influence permeates all methods of management, and therefore the methods under consideration are implemented as part of all other methods. They act independently in politics and specialized branches of spiritual life: in science, ideology, television and radio broadcasting, the press, etc.

Information technologies are aimed at both indirect and direct impact on managed objects. They form appropriate action algorithms, orientations and attitudes, beliefs and cultural (or countercultural) patterns, and contribute to integration or disintegration processes.

The role of information methods increases dramatically due to the fact that information begins to play an increasingly important role in the life of society, creating opportunities for managing social subjects based on control over information flows. The first way is to filter information (for example, do not show violence on TV). The second way is the interpretation of information (interpretation, emotional coloring, form and nature of the information provided). If a person technologically submits information, then it will always be perceived as necessary for the subject of management. And truth, truth, as the correspondence of information to reality, does not play here leading role, they may not matter at all.

Modern information methods are based on the allocation of two types of information received: real and virtual. What is the difference? Real information- this is the information that a person perceives directly from the real world, what surrounds him. Virtual Information– this is information that the social object itself does not directly perceive, but receives from some intermediaries (media, rumors, gossip). Today, society receives more and more information that affects the worldview, behavior of people from virtual sources (TV, Internet, newspapers, radio). Consequently, the one who selects some blocks from a huge amount of information, places them in a certain way, submits and repeats, with a high degree of probability, can influence our behavior, the vision of the world by certain groups of people

In order not to succumb to manipulative information influence, it is necessary:

Listen to different points of view, different sides;

Understand your interests and "dance from your interests."

The interest of a person, group, class, the interests of an organization are objectively determined by the real conditions of existence of this person or group. Interests differ due to different conditions of existence (people, groups).

Socio-psychological methods- this is a set of techniques and means for the purposeful formation of mindsets, public feelings, psychological states, public calm or tension, mass optimism or pessimism, social activity or nihilism, social expectations, preferences, orientations, etc. There are no special institutions in the public administration system that would deal exclusively with the formation of a socio-psychological atmosphere in society. This work is carried out primarily by the media, ideological organizations, institutions of literature and art, as well as the church. The state cannot forcefully impose this or that socio-psychological project. The guideline for the activities of these organizations is the state policy, its essence and direction.

Socio-psychological technologies are often used in manipulation methods. Manipulation (French manipulation, from lat. manipulus - handful, handful, manus - hand) - a system of methods of hidden or disguised socio-psychological influence on the masses in order to change their views and behavior in the direction desired for the manipulating subject. Manipulation is carried out mainly through the media. Manipulation techniques are varied: conscious inadequate actualization of events, ideas, opinions, customs, stereotypes of behavior; distorted coverage of the historical past and contemporary phenomena; one-sided selection of facts and arguments, etc. Language means are widely used, for example, the manipulation of terms, the technology of presenting information (accents, illustrations, plots, etc.).

In the real process of functioning of the public administration system, the described methods and technologies are used in various combinations. The priority of a certain type of method for a given state system does not cancel the general rule - integrated using different methods. Since government decisions are multi-purpose, then their implementation can be carried out not by one, but by a combination of methods and means of controlling influence on a managed object, with the leading role of those. which correspond to the political nature of the system.

An analysis of the means and methods of making and executing state decisions will be incomplete if the issue of management style is not considered.

The concept of " style management » denotes a set of specific means and techniques of control technology, united by a common idea, that are typical for a given subject. Management style should not be reduced only to any individual methods or techniques, stereotypes or original approaches, as well as individual characteristics of the relationship between managers and subordinates. It melts down, synthesizes elements of various methods and technologies, rules of conduct, collective and individual socio-cultural positions and attitudes. Style– this is a single entity, formed mainly purposefully on the basis of a certain idea– concepts of public administration and, of course,– practical experience.

First of all, it is important to note the existence of styles collective management– government agency, organization and subject of individual – specific leader or official. The common features inherent in them are concretized and supplemented by individual ones, due both to the specifics of professional activity andand personal qualities.The concept, the principles of the system determine the general features of the style of public administration– that special variety of methods and techniques for making and executing decisions, which demonstrates the collective managing entity (government bodies at all levels): for example, focusing on certain methods as a priority for the subject; preference for certain motivating stimuli of activity (material or social), propensity for certain types of decision-making technologies (innovative or routine), etc. Individual subjects contribute to the range of diversity of managerial behavior and actions, giving the official style of a collective -individual, informal character.

The style of activity of the collective state subject of management determines the main features of the style of the individual subject. However, the influence of the latter cannot be underestimated. Moreover, in the system of public administration, the style of the leader can, under certain conditions, become decisive.– subject of supreme power. The style of the leader in an authoritarian state becomes a model for the activity of the entire state system of government. The style of an authoritarian political leader recognized by this community, as a rule, turns into a criterion for assessing the quality of leaders at all levels and ranks.

Many factors influence the change in public administration styles. We note two of them, the most significant: the first– concepts of public policy, strategic goals and principles of the public administration system; second– specific conditions of public administration that take shape at a particular stage in the development of the political system, as well as management situations in which specific governing entities operate.

Conceptual and strategic factors determine the division of public administration styles into two types: authoritarian and democratic.

Authoritarian style characterized by rigid centralization of decisions and their lack of alternatives. The omnipotence of the highest governing center (represented by one ruler or a narrow group of the ruling elite) and the anarchy of the lower governing bodies exclude the participation of the latter (not to mention the ruled) in choosing the goals, ways and means of their implementation. The highest governing power is always right, it is never wrong. Only the head of the state hierarchy has the right to make decisions - this is the stereotype of authoritarianism. Correspondingly, subordinate subjects leading their subordinate organizations behave accordingly. Being disenfranchised in relation to the supreme ruler, they make members of the organization the same in relation to themselves. The only vertical of power and control- top down - minimizes the self-organization of the governed.

The unconditional centralization of decisions is ensured by the corresponding unidirectional (top-down) control of execution, and control is mainly over the process of actions, and not over the result. Hence, higher motivation for the activities performed and less– productivity, efficiency.

Administrative-command methods are softened, or rather, supplemented by the complex use of political, ideological and manipulation methods. Politicization and ideologization of the management process- essential authoritarian style. It is due to the very concept of the regime: a person– not a goal, but a means to achieve the goal of the ruling class forces. The rigid centralization of decisions and the omnipotence of the ruling elite exist thanks to the monopoly on information.

Finally, the authoritarian style is distinguished by such a combination of means and techniques, such motivations for managerial actions and relations that constantly give rise to conflicts between the authorities and society, blocking public consent. The goals of state administration are imposed on society and do not reflect the demands of the masses.

Democratic style government is the opposite of authoritarian. Alternative choice of goals carried out by the board, collective discussion of projects and decision-making underunder the direction of a senior official and under his personal responsibility– the most important feature of the democratic style. Other essential features of the style: the centralization of decisions, which is natural in the system of public administration, is combined with decentralization and is limited by it; shifting the decision-making process from the center to lower levels, where subjects have information for adequate preparation of decisions and a situation arises that requires decision-making.

The democratic style is characterized by two-way flows of information, and full, and not dosed at the will of the authorities, as the main condition for the decentralization of decisions, as well as bidirectional control over execution.– top down and bottom up. Controlling activities are mainly focused on om on the result, although the process of actions does not remain outside of it either.

The conceptual idea of ​​a democratic style: a person is an end that determines (but does not justify) the means of its realization. Main Motivation for Decisions– interests, values ​​and goals of society, a person. The democratic way of making and executing decisions stimulates public consent, not confrontation.

An essential feature of the democratic style is its orientation towards the realization of the necessary diversity of social processes, towards blocking the forced unification of the needs and interests of people, which is unnatural for society. The combination of public administration with the self-organization of the governed– principle of democratic style.

For Russia today, the transition from an authoritarian style to a democratic one is relevant. This is a very real task, there are transition technologies. However, these processes require maturity and civic culture of the population, on the one hand, and professionalism on the part of state bodies, on the other.

liberal style in public administration in the interpretation of Russian liberals is equivalent to the concept of the elements. The liberal behavior of government bodies today is associated with legal nihilism and the position of non-intervention of the state in the social and economic vital for society. and sociocultural processes, with the official installation on the socially unlimited freedom of the individual, and, in fact, on anarchist social behavior. The dialectic of the mutual transformation of opposites is manifested: the dominance of the authoritarian style in the past is replaced by the introduction of the conniving style.

bureaucratic style. Bureaucracy (from French “the power of the office”) is a concept that has a dual content. One interpretation of the concept comes from the German sociologist M. Weber. Bureaucracy is a rational organization of public administration, which is characterized by: a) efficiency achieved through a strict distribution of responsibilities; b) the mandatory hierarchization of power relations, which allows for top-down control; c) a formally established and fixed system of rules that ensures uniformity in the management and application of general rules to particular cases; d) the impersonal nature of administrative activity, standing above human relations and emotions.

The noted features of the bureaucratic organization were formed in the bosom of the authoritarian system. However, they are inherent in the operation of a democratic system. Moreover, public administration is generally impossible without a structure of organizational relations regulated by legal norms and rules, without centralization of decisions (within the necessary limits), without a hierarchical structure of state power, and finally, withoutspecial, professionally trained management apparatus, functioningat all levels of the system and the practitioner's inherent apparatus (by nature authoritarian) style of activity. Bureaucracy as a rational organization of public administration ensures the stability of the state body, is a necessary prerequisite for its development.

As the power of the bureaucracy increased, further development democratic institutions and methods of government. Consequently, the concept of bureaucracy as a rational organization of public administration and the concept of bureaucratic style derived from it do not initially carry a negative-evaluative aspect. These concepts characterize the state administration apparatus, the special organization of its activities and the set of methods and methods of behavior and activity specific to this apparatus.

Now about the concepts of "bureaucracy" and the corresponding– « bureaucratic style» management. The content of these concepts is different, in contrast to those considered; they are initially negative and evaluative and reflect the subjectively deformed nature of the thinking and activities of the state apparatus and civil servants. Bureaucracy – the way of thinking and actions of the managing entity, which appropriated state functions and subordinated them to the protection of its corporate interests, as well as to ensuring its own preservation and reproduction. bureaucratic management style– it is the stereotyping of thinking and action, dogmatism, fear of innovation and the risk associated with it, routine naturedecisions, and finally, ignoring the initiative and self-organization of the managed. Such a style cannot be regarded otherwise than as a malignant outgrowth on the rational organization of the activities of the apparatus of state administration.

The ideal model of the state bureaucracy was created by M. Weber in the first quarter XX in. based on the analysis of the German bureaucracy. Those models of management and behavior of leaders, which were ideal in the past, in modern conditions turn into an obstacle to rational administration. Rigidly regulated structures, exclusively formalized, hierarchical relationships between managers and managed; execution of managerial functions by one apparatus of civil servants without involving the public; stationery technology; sustainable stability of managerial relations and communications; influence on the manager only by order and application of negative sanctions– all these elements of the bureaucratic (administrative-state) model of management no longer work effectively, but are the nutritional base for the emergence of the deformations described above, called bureaucracy.

It is quite natural that in the most dynamic sphere of management– in modern management– the tendency to abandon the bureaucratic model prevails. "Anti-bureaucratic styles" that arise in the management of the material sphere of activity will also spread in the administrative-state sphere.

In short, the classical bureaucratic model is being transformed into modern models; the bureaucratic style of management gives way (in particular, in modern management) to anti-bureaucratic styles. They could be called humanistic, since management is dominated by factors that motivate the democratic participation of people in achieving the goals of the organization and the development of their creative potential, and not factors that force them to solve managerial problems by the power of administrative power.

The considered management styles in various combinations are manifested in the practical activities of state actors. The style of rational bureaucratic organization, state bureaucracy, remains integrating. Its core is a set of techniques, technologies for the implementation of the political and administrative branches of power. Political institutions and their subjects are guided mainly by the democratic model of styles and its humanistic varieties; executive bodies and entities implementing their functions,– to authoritarian (bureaucratic).

