Alexey Barabashev Civil Servants Effectiveness Evaluation: Russian Experience Moscow, June 2011

Procedural regulation of delivery of functions by a government body Instruments (forms) of codifying requirements and responsibilities of civil servants: Job regulation - Job “reglament” (должностная инструкция - должностной регламент) Employment contract (служебный контракт) Program of individual professional development (программа профессионального развития) Thesaurus

History of Question ( I) attempts to construct new generation of job reglaments for civil servants – idea comes from experts of TASIS ( ) + from Federal Program of Public Service Reform in Russia (2003)

History of Question II-B Russian Federation FEDERAL LAW ABOUT CIVIL SERVICE OF RUSSIAN FEDERATION APPROVED BY APPROVED BY STATE DUMA SOVIET OF FEDERATION JULY 7, 2004 JULY 15, 2004 Article 50. Civil Servants Payments 14. Special order of renumeration on base of indicators of effectiveness and labor performance for certain positions of civil servants 15. List of selected labor positions approved by President of RF Decree, and by Normative Acts of the Subjects of RF 16. Special order of renumeration is limited by funds of Government bodies for gross payroll plus social contribution funds 17. Criteria of effectiveness and labor performance of civil servants approved by Government body’s Normative Acts

Pattern Approach: - 4 categories of civil servants: executive officers, assistants (advisors), specialists, support specialists - 5 groups of civil servants: highest, major, leading, senior, junior groups Group + category = position Idea: To elaborate the pattern job reglament for every possible combination of category and group

Practical needs To introduce the special order of civil servants’ renumeration of labor on the base of results and quality of their performance (for some positions) To divide the categories and groups of civil servants according to their participation in elaboration and implementation of managerial decisions To avoid corruption To describe all situations of labor activity as complete, as possible

State Duma Apparat Job Effectiveness Evaluation

Experiment: interactive program for effectiveness evaluation

All branches of State Duma Apparat (Political parties Fractions, Secretariat, Commettee, Apparat itself) All positions: from executive officers and advisors to supplementary junior staff Division of results and processes Preparation of Job reglaments by civil servants themselves in a small groups, under advice of experts distribution of decisions-making not corresponded with the positions

Decision-making: Apparat of State Duma Lower groups and categories of civil servants take more decisions than their superiors processesresults Heads of departments – executive officers ++ Deputy heads of departments – executive officers ++ Leading advisors + + Advisors + + Leading consultants + Consultants ++ Leading specialists + Senior referents + + Referents + +

PIK – Evaluation Impossibility to describe situations of job activity completely. Qualitative descriptions Activity of civil servants goes far beyond public services delivery. Internal activity The impossibility of precise delineation of end results and immediate results of job activity Personal results of civil servants job activity is not corresponded directly with effectiveness of Government bodies as such. Self-evaluation of Gvt bodies Positions Indicators Criteria

Socio-Cultural Russian Constrains Culturally rooted atmosphere of mistrust, attempts of authorities to control everything. Control and supervision functions enormously extended Psychological impossibility to establish the horizontal structures of responsibility and decision-making Vertical-oriented system of governing, when decisions produced ONLY by high level bureaucrats, despite contribution of lover level of State Apparat or other organizations (including NGO), which elaborate it. Absence of author’s (experts) supervision of the process of decisions implementation existing theories of governance have no capacity to assess the effectiveness evaluation of civil servants in Russian case. It should be new kind of theory, that could evaluate the civil service (and governance in general) in case of countries with weak civil society

Comments (1) Good governance as the transitional theoretic stage on the way toward new Theory of Effective State: clear distribution of responsibilities on the base of civil servants professional competencies framework in decision-making process professional activity (process) and its results evaluation as two different procedures

Comments (2) Such a Theory should include: Elaboration of the analytical instruments how to calculate the contribution of State into national economy, social and cultural progress Principles of Decomposition of State contribution: contributions of separate Government bodies Decomposition of contribution of Government body: contribution of its branches, and servants

Calculus of Government

“I wonder about time, when people, instead to discussing problems could sit and simply CALCULATE the right answer” (Gottfried Wilhelm von Leibniz) Is it ever possible, that in the future people, instead to discussing, if Government is doing things in a right way or doing right things, could sit and simply CALCULATE the contribution of Government into the development of society?