Questions and tasks to test knowledge:

3) What is manipulation?

4) What is the difference between real and virtual information?

5) Determine the methods and styles of management in the activities of state bodies.

6) What are the main ways of influencing the control object?

7) Give an example of the implementation of administrative and legal methods of influence.

8) What groups of public administration methods can you name?

9) Expand the content of the main methods of public administration: administrative and legal methods, political methods of management (management), economic methods, social methods, information methods, etc.

10) Describe the concept of "management style".

11) What factors influence the change in government styles?

12) What is a rational model of state bureaucracy?

Self Tests

1. Which method of public administration, from the listed ones, is suitable for the hierarchical structure of the governing state entity, as well as the impact on those managed by the “order-execution” type?

1)Administrative and legal

2)Organizational

3) Political

4) Social

2. What is "methods of public administration"?

1) methods, means, ways of influencing the state on the social life of people;

2) these are the rules, norms on the basis of which the public administration system is built and operates;

3) specific types of control actions of the state on its object;

4) installations that are adopted by state bodies for a certain period, reflect the specifics of the current moment and often emphasize the relevant (at the moment!) Aspects of public administration functions.

3. What methods are inherent in public administration in modern Russia in terms of the nature of the impact?

2.Totalitarian.

3. Liberal.

4.Democratic.

4. One of the types of management methods, the essence of which is to influence the factors that motivate the driving forces of people's social activity:

1. Administrative and legal.

2. Social.

3. Political.

4. Economic.

5. What is the name of the type of information that the social object itself does not directly perceive, but receives from intermediaries?

1. Real information.

2. Virtual information.

3. Reliable information.

4. False information.

10. The concept of public policy. Mechanisms for the formation of state policy

Politics- this is the art of government, the conduct of public affairs, the content of the activities of government bodies. Any elements of state administration acquire a political character if they affect the interests of social groups, classes, nationalities, and the broad masses of the people.

Politics always reflects certain interests, primarily socio-economic ones, it follows from the economic state of society and is effective if it meets the needs of development. At the same time, politics has independence and affects all spheres of life, including the economy, expressing it in a concentrated form.

In a democratic society, the basis for the formation of state domestic and foreign policy is the will of the people, which they manifest in referendums, elections of representative and executive power, in actions of approval or protest, and in other forms. The bodies and officials of state power, endowed with the trust of the people, develop a strategy and tactics for governing the country, which are materialized in regulatory legal and other acts. Government bodies at various levels put into practice strategic goals and tactical decisions.

The policy development mechanism includes the selection of appropriate priorities, takes into account the consequences of their implementation in the economic, social, environmental and other spheres, and provides for the assessment of costs, benefits and risks. Targets and restrictions are expressed in indicators of quality of life(life expectancy, health status, amount of knowledge, per capita income, employment, realization of human rights, etc.), the level of economic development, environmental well-being.

The main directions of the domestic and foreign policy of the Russian state are determined by the President of the Russian Federation in accordance with the Constitution of the Russian Federation and federal laws. At the same time, it proceeds from the real possibilities of the state and objective external and internal factors. Thus, the most important factor determining state policy was the change in the geopolitical position of Russia, the loss of its superpower status, economic and military power due to the collapse of the USSR.

Russian state policy can be grouped into different types. From the point of view of the object of influence, it is possible to single out such directions as foreign policy, economic policy (reform and development of the economy), financial, agrarian, regional, social policy, ideological (spiritual) policy, military policy, policy towards authorities and public administration and so on.

Ultimately, state policy is aimed at creating conditions and guarantees that ensure a decent life and free development of a person.

An agreed unified state policy is developed on the basis of interaction between the President of the Russian Federation, the Federal Assembly of the Russian Federation, the Government of the Russian Federation and other authorities and is concentrated in the forecasts and federal targeted development programs, in international treaties of Russia, in the laws of the Russian Federation and other documents and regulatory legal acts .

All branches of government, federal and regional government bodies participate in legislative activity. A billing plan is being drawn up. The President of the Russian Federation, the Federation Council, members of the Federation Council, deputies of the State Duma, the Government of the Russian Federation, representative (legislative) authorities of the constituent entities of the Russian Federation, the Constitutional Court of the Russian Federation, Supreme Court RF.

Draft laws and legislative proposals are sent to the State Duma by the authorities and subdivisions responsible for their preparation and presentation in Parliament with:

justification for the need for acceptance;

assessing their consistency with other standards;

expected socio-economic and other consequences of the application;

financial and economic justification.

Projects on the subjects of joint jurisdiction of the federal state authorities and the constituent entities of the Russian Federation are sent in advance to the executive authorities of the constituent entities of the Russian Federation.

Federal laws adopted by the State Duma are submitted to the Federation Council for consideration. If he rejects the law (veto), the chambers can create a conciliation commission to overcome differences. The veto of the Federation Council is overridden by the State Duma with a repeated vote of at least 2/3 of the votes of the total number of deputies.

The law adopted by the Parliament is sent to the President of the Russian Federation. If the President rejects it, then the State Duma and the Federation Council reconsider this law. If approved in the previously adopted version of the law by a majority of at least 2/3 of the total number of members of the Federation Council and deputies of the State Duma, it is subject to signing by the President of the Russian Federation and promulgation.

Laws come into force ten days after the day of their official publication, unless the laws themselves establish a different procedure for coming into force.

The President of the Russian Federation is empowered to issue decrees and orders. On issues of a normative nature, decrees are issued, on operational issues - orders that are not normative acts.

The Government of the Russian Federation, on the basis of and in pursuance of the Constitution of the Russian Federation, issues resolutions and orders and ensures their implementation. Decisions having a normative nature or the most importance are issued in the form of resolutions. Decisions on operational and other current issues are issued in the form of orders.

Decrees and orders of the President of the Russian Federation, resolutions and orders of the Government of the Russian Federation must not contradict the laws, in case of a conflict, the provisions of the laws apply. Decrees of the President of the Russian Federation either develop certain provisions of laws, or formulate norms of relations that are not regulated by law, that is, they eliminate problems in the legislation.

Ministries and other federal executive bodies adopt, in cases and within the limits provided for by laws and other legal acts, normative departmental acts, which are also sources of civil rights and obligations. Departmental acts are issued in pursuance of decisions of the highest bodies of state power on their behalf or on the initiative of the federal executive bodies themselves in accordance with their competence in the form of orders, resolutions, instructions, regulations, explanations, instructions. These acts regulate the relations of central authorities with subordinate enterprises, organizations, institutions and other issues.

Registration of normative acts of ministries and departments of the Russian Federation is carried out by the Ministry of Justice. Acts that have not been registered, as well as those registered, but not published in the prescribed manner, do not entail legal consequences.

The developed state policy, expressed in legal acts and other official documents, becomes the basis for management, decision-making and their implementation with subsequent evaluation.

Management of the implementation of state policy involves the implementation of appropriate activities, specific actions, which at first also take the form of orders, decisions of leaders or a collective body.

The decision-making process includes the following steps:

1. Setting goals. The goal can be the intended task or the condition that caused the decision. The goal must be specific, objective, real, involve actions, have an appropriate dimension.

Goals are divided into short-term, intermediate, long-term, in order of achievement, large and small (according to the criterion of resource costs), competing, independent and additional. The classification of goals allows you to set priorities, give preference to some goals, and others– postpone.

2. Identification of the problem. Decision making is always about overcoming a problem or using an opportunity. The problem is revealed by comparing the goal with the actual state of affairs. In public administration, it is especially important not to interchange ends and means.

3. Gathering the necessary information. To determine the characteristic features of the problem, to identify ways to solve it, the necessary information is involved. Only significant reliable information is taken into account. It is summarized in the corresponding blocks.

4. Coordination and consideration of possible alternatives. Alternative options are compared according to predetermined criteria and taking into account the goal. Some solutions have a limited number of alternatives, while others have a wide range of choices. Based on a more thorough analysis and study of the situation, the most realistic direction is chosen.

5. Choice of solution. Choosing an option for making a decision is always the most difficult and responsible stage. This is the core of public administration. The results of other decisions are tracked, experience is evaluated, similarities and differences are identified, and all pros and cons are weighed for each alternative. To make a decision, one also needs courage, determination, will, the very ability to make informed and timely decisions.

6. Development of measures to implement the solution. Implementation of a decision requires energy and organizational skills. Therefore, the decision made is necessarily supported by a specific and detailed action plan for its implementation with the distribution of responsibility among the performers.

7. Distribution of responsibility. Responsibility for the decision rests primarily with those who develop and adopt it, and secondly– Who is officially responsible for this?

Based on the results of the implementation, the solution is evaluated. Based on the experience and methods of analysis of previous decisions, the decision-making practice is being improved.

Decisions are classified by significance, frequency, riskiness. The significance of a decision is determined by the influence of its consequences. The most significant decisions are not made often, but they receive more attention.

The implementation of decisions is entrusted to the executive authorities. They are obliged to fulfill both their own decisions and the decisions of legislators and the judiciary. If decisions are addressed directly to legal entities and individuals and impose duties on them, then the fulfillment of these duties should also be controlled by executive authorities.

The practical implementation of state policy is judged primarily by the state of compliance with the law, the implementation of decrees of the President of the Russian Federation and resolutions of the Government of the Russian Federation, decisions of authorities at all levels. Even the decision to implement it will remain a plan of action until the action is actually taken. Control and verification of the implementation by the authorities of the Russian Federation and constituent entities of the Russian Federation, their officials, as well as organizations of federal laws, decrees and orders of the President of the Russian Federation, nationwide projects carries out Control Department of the President of the Russian Federation. It is an independent subdivision of the Administration of the President of the Russian Federation.

In order to increase the responsibility of officials of the executive authorities of the Russian Federation and subjects of the Russian Federation for the unconditional and timely execution of instructions of the President of the Russian Federation, proactive control system. The heads of these bodies are obliged to submit in advance to the Control Department of the President of the Russian Federation information on the measures taken to fulfill the instructions of the President of the Russian Federation, followed by a report on the results of the work carried out within the established time limits.

In accordance with the Constitution of the Russian Federation, the President of the Russian Federation appoints his authorized representatives in seven federal districts. The Plenipotentiary Representative of the President of the Russian Federation is an official representing the President of the Russian Federation within the limits of the relevant federal district. It carries out its activities in cooperation with federal executive authorities, state authorities of the constituent entities of the Russian Federation, local governments, public associations and citizens and ensures the exercise of the constitutional powers of the head of state within the federal district.

The representative of the President of the Russian Federation does not interfere in the activities of state authorities and administration of the constituent entity of the Russian Federation, does not issue binding orders.

Representatives of the President of the Russian Federation organize the work of federal collegiums, which include heads of federal departments in the constituent entities of the Russian Federation. The Collegiums coordinate the activities of subdivisions of federal executive bodies in the constituent entities of the Russian Federation.

The implementation of state policy, the accurate and timely implementation of the decisions of the authorities are determined by objective and subjective, internal and external factors. Much depends on the degree of trust of citizens in the state. People are often critical of the authorities, so it is not easy to win the people's trust in the current government.

Strong trust is achieved if the government's program of action is real, embodies justice, includes measures that satisfy common interests, and management is carried out by authoritative people. These outwardly simple and understandable principles are capable of restoring even the previously lost trust to the authorities.

Failure to comply with laws, decrees of the President of the Russian Federation, court decisions that have entered into force, is a gross violation of discipline in the public service system. It can manifest itself in violation of the procedure for applying the norms and deadlines for implementation, the establishment of procedures for the implementation of the rights of citizens that are not provided for by regulatory legal acts, and the distortion of the content of acts.

The heads of the federal authorities and the heads of the executive authorities of the constituent entities of the Russian Federation bear personal responsibility for the state of performance discipline.

Improving the efficiency, validity and correctness of the decisions made on the regulation of the spheres of society is ensured appropriate level of information. Informatization permeates all areas of activity of government bodies, enterprises, institutions, has a decisive influence on the decision-making process, predetermines the competence of civil servants.

A program of legal informatization of public authorities is being implemented. It is recognized to create conditions for the coordinated functioning and interaction of state authorities of the Russian Federation and subjects of the Russian Federation in a single information space.

State policy is the basis for the work of all ministries and departments, executive authorities at the federal and regional levels in the preparation of specific measures to ensure its implementation, in terms of timing and executors. Implementation of policy cannot be a matter of state authorities alone. This is the business of the whole society.

The country is in the process of establishing a different social system, a different political system. In this regard, the system of executive power is being improved. The role of long-term and current forecasting in management is increasing, the functions and powers of bodies are strictly delineated horizontally and vertically. The methods of state participation in the economy, the development of science, education, and culture are being reviewed. Regulatory and control functions are being strengthened, and the staffing of the state apparatus is improving.

Ultimately, public policy is implemented through the daily administrative activities of state bodies. Today, active work is underway to streamline and standardize administrative procedures.

BUT administrative procedure - the sequence of actions of the federal executive body in the performance of a state function or the provision of a public service. ATNovember 2005stop of the Government of the Russian FederationNo. 679 “On the procedure for the development and approval of administrative regulations for the performance of state functions and administrative regulations for the provisionpublic services". Administrative regulations for the provision of public services - normative legal act, determining terms and sequence of actions of the executive authority for the provision of services.Administrative regulations for the execution of a state function is a legal act determining terms and sequence of actions of the executive authority, entailing occurrence, change or termination of legal relations or the emergence of documented information not related to the direct appeal of a citizen or organization.

The administrative regulations for the performance of a state function or the provision of a state service must contain information necessary and sufficient both for the receipt of a state service by a citizen or organization, and for the performance of a state function or the provision of a state service by officials of the federal executive body.

The administrative regulations for the execution of the state function include sections: "General provisions", "Administrative procedures". The administrative regulations for the provision of public services include sections: "General provisions", "Requirements for the procedure for the provision of public services", "Administrative procedures".

The regulations for the provision of the most popular public services prepared by the Ministry of Economic Development and other departments provide,that each action will be evaluated in terms of cost and time for its implementation. Thus, the period for obtaining documents will be reduced from 30 to 15 days . Downtime in queues will not exceed 30-40 minutes. And to make this time pass faster, a system of so-called standards is being introduced. “public places” – providing them with air conditioners, electronic advance appointments, etc. With the help of these regulations, the government intends to completely eradicate queues in the country for obtaining all kinds of certificates and documents, extortions, bribes, and at the same time indifferent officials.

Under public service means the activity of a state body that meets the following criteria:

· In the process of rendering, interaction with a citizen or organization is carried out.

· There is an end result that a citizen or organization needs in some objective form - registration, issuance of a permit, receipt of a document, approval, etc.. d.

· It is not an exercise of administrative powers (imposing a fine, checking etc.).

· Not related to deviations in the course of the normal process (complaint of a citizen about violations in the course of a normalservice delivery process).

Examples public services:

For organizations:

· obtaining a license for the right to transport passengers;

· liquidation of a legal entity;

· change of constituent documents of a legal entity;

· licenses for the right to use subsoil, etc.

For the population:

· obtaining a civil passport;

· registration of a citizen at the place of residence;

· registration of a citizen for military registration;

· appointment of unemployment benefits;

· receiving an old-age pension, etc.

Federal ministries and departments that submit to the Ministry of Economic Development the best projects aimed at a tangible improvement in the quality of the most demanded public services will receive, on a competitive basis, federal budget additional funds.

A very important role in public administration belongs to the so-called e-government .E-government has the following main objectives:

· optimization of the provision of government services to the population and business;

· increasing the degree of participation of all voters in the processes of leadership and governance of the country;

· support and expansion of self-service opportunities for citizens;

· growth of technological awareness and skills of citizens;

· reducing the impact of the geographic location factor.

The main work on the formation of e-government was started from the moment of adoption state program of the Russian Federation "Information Society (2011-2020)", approved by the order of the Government of the Russian Federation of October 20, 2010 No. 1815-r.

Currently, key elements of the national e-government infrastructure have been developed and are functioning, including:

· a single portal of state and municipal services;

· unified system of interdepartmental electronic interaction;

· national platform for distributed data processing;

· a unified system of identification and authentication in the infrastructure that provides information and technological interaction of information systems used to provide state and municipal services in electronic form;

· information system of the main certification center.

The unified portal of state and municipal services (functions), in addition to informing about the procedure for obtaining state and municipal services and functions, provides an opportunity for applicants to apply electronically for public services, receive electronic information on the progress of consideration of applications, as well as legally significant outcome of the application. In addition, the user can electronically leave feedback on the quality of the services provided to him.

In order to provide a unified technological and communication infrastructure for information interaction between existing state and municipal information systems, the Ministry of Telecom and Mass Communications of Russia has created a unified system of interdepartmental electronic interaction or SMEV. The interaction system is designed to solve the following tasks: ensuring the execution of state and municipal functions in electronic form; ensuring the provision of state and municipal services in electronic form; ensuring information interaction in electronic form in the provision of state and municipal services and the performance of state and municipal functions

The country is in the process of establishing a new social order, political system. In this regard, the system of executive power is being improved. The role of long-term and current forecasting in management is increasing, the functions and powers of bodies are strictly delineated horizontally and vertically. The methods of state participation in the economy, the development of science, education, and culture are being reviewed. Regulatory and control functions are being strengthened, and the staffing of the state apparatus is improving.

test questions

1. Define public policy.

2. What does the expression "politics is the art of government" mean?

3. What are the main directions of the domestic and foreign policy of the Russian state.

4. How is the mechanism of state policy development built and functioning?

5. What types can Russian state policy be grouped into?

6. How is the legislative process carried out?

7. What are the steps in the decision making process?

8. By what criteria and groups are solutions classified?

9. What role does the Commission of the Government of the Russian Federation on operational issues play in solving current problems of state policy?

10. What are the functions of the Main Control Directorate of the President of the Russian Federation?

11. What does the system of proactive control mean in the implementation of public policy?

12. Who bears personal responsibility for the state of executive discipline in public authorities?

Self Tests

1. What methods are inherent in public administration in modern Russia by the nature of the impact:

2) totalitarian;

3) liberal;

4) democratic.

2. One of the types of management methods, the essence of which is to influence the factors that motivate the driving forces of people's social activity:

1) administrative-legal;

2) social;

3) political;

4) economic.

3. The type of information that the social object itself does not directly perceive, but receives from intermediaries is defined as:

1) real information;

2) virtual information;

3) reliable information;

4) fake information.

4. The main directions of the domestic and foreign policy of the Russian state are determined by:

1) President of the Russian Federation;

2)Government of the Russian Federation;

3)Federal Assembly of the Russian Federation;

4)State Duma of the Russian Federation.

5. Registration of normative acts of ministries and departments of the Russian Federation is carried out by:

1)Ministry of Internal Affairs of the Russian Federation.

2)Ministry of Economic Development of the Russian Federation.

3)Ministry of Industry and Trade of the Russian Federation.

4)Ministry of Justice of the Russian Federation.

The implementation of the functions and principles of public administration is carried out by applying various methods.

The concept of "method of public administration" is inextricably linked with the etymology of the word "method", which comes from the Greek methodos and is interpreted in two ways: firstly, as a way of knowing, studying natural phenomena and public life and, secondly, as a mode or mode of practical action.

In public administration, the method, as a rule, is understood as a method, a method of practical implementation of the tasks and functions of the state in the daily activities of state bodies (officials) on the basis of the competence assigned to them, within the established boundaries and in the appropriate form. In this form, the "method" allows you to get the necessary idea of ​​​​how the mechanism of state power functions, how management functions are practically carried out, with the help of what means. This category is therefore directly related to the characterization of the essence of the process of implementation of state power, being one of its indispensable elements. It also serves the purpose of giving dynamics to management.

Consequently, the method of public administration network is a means of practical implementation of the functions of public administration, achieving its goals. Methods provide an answer to the question of how, in what way, the most rational way to achieve management goals.

Management methods are in unity with management goals. The goal determines the specifics of the use of methods, the choice of methods to a certain extent determines the reality of achieving the goals. But, on the other hand, methods show how management goals are achieved. They define the quality side of management. Improving them means improving management.

The following characteristic features are inherent in public administration methods:

• 1) they express the relationship of the subject of management with the object of management;
• 2) are ways of streamlining, organizing processes occurring in management systems, techniques by which common goals are achieved joint activities of people;
• 3) act as a mobile and active element in the control system;
• 4) the use of methods is of an alternative nature;
• 5) in public administration, they are an instrument of state policy, which is used by the state apparatus to achieve political goals.

Public administration methods can be considered from the point of view of their content, orientation and organizational form.

In accordance with the structure of the object of public administration, which is the society in the field of public administration, the methods of public administration according to the level of their application are divided as follows:

• 1) methods that apply to the whole of society as a system;
• 2) methods related to subsystems allocated within society (economic, social, natural resource, etc.);
• 3) methods of control action in relation to an individual employee or individual groups.

The application of these methods used in the field of public administration helps to solve such problems in society as support for socially vulnerable groups of the population, unemployment, national issues etc.

The methods of any activity are varied. This applies equally to the methods of public administration, because the subjects of public administration are different in their purpose, and the objects under their influence are also different. But this does not exclude the possibility of structuring in a certain way in their interests their most significant properties and specific features.

From the general theoretical positions, the action of universal methods of any activity is manifested - persuasion and coercion. These are two interconnected "poles" of a single whole, that is, a mechanism for ensuring proper behavior and the rule of law. They complement each other.

With the help of means of persuasion, first of all, the proper behavior of participants in managerial social relations is stimulated by carrying out educational (including legal education), explanatory, recommendatory, encouraging and other measures of predominantly moral influence. Coercion is traditionally regarded as an auxiliary method of influence used because of ineffective persuasion. In case of violation of the requirements of administrative and legal norms, it is expressed in the application of disciplinary or administrative responsibility. If it is necessary to ensure public safety, a special set of coercive measures operates, which, together with legal responsibility, are referred to as administrative coercion.

The basis of the system of methods used in public administration is a general scientific methodology that provides for a systematic approach to solving problems, as well as the use of such methods as modeling, experimentation, economic, mathematical and sociological measurements, etc.

The systems approach is used as a way to streamline managerial problems, with the help of which their structuring is carried out, goals, solutions are determined, options are selected, interrelations and interdependencies of elements of problems are established, as well as factors and conditions that affect their solution.

The synergistic approach orients the researcher and practitioner to take into account the natural factors of the developed (self-development) systems. Synergetic processes are natural processes of achieving new states by the system without purposeful external influence.

All representations of managers of the XX century. were reduced to the fact that there is a subject and an object of control. Concepts and schools of management focused on finding different ways of influencing the subject on the object of management. Their goal was the effective use of the physical, psychological and intellectual potential of the subject for entrepreneurial purposes. By the end of the XX century. it became clear that this approach had exhausted its possibilities. The basis of interaction was cooperation, complementarity of the creative abilities of individuals standing at different levels of the hierarchical ladder. In the information society, the capabilities of one subject are revealed through the capabilities of another. The concept of "subject - object of management" in management is gradually giving way to the concept of self-organization, a synergistic approach.

The change in management paradigms is accompanied by numerous problems, both objective and subjective. The main one is the mentality of the leader. Management activity today is, first of all, research activities, work to identify problems, analyze them and find evidence-based solutions. A "strong", strong-willed business executive with an administrative mentality is forced to give way to a leader with creative thinking and a high culture of human relations. Managerialism is being replaced by synergy.

Modeling plays an increasingly important role in the activities of state authorities and local self-government. When solving public administration problems, the models of game theory, queuing theory, inventory management, linear programming, economic analysis, etc., are most widely used.

An important place in public administration is occupied by economic and mathematical methods based on the intersection of economics with mathematics and cybernetics. Economic and mathematical methods are used to solve the problems of optimizing plans, setting prices, allocating resources, compiling intersectoral balance models, program-targeted planning, etc.

Methods of public administration are largely determined by the content of the functions being implemented. So, when performing the planning function, the methods of extrapolation, regression analysis, scenario building, modeling, forming a “tree” of problems and solutions, etc. are used.

Other classifications of public administration methods are also possible. So, D. P. Zerkin and V. G. Ignatova distinguish between democratic, authoritarian, coercive, manipulative, mobilization, participatory methods by the nature of the impact, and according to the results of the impact, they note revolutionary and reformist, innovative and conservative methods.

In the work of A. A. Degtyarev “Fundamentals of Political Theory”, the following classification of public administration methods is given.

First, the most radical method of management is open violence and the use of punitive force. Sometime in the early stages political history mankind, this method was one of the dominant. For example, this method was actively used in the eastern despotisms, seizing new territories and up to the complete destruction of the population that oppressed them with the help of brute force. At the present stage, the instruments of violence prevailed mainly in totalitarian states, as, for example, in Nazi Germany and the USSR in the 1930s. or in Kampuchea in the 70s. 20th century

Secondly, it is possible to use forced mobilization and administrative regulation of the population in such a way that the organs of the state manage even without regular violence and open terror. At the same time, the very real threat of the use of administrative sanctions by the state is used as a support (for example, in a number of Arab and African authoritarian regimes, and in certain crisis situations and in the conditions of transitional societies of emerging democracy).

Thirdly, one of the main methods of modern public administration is legal regulation based on legislative norms and the judicial and arbitration system. Of course, these methods are used, first of all, in the rule of law, where the norm of the law becomes the main regulator of the life of citizens.

Fourth, effective method management in a stable society is a systematic socio-political maneuvering, which includes tools for compromise between the ruling and opposition groups, concessions and turns in the social and economic policy associated with the regrouping of forces and the redistribution of resources. For example, if the government's conservative policy model does not produce the expected results, then the latter can strengthen social programs and transfer certain resources to their implementation.

The fifth main means of control is ideological and political manipulation, which acts in “soft” forms on the mechanisms of consciousness and behavior of citizens, that is, first of all, on the “head” of people, in contrast to brute force acting on their “body”. In the early stages of state development, religious preaching played a similar role as an instrument of ideological, political and moral influence on the masses. Today, the means of ideological-political and socio-psychological manipulation by the mass media are coming to the fore. Means of telecommunications and mass media at the end of the 20th century. have become priority and effective tools for manipulating the masses, playing a particularly prominent role in the structure of the democratic regimes of the West (one of the methods of manipulating public consciousness in Russia is, for example, the ratings of political leaders and socio-political organizations).

Of course, we should not forget that the structure of the means and methods of almost every state has the entire arsenal of the above-mentioned tools in varying proportions and combinations, which are used depending on the specific situation (crisis, war, and so on), the type of regime and phases of its formation, reproduction or transformation. In any case, the methods of public administration are being revised, modernized, and changed. The complication of socio-economic and political relations during the period of fundamental reforms in the country increases the need to use the entire set of resources that ensure the modernization of political and administrative activities.

A special approach to the issue of species classification of administrative and legal methods is based primarily on the nature (content) of the control action. Of the many classification options, as a rule, the most common is the allocation of three groups of methods, namely, administrative, economic and socio-psychological.

Administrative methods occupy a special place in public administration. Their essence lies in the impact on social relations and processes, as a rule, according to the formula: "order-execution". The instruments of administrative and legal influence are: laws, by-laws, directives, orders, orders, regulations, instructions, etc. Administrative and legal methods of public administration are regulated by legal acts.

Administrative methods should not be identified with volitional and subjective methods of leadership, that is, administration. Administrative management methods are regulated by regulatory legal acts.

Administrative methods of management are classified according to the form of expression, legal properties, method of influencing the behavior of objects of management, form of prescription.

According to the form of expression, administrative methods are divided into administrative-legal, expressed in legal form, and administrative-organizational, expressed in the commission of organizational actions by the subject of management.

According to the legal properties, administrative methods of management can be normative and individual. Normative include legal acts containing norms that regulate managerial relations, the activities of the governed. To individual - prescriptions in the form of direct orders addressed to specific performers.

According to the method of influencing the behavior of management subjects, administrative methods are divided into:

• 1) obliging to perform certain actions;
• 2) authorizing to perform certain actions;
• 3) encouraging the commission of socially useful actions;
• 4) prohibiting the commission of certain actions.

According to the form of prescription, administrative methods can be subdivided:

• 1) into categorical (imperative);
• 2) surety (for example, a higher executive body entrusts the performance of functions to a lower body that are not within its competence);
• 3) advisory.

The forms and scope of application of administrative methods are determined by the tasks of the governing body, the level of organization of production, the qualifications and culture of decision-makers. The more fully these parameters are presented, the less the need for administrative intervention.

Administrative influence is carried out in the following forms:

• 1) a direct administrative instruction that is binding on the managed system (order, instruction);
• 2) establishment of rules governing the operation of the managed system (regulations on structural subdivisions, standards);
• 3) development of recommendations for the organization and improvement of certain processes in the managed system (job descriptions, guidelines);
• 4) control and supervision over the activities of the managed system.

Organizational influences in a state body

are based on the preparation and approval of internal regulatory documents regulating the activities of the personnel of a particular state body. These include:

• 1) regulation on the state body;
• 2) administrative regulations;
• 3) organizational structure of management;
• 4) staffing;
• 5) regulations on structural subdivisions;
• 6) official regulations of civil servants.

These documents (except for the regulation on the state body) can be drawn up in the form of standards of the state body and must be put into effect by order of the head of the state body. These documents are mandatory for all civil servants, and non-compliance with them entails the application of disciplinary sanctions. In a state body, where there is a high level of organizational influences, brought to the standard of a state body and management regulations, and high service and performance discipline, the need for the use of administrative actions is significantly reduced.

Regulatory influences are aimed at achieving the goals of management, compliance with internal regulations or maintaining the management system of state bodies in the given parameters through direct administrative regulation. To known ways administrative influence should include orders, instructions, instructions, instructions, target planning, labor rationing, coordination of work and control of execution.

The most categorical form of administrative influence is an order. He obliges subordinates to accurately fulfill the decision made on time, and its failure to comply entails an appropriate sanction (punishment). An order usually consists of five parts: a statement of the situation or event, measures to eliminate deficiencies or ensure administrative regulation, allocated resources for the implementation of the decision, deadlines for the execution of the decision, control of execution.

The order acts as the second main type of administrative influence. It is mandatory for execution within a specific management function and structural unit. The order may contain all the parts of the order listed above and, like the order, is mandatory for execution by the subordinates listed in it. The difference between an order and an order is that it does not cover all the functions of a state body and is usually signed by deputy heads of a state body.

Instructions and instructions are a local type of organizational impact and are most often aimed at the operational regulation of the management process in a short time and for a limited number of civil servants. If instructions or instructions are given orally, then they need to be strictly controlled for execution or should be the basis of high trust in the “head-subordinate” relationship scheme.

Instructing and coordinating work are methods of leadership based on the transfer to a subordinate of the rules for performing official operations.

Instruction is a one-time method of application on the part of the manager, when he tries to reasonably explain the expediency of a job assignment for a subordinate. If the subordinate refuses, a second attempt is inappropriate, because it will lead to the loss of the authority of the leader.

Administrative methods are usually qualified as methods or means of non-economic or direct control influence on the part of the subjects of state administrative activity on the relevant objects of control, regardless of the specific area of ​​public life. They find their expression in the commission by the subject of management of such management actions, the content of which manifests the imperious provision of the proper behavior of managed objects. Their direct nature means that the subject of management, within the framework of its competence, makes a management decision (a legal act of management), which is legally binding for the object of management, i.e., the addressee. There is a direct instruction (“command”), because the control action implies an imperative (directive) version of the will of the control subject. This nature of the control action follows directly from the imperious nature of control, which is one of the essential channels for the practical implementation of state power. It implies the exercise of executive power.

The non-economic nature of these methods means that the real object of management is the conscious-volitional behavior of the governed (be it a citizen or an enterprise, etc.). Proper behavior in the sphere of public administration is ensured through the will and consciousness of the governed (“subordination of wills”). At the same time, means of persuasion and coercion are used to the necessary extent. The possibility of legal coercion to proper behavior is allowed, which, however, does not give grounds for identifying direct control action with coercion.

Taking into account the named qualities of administrative methods, it is obvious that without their use it is impossible to achieve the goals of ordering influence on the behavior of various participants in managerial social relations. Someone must solve the issues that arise daily in this area, for which the appropriate levers of legal power are needed. And they are in the hands of the subjects of public administration, which carry out administration. On this basis, the name of the methods most characteristic of these subjects arose - administrative.

Economic Methods public administration are forms and means of influencing socio-economic living conditions of people, organizations, social groups, sectors of the economy, territories. Economic methods are usually characterized as ways or means of economic or indirect influence on the part of the subjects of public administration on the relevant objects of management.

With the help of economic methods, the subject of public administration achieves the proper behavior of managed objects by influencing their material interests, i.e., indirectly, as opposed to methods of direct imperious influence.

The latter are missing here. The control object is placed in such conditions when it itself begins to act properly not under the influence of directive instructions of the control subject, but due to the fact that such behavior is materially stimulated. Most often, incentives are reduced to economic ones (for example, material incentives, the provision of property benefits, etc.). This stimulates the economic (material) interest of the object in the fulfillment of the tasks assigned to it. The control influence is carried out not directly on behavior (this can be done, but this cannot be done, etc.), but indirectly (indirectly), that is, through the impact on the material (property) interests of the control object. The proper behavior of the latter is achieved by the prospect of material gains, as well as by the threat of material sanctions. Consequently, the economic levers used in the process of solving managerial problems establish a system of material incentives. However, the control action is the content of such levers, which brings them closer in their ultimate goal to levers of a direct (administrative) nature.

The main instruments of financial and economic impact in public administration are:

• 1) wage policy;
• 2) state regulation of the main price proportions, tariffs, profits;
• 3) tax policy;
• 4) credit policy;
• 5) customs policy;
• 6) budget financing.

Under the influence of economic methods, social relations and processes become more flexible and adaptive.

Socio-psychological methods of public administration are a set of methods and means for the purposeful formation of mindsets, public feelings, psychological states, public calm or tension, mass optimism or pessimism, social activity or nihilism, social expectations, preferences, orientations, etc. psychological methods are based on the use of moral stimuli, special methods of communication, images, metaphors and other methods of influencing people's emotions. Among the ways to motivate behavior, suggestion, persuasion, imitation, involvement, coercion, motivation, etc. are distinguished. The tools of socio-psychological methods are the promotion of socially significant ideas and spiritual values ​​through school, the media, literature, art and culture, the church.

Socio-psychological methods are methods of implementing managerial influences on personnel, based on the use of the laws of sociology and psychology. The object of influence of these methods are groups of people and individuals. According to the scale and methods of influence, these methods can be divided into two main groups: sociological methods, which are aimed at groups of people and their interactions in the production process (the external world of man); psychological methods that directly affect the personality of a particular person (the inner world of a person). Effective management of human resources, consisting of a set of highly developed personalities, requires knowledge of both sociological and psychological methods.

Socio-psychological methods of public administration, as a rule, are addressed to the dignity, honor and conscience of a person. They include measures of education, clarification and popularization of the goals and content of public administration, means of moral encouragement and punishment, taking into account the psychological characteristics of a person’s character, etc. Their meaning is to develop and maintain among the people certain beliefs, spiritual values, moral positions , psychological attitudes regarding social phenomena and processes.

It seems that public authorities, with the help of schools, culture and art, and the media, should set a clear system of coordinates for the moral behavior of a person in society. For example, relevant public institutions must convince people every day that lying, stealing, giving and taking bribes is bad, but working highly productively, showing honesty, solidarity and mutual assistance in human relationships, being ready to defend the Fatherland is good.

It is obvious that public authorities are called upon to take care not only of the daily bread for a person, of reducing inflation, but also of the spiritual harmony of an individual and the people as a whole. If the institutions of the spiritual and moral sphere work inefficiently, then the human soul is struck by the spirit of decay, skepticism and the destruction of the state. Ultimate individualism, anarchism, mysticism, etc., begin to flourish in such a state. Therefore, in order to build a democratic, legal, social state, “a turning point, first of all, in the spiritual life of society” is required.

Among the socio-psychological methods of public administration in recent years, manipulation is widely used - a system of methods of socio-psychological influence on people in order to change their views and behavior in the direction desired by the manipulating subject. Especially often manipulative technologies are used in election campaigns. What manipulations can do with the consciousness of the people is shown by the following well-known fact: on the eve of the presidential elections in 1996, Boris Yeltsin's popularity rating did not exceed 5%. However, the oligarchic clans, using huge amounts of money and manipulation in the media, ensured B. N. Yeltsin victory in the presidential election.

Next to the socio-psychological methods of state administration are ideological methods. A.P. Zerkin and V.G. Ignatov are right when they argue that the ideological methods of public administration are “not a relic of the Soviet system, as many supporters of the concept of deideologization of the state think, but a pattern. Another question is what ideology is used: state or non-state, progressive humanistic or reactionary. You can also say this: the ideology of the minority is always used in the state ( ruling class) or the ideology of the majority (people), the third is not given. Most often, the ideology of the minority is implemented in state and municipal administration. Ideological methods are aimed at activating the public consciousness of people. They form a system of motivations that corresponds to the goals of public policy.

The political methods of public administration relate to public policy developed and carried out by the ruling power. Political methods are manifested in normatively fixed forms, methods and procedures for identifying the will of the majority of the people in elections and referendums, during the discussion and adoption of normative legal acts, the development and implementation of such strategies as national security, as well as economic, social, etc. Political methods are designed to provide the necessary behavior of citizens in the electoral process and referendums (participation or non-participation), their positive attitude towards the policies pursued by state authorities and local self-government, etc. In this regard, one cannot but pay attention to the fact that, according to the results of some research, most Russians do not trust state bodies. For example, 98% of the population do not trust the police, 70% do not trust the government, and almost no one trusts deputies, 64% of citizens do not trust the domestic judicial system.

Among the most effective forms of the political process in a democratic state, one should note elections, referenda, parliamentary debates and hearings, deputy inquiries, opposition activities, round tables, television debates, etc. At the same time, the ruling party, in order to retain power and embellish the real state of affairs in the state, can use manipulation, persecution and repression.

Note that in the practice of public administration, all of the above methods of management are in interaction. There are no bad or good methods of public administration. For each situation, there are “own” methods or a special combination of management methods.

• Zerkin D. P., Ignatov V. G. Fundamentals of the theory of public administration. Lecture course. Rostov n/D, 2000. S. 212.
• Degtyarev A. A. Fundamentals of political theory. M, 1998. S. 82.
• Atamanchuk G. V. The New State: Searches, Illusions, Opportunities. M., 1996. S. 197.
• Zerkin D. P., Ignatov V. G. Fundamentals of the theory of public administration: a course of lectures. Rostov n/D, 2000. S. 218.
• Kostikov V. The heart is tired of lies // Arguments and Facts. 2005. No. 26.
• 9 "Ilyichev G. Almost half of Russians consider businessmen pests // Izvestia. 2005. July 15.

Lecture 1. Theory of state and politics. Methodological foundations of public administration

The state as a form and method of ordering and providing normal conditions for people's life has shown itself as a universal socio-political organization with public power and a specialized apparatus of administration within a certain territory, to which its sovereignty extends. The development of the state with the development of society caused the emergence of such a science as management, as well as public administration, public policy.

object course"Public policy and management" stands for public administration of social processes and relations. This is a complex phenomenon due to many interdependent reasons, factors in the development of society.

There is a contradiction between public needs and hopes that the socio-economic and political situation in the country should stabilize and improve, and the inability to modern system government to ensure this. This contradiction can be resolved only if the public administration system is reformed. From here subject research (study) - the main ways, directions, methods, ways of reforming state policy and management, their external and internal relations. Or, to put it scientific language, the application of scientific theories, principles, methods and means to the implementation of the power and administrative powers of the state in order to ensure its regulatory and service functions both in society as a whole and in its individual parts, processes and relations.

Target course study- obtaining a body of knowledge in the field of public policy and management, and in particular the theory and methodology of public administration.

Tasks course:

1. The study of the essence of public administration as an integral system.
2. Studying the methodology of public policy and management (functions, methods, principles, etc.).
3. The study of the main approaches to assessing the effectiveness and efficiency of public policy and management.
   1. The study of the concepts of modern public policy and management.
   2. The study of the procedure for making managerial decisions.
   3. Study of administrative reforms in different countries.
   4. Studying the impact of global trends on management processes.

Methodology is the system most general principles, provisions, logical organization, methods and means that form the basis of a particular science. It is the defining beginning of the process of cognition, as well as a system of general theoretical requirements that are implemented in a complex of specific methods and techniques. scientific knowledge regarding the objects of social reality.

Applied to public administration methodology is a set of subjects and objects, goals and objectives, principles, approaches and functions, criteria and indicators, forms and methods of management .

The most important constituent element public administration are methodological guidelines and approaches, which have a decisive impact on all components of the management methodology.

Methodological guidelines and approaches to public administration can differ significantly from each other, which leads to the formation of various schools that bring together like-minded scientists. For example, one can single out totalitarian, democratic and state-religious methodological approaches.

At totalitarian approach to management, the emphasis is on the need for strong state power (we can talk about the dictatorship of the leader, a certain social stratum), on the merger of the state and the ruling party, on the subordination of public associations to them. This is an administrative command system.

Democratic concepts public administration is represented by many different schools that advocate the ideas of “the state is good”, “the state is a night watchman”, etc.

Despite all the differences in democratic concepts of state administration, they are all based on the principles of democracy, universal values, common rather than class interests, political and ideological pluralism, the rule of law, etc.

The concept of government in many Muslim countries is based on state-religious approaches. For example, the concept of Muslim fundamentalism is based on the ideas of the caliphate as the best form of government, the rejection of elections to government bodies.

The methodology of public administration is based on the laws of social development. And although the laws do not depend on the will and consciousness of people and are objective, people are not powerless in front of them. Knowing the objective laws, they also predetermine the objective necessity of their actions, consciously organize their activities.

This allows us to assert that people's activities are determined not only by laws, but also by a subjective factor - their consciousness, which makes it possible to influence people's behavior through the public administration system.

The correct reflection and use of the laws of social development in the public administration system ensures the advancement of society. In the case of the opposite action - there are disproportions, contradictions, conflicts.

The essence of management decisions is in the definition management objectives. It follows from this that the formation of the goals of public administration and their validity is an extremely difficult and responsible task. The set goal reflects the need to achieve a given state of the object in accordance with the intended prospects in a timely manner.

Management acts as a necessary element of people's life. It is one of the most difficult and responsible areas of their intellectual and practical activities, which is associated with the realization of human interests and needs. Management is predetermined by the conscious beginning, interest and knowledge, purpose and will, energy and actions of a person.

Management is the process of creating a purposeful interaction between the subject and the object of management in order to achieve socially significant results.

As an objective reality, management is a universal phenomenon, since it takes place in all societies, countries, in all spheres of public life of people.

Management is always influence. Representatives of cybernetic science define control as the transfer of an object (any system) to a new state or a change in the state of the control object in order to achieve the goal of the system. At the same time, we emphasize an important methodological initial position for us: we are talking about a social control impact, that is, an impact, firstly, on social, and not on technical or biological systems; secondly, on the whole society, and not on an individual ("An individual violinist controls himself, an orchestra needs a conductor" K. Marx).

Management, of course, is carried out in the systems "man - technology", "man - technology", "man - nature", "man - technology (technology) - nature" and others, but it is carried out precisely because in them the primary, "managing "The component is a person, and they were created in order to serve the interests of a person.

Therefore, management (in Latin - regere, in English - control, management , in French - administration , in German - regierung) in the literal sense of this concept, it begins when there is a conscious principle, interest and knowledge, goals and will, energy and actions of a person in any interconnections, relationships, phenomena, processes.

Management is divided into types. Their selection is necessary in order to designate the relationship of a certain subject and object of management, including in terms of the competencies of the first in relation to the second, as well as the features of the management object.

An analysis of the types of management makes it possible to understand the essence of such constructions, new for Russian society, as “municipal management”, “corporate management”, “outsourcing management”, “project management”, “budget management”, etc.

Separation controls on types can be held for various reasons:

- depending on the spheres of social activity - management of society as a whole, economic, social, political, spiritual and ideological management;

- depending on the structure of social relations - management, respectively, of the economic, political, social and spiritual development of society;

- depending on the objects of management - economic, socio-political management, management of spiritual life;

- depending on the nature and volume of social phenomena covered by the management - management of the state, industries National economy, enterprises, organizations;

- according to the subject of management - public administration, local self-government, property management, public administration, group (collective) self-regulation, self-government (appropriate behavior or action of an individual).

Management was created by people for the purpose of conscious self-regulation of their life activity and is as important in ensuring their needs and interests as family and property, morality and law, mode of production and the state, knowledge and information and other public institutions.

The specifics of public administration

AT scientific literature and practice there is no unambiguous understanding of the term "public administration". Some interpret it broadly, as the practical organizing and regulating influence of the state on the social life of people in order to streamline, preserve or transform it, based on power, as the activity of the state apparatus to regulate social relations, to manage both public and their own affairs.

Public administration - this is a purposeful organizing and regulating influence of the state (through the system of its bodies and officials) on social processes, relations and activities of people.

Public administration is a kind of social administration, but its nature and specifics are determined by the properties inherent only to this type of administration.

It is a kind of social management, a special kind of social activity carried out on a professional basis by government bodies and officials.

nature and specificity public administration defines the following:

firstly , subject of management. As subject purposeful, organizing and regulating influences acts state. The nature of public administration in a particular historical time determined by the nature, constitutional foundations (principles) of the state. The state as a "think tank" gives "impulses - orders" to public administration;

Secondly , public administration is based on and is a way of implementing state power. Laws and other basic, general, model decisions, rules, norms established by state power are generally binding, provided by the authority and power of the state;

third , specific character and scope managed social phenomena. The focus of public administration is the solution of common (public) affairs, the coordination of actions of all citizens, the protection of the joint (public) interest, the satisfaction of the needs of society, and not of individual citizens and social groups;

fourthly , the complex nature of the methods and means of state influence. Not only legal, political, economic methods (regulation, coordination, persuasion, stimulation) are used, but also methods of coercion, for example, with the help of law enforcement state bodies.

The nature of public administration follows from its special social function, aimed at streamlining development processes in the interests of the whole society by coordinating various requirements, needs and forms of activity, where the state apparatus acts as an effective mechanism for the implementation of public authority and ensures the implementation of state policy through a system of administrative institutions.

Rational provision of social nature and essence government controlled suggest the possibility of considering it and how systems, and as a process. State power and administration basically have legal and political legitimacy, and in implementation - the power of the state apparatus, which also has the means of coercion.

All of the above determines the need to consider public administration in a broad and narrow sense.

In a broad sense public administration means the direct exercise of state power: the adoption of political and state decisions and their implementation, control over the observance of law and justice in society.

In a narrow sense under government control refers to the administrative, executive and administrative activities of government bodies, which is aimed at regulating processes, phenomena, relations related to the life of society, and is carried out on a professional basis.

Public administration has a wide scope and scale of application - a national scale, regional, local levels, the level of a separate sphere and industry, collective. It is carried out by government bodies and officials and always has an imperious character, as it has powers derived from public authority.

The boundaries of state administration largely depend on its capabilities.

The possibilities of state administration are determined :

- the will and power of the government . A weak-willed, loose state without a strategic line is unable to fulfill its tasks and functions. In the face of public administration bodies, a special will of the state is manifested, which is expressed in the decisions they make. At the same time, the strong sovereign power of the state has supremacy in society, the right to coercion within the framework of the law and to make decisions binding on the whole society;

In essence, the process of public administration is a conscious and purposeful activity associated with the implementation of state powers by public authorities, regulated by legal norms, as a result of which there is a consistent change in social states, events and phenomena. The process of public administration is aimed at the implementation and implementation of adopted laws and policies proclaimed by the highest public authority, and is associated, first of all, with the formation and implementation of the necessary state programs;

- the level of development and smoothness of the public administration system (forms and methods of public administration, general, political and legal culture of civil servants, their professionalism, moral qualities, etc.);

- available resources . We are talking about all types of resources, not only natural, material, labor, financial resources, but also political and ideological resources.

These are fundamental rules and recommendations that must be taken into account and implemented in practice at all levels of government.

The use of the fundamental principles of public administration significantly increases the effect of management activities. The principles link management theory with management practice, and every manager, at the level of his knowledge, general and professional culture, uses them in his practice.

Public administration method - these are ways of influencing a controlled object, ensuring the achievement of the desired result.

Setting goals for a managed object and evaluating the results of public administration, as a rule, is carried out through a system of criteria and indicators.

All elements of the public administration methodology form an organic unity.

Subjects and objects of state administration

In a democratic, rule of law state, the main subject of public administration is people, electing its representatives to the authorities, and thus participating in the management process. State, acting on behalf of the people, creates its own bodies for management: parliament, government, courts, etc. and acts as a consolidating subject of management, as a system of organizational and legal forms that make up its management subjects.

All subjects of management have a number of universal features in which their essence is manifested. Each subject of management:

- expresses the interests of a certain social community - people, class, social group;

- is systematically organized, it is characterized by the features of a social system;

- has certain functions inherent in it;

- has its own, legally justified organization, including a personal and institutional component;

- occupies a strictly defined place in the hierarchy of the state apparatus, takes strictly defined types of decisions.

Within the powers established by law, the subjects of management use various means at their disposal: economic, political, ideological. In order to accelerate the development of a particular object, preferences (preferences) are established for it, and public investments are provided.

These or those bodies and officials can use only such means of state administration that are permitted by law.

The interaction of subjects of control is also provided by feedback.

Feedback can manifest itself in various forms: the bearers of economic functions can support or refuse to support the government, issue warnings to the government. Parliament can express no confidence in the government.

It can be said that the main line of feedback between the bearers and executors of interests is trust or loss of trust, support by the bearers and spokesmen of the interests of the policy pursued by the state.

Society from the point of view of management theory is considered as an object state-managing influence, i.е. controlled system.

Often along with a person objects state administration recognized the territory and its resources, means and tools of labor and other material elements. Therefore, it is necessary to highlight what qualities they possess.

1. The advantage in practical management is on the side of the subject of management.

2. Managed objects directly perceive the natural and socio-historical conditions and patterns, in accordance with them they build the technologies of their activities. For example: "man-machine", "man-technology", "man-nature", "man-machine-technology", etc.

3. Managed objects function rationally and effectively only in organizational forms adequate to them. The most difficult and necessary in this aspect for managed objects is the work of such organizing forms that would create conditions for the full realization of the possibilities inherent in the relevant social relations, activities and social fields.

4. Managed objects, since their activity is of a public nature, associated with the consumption and production of public values, need a timely and possibly complete legal definition of the formation procedure, social status, procedures for public accountability and control.

Based on the human nature of managed objects (systems), we can distinguish the following managed object properties:

1. Self-Activity of Managed Objects (systems), that is, their ability to self-move on the basis of internal (own), motivating reasons. The self-activity of managed objects is realized in various forms: in the transformation of environmental conditions and interactions in accordance with their represented components; in establishing active interaction with them; in adapting to the current situation;
2. Focused , orientation to specific objects, phenomena, relationships, results;
3. adaptability (adaptability) to the conditions and factors of social life;
4. Self management (social self-regulation) of their life and development;
5. Dependence on objective conditions and factors social life.

The more developed the controlled objects (systems), the stronger and more rationally their properties are manifested, the less they need state management, the management itself can be “softer” and be reduced only to coordinating control actions.

In a controlled social system, in the component-structural relation, there are clearly identified three main levels of managed objects:

- man in manifestations of his consciousness , behavior, labor and social activities, in their valuable socially productive activity;

- groups and associations of people , acting as the primary form of communication and joint activities;

- society as a whole , its social formations, relations, connections and processes arising in it as a result of the activity of people and their associations.

In accordance with the main areas of society and the specified criteria, managed objects (systems) are divided into the following species groups: economic, social and spiritual.

Most economic managed objects a direct connection of the labor force (human) and the means of production was carried out.

Social Managed Objects carry out activities aimed at preserving the life and health of a person, his physical development, the creation of housing, communal, commercial and living conditions, in which the process of reproduction and human communication is expressed.

To spiritually controlled objects include those organizational manifestations of the activity of the individual, collectives, communities of people, through which both spiritual and theoretical activity and spiritual and practical activity are carried out.

A system controlled in all the variety of its components has a significant difference from a control system. If the state apparatus is characterized by the predominance of hierarchical, subordinate, vertical relations, then the formation and development of society (civil) more involves horizontal, non-powerful, dispositive connections.

Goals and objectives of public administration

The issue of goal-setting in public administration is one of the most relevant. The goals reflect the needs of the development of society as a whole, as well as a specific object of management. This is the ideal, the logically justified construction (image) that needs to be created, brought to life.

In the system of public administration, one can distinguish specific goals and goals of the global order, which should not contradict universal values ​​(freedom, democracy, social justice, etc.) Goals of management determine the essence of a management decision: the choice of actions by which the goals should be achieved.

The goals of public administration must be recognized, attractive, popular, supported by citizens and at the same time - real . In order for all goals to be supported, based on the capabilities and power of management, they must be translated into a strict and clear language of control actions. Not goals in general, but goals that are achievable at a designated time, in a precise amount and using certain resources, goals that are concretized, clearly communicated to a separate team, group, person, and at the same time, coordinated with each other in such a way that one goal does not contradict the other, on the contrary, contributed to its implementation.

At present, most of the citizens of our country are not satisfied with the needs of the lower level, people want to realize themselves as much as possible. Therefore, when making management decisions, it is necessary to take this into account. Goal setting in public administration in the short term should only be defined in the context of quality of life : strengthening the legal and social order, meeting the most important material and spiritual needs of citizens, the right of the people to a worthy human existence.

The transition to genuine democracy presupposes, first of all, a change in the technology for determining the goals of state administration. The basic principles of goal-setting in a democratic state - openness, transparency and openness.

The very essence of management requires a well-established goal-setting mechanism. The subject of the formation of the goals of public administration can be the people, the ruling elite, the head of state. In a democratic state subject goal setting public administration is people.

In other words, public administration is based on a hierarchy, subordination of goals.

The entire history of mankind testifies that the formation of the goals of public administration is an extremely complex matter. Three negative factors inexorably dominate this process:

Subjectivity;

- a large number of goals, their variability and inconsistency;

- uncertainty in the development and functioning of the state organism, its individual parts, which is transferred to the sphere of government and permeates it (incomplete certainty of the external environment and internal properties of the state results in incomplete certainty of the goals of public administration).

Forming the structure of the goals of public administration allows a technique that has received the name in the scientific literature goal tree, thanks to which the interrelation of a set of goals and subgoals of different content (political, economic, social, spiritual, etc.) is ensured, their consistency in order to obtain a given result.

The goal tree forms a system , each structural element of which occupies a certain place and plays a certain role in achieving the main goal. A tree of goals is formed from general to particular. The trunk is the strategic goals-tasks related to the quality of life of society, its preservation and development. Strategic goals are developed into operational ones, operational ones into tactical ones. Thus, goal-setting, goal-setting, and goal-setting of public administration take place.

Goal tree- this is an image that allows you to compare the system of goals of public administration with a tree that goes "roots" (means of communication) into the "soil" (society) that feeds it. If the nutrient medium is not able to ensure the vital activity of the tree of goals, then it dies, no matter how wonderful the proposed ideas are.

When forming the tree of goals, the subject of management must have complete information about the state of society, its problems, pain points, resources to achieve goals, etc. In addition, when structuring the system of goals, it should be borne in mind that each previous goal should determine the next one, as well as develop and supplement the main goal.

It is also important to determine the hierarchy of public administration goals, built on the principle of priority of the needs and interests of the development of society, although the construction of an absolute hierarchy is problematic, as is the knowledge of absolute truth. These are always only subjective assessments that seem optimal in the specific conditions of the functioning of the system, which can approach the truly optimal as the life of society is studied.

If the priorities are set incorrectly, then this is often detected after the appearance of negative consequences, inevitable in this case.

Sometimes it is important to determine the hierarchy of unattainable goals - this can serve as an indicator (give information) of the quality of the macro management system in the entire set of relations with society as a controlled macro system, adjust the relationship of power and public institutions, citizens.

The main goals of public administration are specified in the goals-tasks for each state body. Civil servants should be able to link basic, generally significant goals and objectives with specific goals set for the organization.

Government organizations have three types of goals: goal-tasks, goal-orientation and self-preservation goals.

1. Goals-tasks government organizations are set by a superior subject of management - these are actually management goals, i.e. the goals of managing the social system, content-oriented and subordinate to the achievement of its main goal. They, as a rule, are fixed in legal documents: regulations, charters, regulations, which reflect the purpose of this organizational structure, its place and role in the management system, i.e. for which it was created.

It is very important that the goals-tasks are clearly formulated, for example, social goals (support for the poor, etc.) are too general. In order for the activity of the body to be effective, more specific goals and objectives are needed for the management body and its staff, since everyone works better if he clearly understands what is expected of him. The goal determines behavior, and purposeful activity is the mechanism that ensures the work of the governing body.

When fulfilling the goal-task, various problems may arise:

• inadequate perception of them by the governing body;
• possible discrepancy between the content of the formulated tasks and the expectations of the organization's staff;
• the contradiction between the high pathos of tasks and the low resource level of their provision.

2. Objective-Orientation reflect the common interests of the members of the staff of the public administration body and should not contradict the social goals-tasks. The ideal model is the orientation of the team, when inaction is perceived by the civil servants themselves as inconsistency with their position, and the refusal to accept an application, for example, about the fact of abuse of official position, gives rise to a negative attitude in the team, both to the very fact of refusal, and to the fact of abuse.

Indirectly, the nature of goals-orientations can be determined by analyzing motivations. For example, if a salary increase significantly reduces staff turnover (while all other conditions remain practically unchanged), then this gives reason to assume that the goal-orientation of team members is primarily determined by the amount of remuneration. In other situations, the nature of work, the possibility of promotion, working hours and other factors may be dominant.

3. Goals of self-preservation organizational structure of management reflect its desire to maintain its integrity and stability, balance in interaction with the environment.

SustainabilityThis is a constant goal and condition for the self-preservation of the organization. First of all, we are talking about overcoming staff turnover, reducing the number of reorganizations, and reducing conflict. However, in this case, there is a danger that the staff of the organization will no longer adequately respond to changes in the external environment, will oppose changes.

In addition, the very process of achieving sustainability threatens to turn it into an end in itself. If this happens, then services, divisions, positions begin to be created in the organization, intended mainly to maintain and preserve the system, as a rule, with control powers. Not directly involved in the implementation of goals-tasks, such services need increased self-affirmation, which is manifested in the desire to expand their powers, control not only the result, but also the very process of the activities of those units that fulfill the goals-tasks. As a result, a situation may arise when, for example, a decision can be made by an employee of the control unit, and the employee carrying out operational and managerial activities, or the head of control, may be held responsible.

Thus, each governing body should be focused not only on achieving the goals set from above, but also on the implementation of internal tasks.

This circumstance should not be ignored by the subject of management, and therefore, when setting the goals of tasks, the goals-orientations of the organization can and should be taken into account. Otherwise, we will seek and not find an answer to a truly insoluble question: "Who is to blame for the fact that the public administration system does not fulfill its social purpose?"

So the goals should be:

- large-scale, but realistically achievable;

- understandable and understood in its entirety by employees of managing and managed organizations;

- coordinated throughout their entirety.

Goalspublic administration can classify along horizontal and vertical sections. Horizontal cut represented by a chain of main types of public administration goals: socio-political - social - spiritual - economic - organizational - activity-praxeological - informational - explanatory.

For social and political purposes a strategy for the development of society for the long term is expressed. And the highest value and goal of society and the state is proclaimed a person, his rights, freedoms and guarantees of their implementation.

Social Goalsdetermined by socio-political goals. Usually they consist in creating conditions that provide a decent level and quality of human life.

Goals in the Spiritual Realm consist in creating conditions for the formation of a highly moral, spiritually rich personality. In addition, they are aimed at realizing the spiritual potential of citizens for the implementation of socio-political and social goals.

Goals of public administration in the economic sphere - this is the definition of a long-term strategy for economic development, the creation of optimal conditions for its implementation.

Organizational Goals aimed at creating an optimal, efficient organizational structure of public administration.

Information purposes aimed at establishing direct and feedback links between the object and the subject of management in order to obtain information about the reaction of the object to the adopted management decisions and, if necessary, correct the control action.

play an important role in public administration explanatory purposes. Citizens of the state must have a clear idea of ​​the tasks that the state is solving, have reasoned information about the processes taking place in society, about the motives for the decisions of the authorities, including unpopular ones.

The presented horizontal cut of goals does not give a complete picture of their subordination. The vertical slice arranges the goals according to their importance: strategic, operational, tactical . Operational goals are put forward at a certain time interval, taking into account the emerging socio-political and economic situation Tactical goals determine specific actions to achieve strategic and operational goals, therefore they are also called providing.

Goals of public administration can be classified according to other criteria. For example, by volume they can be:

- general , covering the entire complex of public administration;

- private , covering individual subsystems.

According to the results: - final and intermediate goals.

By time allocate:

- long-term goals (strategic) (over 5 years);

- medium-term goals (for 5 years);

- short-term goals (tactical) (one year or less).

In relation to the main goals, there may be side ( secondary) goals that are not directly related to the implementation of strategic goals.

Functions of public administration

Objectives of public administration implemented through a system of functions. If the goals and objectives are focused on the final result of the activity of the subject of management, then the function is focused on the process of achieving the goal and solving problems. The essence of the functions of public administration is determined by the role played by the management system as a whole or its individual elements to achieve the goals.

Function (lat. functio - departure, activity) is a real, purposeful impact on a managed object.

There are various classifications of functions: general and special, internal and external, etc.

Functions can be subdivided into political and administrative. It is very important that those and others stand out in the position of a particular ministry, the charter of the administrative service.

Performance political functions means that state bodies have the right to issue normative legal acts in the legal sphere. A state institution may issue regulations, but they are binding only for those citizens (individuals and legal entities) and, if they are users of the services of this institution, its clients. Political functions are not continuous.

Administrative functions unlike political ones, they are continuous in execution, and their essence is to ensure the implementation of laws, norms, rules, rules of order and the provision of public services to legal entities and individuals. The ideal here can be the automaticity of taking administrative measures, for example, to suppress offenses. This is how the legal character of the state is ensured.

Any type of management activity involves the implementation universal managerial functions which are implemented at all stages of the management process - this is goal-setting, decision-making, organization of their implementation. specific requiring professional managerial qualifications are qualification and managerial functions. These include : planning, forecasting, motivation, organization, regulation, coordination, control.

Forecasting and planning - the main link of the entire control system. Forecasting is the prediction of the prospects for the development of an object and the consequences of its transformations for society, a specific organization. Planning is the process of determining the achievable state of an object, as well as the means, methods and resources for this. Forecasting and planning determine the development prospects and the future state of both the object and the subject of management. That is, it is the setting of goals that determine the development prospects and the future state of managed objects and processes, as well as ways to achieve the goals. The goals and objectives defined in the plan should be linked to material, financial and labor resources.

Organization. The main task of this function is to form the control and managed systems, set specific parameters, the mode of operation of the units of the object and the subject of control, the relationship between them, including:

- degree of centralization and decentralization of management;

- division and cooperation of labor in the object and apparatus of management;

- levels of organization of jobs and working conditions;

- qualifications of workers;

- regulation and stimulation of the work of departments and each employee.

This function acts as a type of activity that is aimed at developing and approving management schemes and structures, job descriptions, regulations, and other regulatory documents.

Coordinationensures the consistency of the work of all parts of the control system. Thanks to coordination, the unity of relations between the managed and managing systems, the structures of the object and the subject of management is established.

Regulation - e then the purposeful activity of the relevant state bodies, which through a system of various forms and methods ensure the achievement of the goal and the solution of the most important economic and social tasks of the corresponding stage of economic development, regulates economic relations in society. Regulation in a broad sense consists in the issuance of laws, by-laws and judicial acts that establish general rules for all subjects of public relations. In a narrow sense, regulation is a function of public administration in a certain area of ​​public life. In the socio-economic sphere, the state regulates relations through the state budget, state orders for goods and services, taxes, customs tariffs, duties, republican target programs, pricing policy, etc. For example, by applying bankruptcy procedures, the state has a regulatory impact.

State regulation creates relations of orderliness and stability of the socio-economic system and, in case of deviation from the given parameters, puts all its personnel into action.

Control- this is the process of establishing deviations from the stipulated values ​​and adjusting managerial influences. It is designed to provide feedback from management objects to the management apparatus in order to evaluate and provide information on the implementation of management decisions. Control must meet the following requirements: efficiency, publicity, objectivity, expediency. Control is exercised by various state bodies: parliament, government, ministries, courts, including the constitutional one, state control bodies.

Motivation, as a management function is more often considered in relation to local systems. For a manager, the main thing is to catch and learn the motives of people's activities in order to take them into account in leadership.

Specific Functions find their manifestation in specific situations where it is necessary to act only on behalf of the state - this is law enforcement, elections and referendums, population censuses, licensing of activities, regulation of special legal regimes (introduction of presidential rule, a state of emergency, free economic zones) and others.

Principles of public administration

The implementation of public administration is based on principles - fundamental provisions, proven by theory and practice.

Principle (from lat. - “ principle " - the beginning, the fundamental principle) reflects the patterns, relationships, relationships between the elements of the public administration system. Principles of public administration - these are fundamental, scientifically substantiated and in most cases legislatively fixed provisions on the basis of which the public administration system is built and functions.

Henri Fayol wrote that in order to carry out managerial activities, one must rely on principles, i.e. on recognized truths that are considered proven ”(Fayol A. General industrial management. M., 1923, p. 24-25).

Fayol A. formulated 14 general principles of management:

1. Division of labor allowing to increase labor productivity;
2. Power , meaning the right to give orders and the power to force them to obey. Power is unthinkable without responsibility;
3. Discipline - obedience, diligence, activity. Behavior, external signs of respect, i.e. compliance with established rules between employees and the organization;
4. Unity of command - an employee can give two orders regarding any action, only one boss;
5. Unity of leadership - one leader and one program for a set of operations pursuing the same goal;
6. Subordination of private interests to the general - in the organization, the interests of an employee or a group of employees should not be placed above the interests of the enterprise; the interests of the state must be higher than the interests of a citizen or a group of citizens;
7. Fair staff remuneration - if possible, should satisfy the staff and the enterprise, the employer and the employee; encourage diligence, compensating for useful effort;
8. Centralization , the degree of which is determined in each case depending on the conditions of a particular organization, institution, enterprise;
9. Hierarchy leadership positions , providing for strict observance of the orders of higher officials by lower ones;
10. Order - a certain place of each person, his powers and functions;
11. Justice which provides for a combination of benevolence with legal awareness and justice;
12. Continuity of staff , excluding staff turnover;
13. Employee initiative , meaning freedom of proposals and implementation of plans;
14. Staff unity which consists in using the abilities of all, rewarding the merits of each.

The rules formulated by Fayol were generally accepted for several decades, taught in training schools, and used in practice.

In the public administration system, the principles act as the main and initial provisions of management activities developed by science and formulated by the state. They are a reliable means of organizing and regulating a purposeful process of influencing society and, at the same time, the functioning of the subject of management. By their very nature, principles are objective, knowable, and functional. They are realized as a result of the conscious activity of people, which does not exclude subjectivism. In order to avoid this, they find appropriate legal provisions.

Deviation from one or another principle can cause serious failures in the entire system.

There are different approaches to the classification and systematization of the principles of public administration. The following can be distinguished subsystems of management principles:

- general (system-wide) - general methodological principles formulated on the basis of knowledge of the general laws of social and public administration, enshrined in political and legal norms, or used as scientific and practical recommendations; they determine the content of public administration and reveal the general purpose of administration;

- organizational and technological - reveal the organizational and technological aspects;

- private - relate mainly to the direct management of the activities of people - participants in the management process.

The leading principle of management can be considered principle of consistency. Depending on the degree of openness of society, management can be carried out either by the principle directive management(for closed systems), or the principle terminal management ( for open systems). Directive management was characteristic of the Soviet planned system. When using this principle, the goal is set arbitrarily (the current generation of Soviet people will live under communism), the direction of movement is determined, which is corrected by various directives. Despite the fact that planning was of a total nature, the subject of management did not have all the completeness of reliable information and, as a result, the directive-planned economy turned out to be extremely inefficient.

The principle of terminal control assumes free programming of movement towards the intended goal. Depending on the changing situation and information, the course is also adjusted. In the case of using this principle, the system is self-organizing. At present, depending on the nature of the tasks to be solved, a skillful combination of these principles increases the effectiveness of management.

Scientific principle lies in the fact that scientific approaches and methods are the basis of all managerial actions.

The principle of humanism closely associated with principle of social orientation management. The essence of the principle of humanism is that in all activities of public authorities, the interests of the person are taken into account. And if a person is socially protected, his rights and freedoms are not violated, then he is active, active and the efficiency of management increases immeasurably.

The principle of democracy allows taking into account the interests of citizens and uniting their efforts in achieving the goals of public administration. It should be emphasized that the application of the principle of democracy does not preclude the use principle of centralism, because only their unity is able to save society both from administrative arbitrariness, and from chaos and anarchy.

The principle of legality assumes that public administration in the process of its implementation is strictly based on the current legislation. The significance of laws in the life of society was understood in ancient times. So, Cicero, experienced administrator ancient rome stated: "The state is a society of the Law ... Without law and government, neither the house, nor the city, nor the nation, nor the race, nor nature, nor the universe itself can exist." One cannot but agree with this statement.

The principle of publicity means that citizens should be informed about the goals and objectives of government bodies.

Reliability of the public administration system, flexibility and dynamism in crisis situations gives principle of separation of powers.

The principle of objectivity involves the knowledge of objectively existing patterns and the creation of a management paradigm taking them into account. Moreover, it is important to measure the set goals with the possibilities of achieving them. For example, one cannot set a goal without analyzing the available resource base to achieve it. Those who believe that it is possible to solve the most complex social problems only through the adoption of good laws without having the resources for this are also mistaken. However, it is impossible to absolutize the objective regularity, reducing it to the level of fatality.

Principle of optimality aimed at achieving maximum results at minimum cost. For optimal control it is necessary:

- the presence of functionally corresponding to the managed object of the controls;

- making managerial decisions based on objective information that adequately reflects the state of the control object;

- availability of sufficient resource opportunities to solve the tasks;

- a well-functioning feedback mechanism.

block based organizational and technological principles of management, the organizational-administrative and administrative-executive activities of state authorities are implemented. The following principles can be distinguished among this group:

- division of labor;

Hierarchy;

- optimal combination of centralism and decentralization;

Subsidiarity;

- combination of unity of command and collegiality.

The principle of division of labor - this is the differentiation of labor activity, leading to the vesting of the relevant body or official with certain specific rights and obligations.

The principle of hierarchy means the responsibility of lower management structures to higher structures, and each employee of the administrative hierarchy is responsible for the area of ​​​​work entrusted to him and the team subordinate to him.

The principle of an optimal combination of centralism and decentralization makes it possible, on the one hand, to avoid anarchy, because it determines the limits of the autonomy of local authorities. Centralism means, first of all, the extension of state administration to the territory of the entire state. Decentralization in public administration is the transfer of competence and authority from the center to local government and government and self-government.

Closely related to this principle principle of subsidiarity(from lat. subsidiarius - reserve, auxiliary), which involves the solution of emerging management issues at the level at which they arise.

The principle of combining unity of command and collegiality allows to increase the level of responsibility of officials and involve managers of different levels in the development of decisions.

Organizational and technological principles in accordance with their purpose can be divided for 4 groups:

1. structurally-targeted : consistency, consistency, complementarity, hierarchy of goals; consistency in achieving the entire set of goals;
2. structural and functional : legal consolidation of managerial functions in the competence of the relevant government bodies; exclusion of duplication and parallelism in the work of government bodies;
3. structural and organizational : the unity of the system of state power with its division horizontally (into legislative, executive and judicial) and vertical (central, regional and local), which ensures its integrity, consistency and consistency of decisions;
4. structural and procedural : correspondence of methods, forms, stages of management activity to their functions and organization; concretization of management activities and personal responsibility for its results.

Private principles management contribute to the activation of the human factor. Their classic version was formulated in 1912 by the American scientist G. Emerson. It:

- well-defined ideals or goals;

Common sense;

- competent advice;

Discipline;

- fair treatment of staff;

- fast, reliable, complete, accurate and permanent accounting;

- dispatching;

- norms and schedules;

- normalization of conditions;

- normalization of operations;

- written standard instructions;

- performance reward.

The block of private principles can be divided into 2 groups:

1. Principles applied in various subsystems or areas of society . For example, in the economic sphere, three marketing principles according to F. Kotler are used: find needs and satisfy them; produce what you can sell instead of trying to sell what you can produce; love the customer, not the product.
2. Principles of functioning of various institutions e.g. public service principles, recruitment principles, etc.

Methods of public administration

Public administration is carried out using a variety of methods. They ensure the implementation of functions and the achievement of the goals of public administration.

Under Methods (from Greek. methodos - way of research, theory, teaching ) government controlled understands the techniques, methods of implementation of management activities . With the help of methods, a certain influence of the subjects of management is carried out on the processes of social and state development, on the activities of state structures and specific officials.

The diverse activities of government bodies involve the use of various management methods, which can be classified according to a variety of criteria. It is possible to single out general scientific and special methods, direct and indirect, administrative and administrative, economic, socio-psychological, etc.

Administrative and administrative methods - these are ways of direct, immediate impact on the behavior of the control object. They are based on the power of state power and include measures of prohibition, permission and warning, are mandatory and are drawn up in the form of legislative acts, orders, resolutions, etc. These include the distribution of centralized investments or other state-controlled resources, licensing of certain types of activities, quotas for exports, imports, etc. For example, when the authorities are interested in stopping a certain type of activity, they can stop issuing licenses and, conversely, allow it to be carried out to expand this or that activity. Coercive measures include rules, conditions, the observance of which is mandatory for business entities (certain labor protection conditions, installation of treatment facilities, etc.).

The administrative and administrative methods of public administration are quite effective in the field of control over monopoly markets, in the field of ecology, in the development of a national system of standardization and certification, in determining and maintaining the minimum acceptable parameters of life for the population. However, it should be noted that in developed countries with a market economy, the scope of application of administrative and administrative methods is quite limited, but in critical situations (military operations, economic crises, natural disasters), their role increases significantly.

Economic Methods - this is a complex of material means, levers, the impact of public authorities on the object of management. They influence the interests of objects of regulation indirectly: through economic legislation, financial, monetary, credit policy. There is no direct coercion or encouragement. The control object is free to choose options for action, provided that they do not contradict the current legislation. That is, they are called upon to create such conditions that it would be beneficial for the object of management to act as the state desires. Such methods are tax, budgetary, financial policy, material incentives, the use of financial sanctions, the provision of subsidies to regions, the rehabilitation of enterprises, etc. For example, the state reduces taxes on the production of children's goods, stimulating its growth, or establishes increased scholarships for excellent students, taking care of the quality of education. At the same time, it is important that economic methods be applied flexibly and not be a brake on the implementation of the goals and functions of public administration.

Socio-psychological methods - these are ways of socio-psychological influence on the controlled in order to achieve the corresponding goals. These are means of influence such as:

- political agitation, propaganda;

- explanation of the position of the state, its policy, legal acts using the media;

- personal meetings of state leaders with labor collectives;

- various types of individual promotion, promotion, etc.;

- moral condemnation, which often has a greater impact than administrative or other punishment.

With the help of socio-psychological methods social attitudes, value orientations, group consciousness, leader orientation are formed .

It is also possible to single out direct and indirect methods of public administration.

Direct Methodsdirectly affect objects, for example, through an order, order or direct financing (centralized investments), financial support (subsidies), etc.

Indirect Methods influence indirectly, for example, through taxes, lending.

The use of certain methods depends on the form of ownership of the control object. Direct and administrative methods are most often used in the management of objects of state and communal ownership. In relation to objects of non-state form of ownership, mainly indirect and economic methods of management are used.

All of these methods are closely interrelated and complement each other.

Literature

Gadzhiev, K. S. Political science: a textbook [for universities] / K. S. Gadzhiev, E. N. Primova. - M.: Infra-M, 2012. - 384 p.

State policy and management: a textbook [for universities]: in 2 hours / St. Petersburg state. un-t; ed. L. V. Smorgunov. - M.: ROSSPEN, 2006 - 2007. Part I: Concepts and problems of state policy and management / L. V. Smorgunov [and others]. - 2006.

State policy and management: a textbook [for universities]: in 2 hours / St. Petersburg state. un-t; ed. L. V. Smorgunov. - M.: ROSSPEN, 2006 - 2007. Part II: Levels, technologies, overseas experience state policy and management / L. V. Smorgunov [and others]. - 2007.

Public administration in Russia: a textbook for universities / F.O. Aisina [and others]; resp. ed. A. N. Markova. - 2nd ed., revised. and additional - M.: UNITI-DANA, 2002. - 333 p.

Lobanov, V.V. Public administration and public policy: a textbook for universities / V.V. Lobanov. - St. Petersburg: Peter, 2004. - 448 p.

Raizberg, B. A. State management of economic and social processes: a textbook for universities / B. A. Raizberg. - M.: INFRA-M, 2005. - 383 p.

Chirkin, V. E. Public administration: an elementary course / V. E. Chirkin; Institute of State and Law of the Russian Academy of Sciences, Acad. legal un-t. - M.: Jurist, 2003. - 318 p.

Ways, methods of influence of the subject of management on the object of management within the framework of managerial relations, which are used to achieve the goals and objectives of management, the implementation of management functions.

Main features public administration methods:

1. implemented in the process of management activities;
2. organically linked with the intended purpose of a certain type of management activity;
3. express the managerial impact of the subject of state administration on the object of management;
4. act as a means of implementation by the subject of management of their powers within the competence;
5. addressed to a specific control object;
6. associated with the characteristics (state) of the object of management influence;
7. are the best way to achieve the set management goals in the current conditions;
8. need legal mediation;
9. have a scale (territorial and temporal) binding.

By the nature of the impact There are direct (administrative) and indirect (non-administrative) methods of public administration.

Persuasion, encouragement and coercion are recognized as universal methods of state administration.

14.2. Methods of direct (administrative) influence: features and types

Peculiarities administrative methods:

1. carry out a direct impact of the subject on the control object;
2. are imperative, directive;
3. unambiguity (specificity) of instructions;
4. wide application of administrative acts;
5. are implemented in the mode of control and supervision activities;
6. obligatory occurrence of negative consequences in case of counteraction by the object;
7. the result of the impact occurs promptly (quickly), but may not occur;
8. the result may disappear in the event of termination of the managerial (compulsory) impact.

According to the form of expression (reinforcement) allocate administrative-legal and administrative-organizational (non-legal) administrative methods.

By legal properties: normative and personal.

According to the method of regulation: imperative (categorical), surety and recommendatory.

14.3. Persuasion as a method of public administration

Belief- the process of purposeful influence of the subject of management on the managed object, as a result of which the ideas, values, attitudes of the subject become internal ideas, personal attitudes of the management object.

Means of persuasion affect the consciousness of the object or the will of the object.

Elements beliefs are the mastery of attention, suggestion, the impact on consciousness, the operation of emotions, the formation of interest.

There are the following funds(ways) of persuasion:

• education- the process of purposeful formation of knowledge, skills;
• agitation- dissemination of ideas in order to attract the masses to active social and political activities in the field of public administration;
• propaganda- dissemination among the masses, popularization of ideas, teachings, knowledge, including through the use of mass media;
• explanatory work- activities to explain the content of something;
• criticism- negative judgment and indication of shortcomings in some (someone's) activity;
• condemnation of antisocial behavior- expression of disapproval, censure of deviant (deviant) behavior.

14.4. Encouragement as a method of public administration

promotion- a method of influence of the subject of management, applied to the object of management with a positive assessment of its activities, the presence of merit in order to encourage further success in activities.

Peculiarities promotions:

1. is a method of public administration;
2. the actual basis for the use of encouragement is merit, high performance;
3. is a reaction to the past behavior (activity) of the control object;
4. implemented through the application of specific incentive measures;
5. has a specific addressee;
6. carried out within the framework of special administrative and incentive proceedings;
7. the result of the application of incentives cannot be appealed;
8. stimulates further active activity of the control object.

Depending on the legal basis encouragement can be regulated by legal norms and not having legal consolidation (public gratitude).

By content allocate such types of incentives as moral (gratitude, certificate of honor, entry on the Board of Honor), material (cash award, valuable gift), status (having the legal status of a management object, for example, conferring the honorary title "Honored Builder of the Russian Federation"), mixed ( includes both moral and material or status encouragement, for example, conferring the title of Hero of Russia).

The incentive can be applied to individual subjects, to collective subjects, and to individual and collective subjects.

14.5. Methods of indirect public administration

Peculiarities indirect methods:

1. are a kind of public administration methods;
2. the influence of the subject of management is indirectly on the object of management by changing the conditions of its functioning;
3. objects of management have the opportunity to choose options for behavior within the framework defined by law;
4. the result comes much later than when applying administrative measures;
5. backed by a system of guarantees.

Socio-psychological methods- public administration methods aimed at creating a proper moral and psychological climate in the team.

Types of socio-psychological methods:

1. methods of managing social and mass processes (formation of personnel, authority of the executive authority, etc.);
2. methods of managing collective entities (forming a single team, increasing collective responsibility, mutual understanding, etc.);
3. methods of managing the behavior of individual subjects (formation of a sense of responsibility, unity, etc.).

Types of psychological methods:

1. humanization of labor;
2. acquisition of small groups and teams based on psychological compatibility workers;
3. methods of psychological motivation;
4. methods of psychological selection of workers when hiring.

Economic Methods- type of public administration methods, exerting an impact based on the use