Career Management- this is a set of measures carried out by the personnel service of the executive body for planning, motivating and controlling the career growth of an employee, based on his goals, needs, capabilities, abilities and inclinations, as well as based on the goals, needs, capabilities and social economic conditions activities of the executive branch. Control business career allows to achieve the devotion of a civil servant to the interests of the authority, improve the quality and productivity of labor, reduce staff turnover and more fully reveal the abilities of an employee.

The career is managed not only by the public authority where the civil servant works, but also by the civil servant himself. Any person plans his future based on his needs and socio-economic conditions. There is nothing surprising in the fact that he wants to know the prospects for career growth and opportunities for advanced training while in public service, as well as the conditions that he must fulfill for this. Otherwise, the motivation of behavior becomes weak, the person does not work at full strength, does not seek to improve his skills and considers the service as a place where you can wait for some time before moving on to a new, more promising job.

Motivation of labor behavior of a civil servant is the most important lever of career management.

Motivation of employee's labor behavior is the most important lever of career management. This conclusion is confirmed by the data in Table. 1.5, which characterize the work path of an employee at all stages of a career. The table shows changes in career goals, labor potential, career development requirements depending on motivation labor activity employee at various stages of a career.

Table 1.5

Motivation of a public civil servant at various stages of a career

In the course of a career, individuals are most often interested in the following five factors of motivation (Fig. 1.9).

Rice. 1.9.

Career equity. The employee hopes for impartiality in organizational control, for a promotion system conducive to career advancement.

Leadership interest. The employee wants management to take a more active role in career development. He is interested in the availability of feedback, which is facilitated by the regular conduct of questionnaires and the provision of detailed information to senior management on the state of affairs.

Full awareness. Employees want to know about all the promotion opportunities that exist.

employees' interests. Employees want their interests to be taken into account when planning and developing their careers. Different attitudes of individuals towards their careers are determined primarily by personal factors (needs, interests, attitudes). Some are interested in a vertical career, others in a horizontal one, others in a monotonous one, and so on.

Career satisfaction. The degree of career satisfaction is determined by many factors and depends on the age of the employee and occupation. A high degree of dissatisfaction leads either to a crisis or to a change in job or profession.

Career management can be implemented by solving the following tasks:

• 1. Planning for individual professional development and career advancement.
• 2. Organization of obtaining the necessary level of professional training.
• 3. Activation of the employee's activities in order to encourage them to reveal their own creative potential. Creation of a motivational environment.
• 4. Regulation and coordination of the involvement of employees in the performance of tasks career strategy.

• 5. Analysis and evaluation of the results and methods of activity, personal and professional qualities.
• 6. Control over the activities of employees, their professional and official growth.

The foundation of career management within public service is the Program of its development, which contains:

• ways to identify employees with high growth potential in long term taking into account age, education, experience, business qualities, level of claims:
• incentives to create individual plans careers;
• methods for linking careers with performance appraisal results;
• ways to create favorable conditions for development;
• organization effective system advanced training;
• forms of responsibility of managers for the development of subordinates. Career management plays big role both for the employee

and for the government. Successful career has a paramount influence on the satisfaction of the individual with work and life in general. It provides a person with material well-being, satisfaction of his higher needs, such as the need for self-realization, respect and self-respect, success and power. Ultimately, a career acts as a kind of confirmation of a person's working life, structuring his work experience and presenting it not as an incoherent mass of actions, but as a purposeful development in a sequence of certain steps and steps.

The executive branch also has reasons for being interested in managing the careers of its staff. If for a person a career is development and advancement in the organizational space, then for a government body it is, first of all, a matter of fullness, integrity of this space. Competent management of career development is a factor in increasing the efficiency of its activities, a condition for its sustainability and viability in a changing environment, the driving force behind its development.

Career management is directly related to the solution of such problems as employee satisfaction with work in the government and related productivity and quality of work; continuity professional experience and culture; ensuring uninterrupted and rational replacement of key positions; adaptability and maneuverability in conditions of rapid changes in the content and division of labor, in conditions of crises; Finally, it is connected with the issues of internal increment of the professional potential of the authority.

The general purposeful impact on the nature of the course and the content of the process of career development of an employee should be carried out by combining efforts to manage a career on the part of the authority and self-manage a career on the part of an individual.

Career management in modern conditions requires adherence to a number of principles:

• participation, those. the principle of career management in a dialogue mode, in an atmosphere of coordination of all actions between the participants in the process, and in itself the inclusion in the process of the employee himself, and his immediate supervisor, and the personnel management service;
• science, those. the principle of the validity of actions and activities, their compliance with modern achievements in management theory, psychology, sociology in the field of knowledge of the main patterns, driving forces and mechanisms, factors and determinants of career development;
• complexity, those. striving to take into account the whole variety of factors influencing the process of formation and career development. This includes as organizational factors, and factors associated with the personality of the subject of career development, which can also be external and internal.

The main functions of the personnel business career management system should be: regulation, planning, organization, coordination and regulation, motivation and stimulation, control, accounting, analysis. These functions are carried out through the implementation of specific control functions.

When implementing career management functions, it is necessary to apply various methods and technologies: management by goals; specialized training; adaptation management; career guidance management; work with a reserve for promotion; individual psychological counseling; careerogram modeling; model development professional competencies; drawing up individual plans for career development.

Career management mechanisms for employees should include a set of organizational-administrative, socio-psychological, economic and moral means and methods of influencing their development and promotion. Within the framework of these mechanisms, it is advisable to apply in combination such methods as:

• fixing the conditions and requirements for the development and promotion of employees in job descriptions and other normative documents;
• the creation of an intra-organizational culture that encourages the pursuit of a career as self-expression within the authority and condemns careerism as an orientation towards promotion for the sake of obtaining additional benefits (external attributes of power, privileges) at any cost, up to ignoring moral standards;
• material and monetary incentives for career movement. The career management mechanism should act as a set

personnel technologies and career management methods that ensure the management of an employee's professional experience and the implementation of his career strategy. At the same time, it is important to take into account the factor of acceptance and awareness of this mechanism both by personnel officers and managers, and by all employees of the government body as a whole.

It must be remembered that managing an employee's business career is an active interaction of three parties: the employee himself, his immediate supervisor and the personnel management service. The leader formulates the needs of the authority in the development of an employee, often acts as a mentor. The employee is directly responsible for successful development your own career by putting your plan into action every day. And the personnel management service coordinates the entire process of career management, acts as a consultant, makes efforts to increase the degree of objectivism in making decisions on promotions.

When applying for a job, a person sets certain goals for himself, but since the organization, hiring him, also pursues its own goals, the person entering the service must be able to realistically assess his business qualities. A person must be able to correlate his business qualities with the requirements that the public service puts before him. The success of his entire career depends on this.

Entering the civil service, a person must know the labor market. Without knowing the labor market, he can enter the first job that appeals to him. But she might not be what he expected. Then the search begins new work. Suppose that a person knows the labor market well, looks for promising areas of application of his labor and finds out that it is difficult to find a job for his knowledge and skills, since there are a lot of people who want to work in this area, as a result, strong competition arises. Having the ability to self-esteem and knowing the labor market, he can select a place of work and a region where he would like to live and work. A correct assessment of your skills and business traits involves knowing yourself, your strengths, weaknesses and shortcomings. Only under this condition can you correctly set career goals.

The goal of a career cannot be called a field of activity, a certain job, position, place on the career ladder. It has deeper content. Career goals are manifested in the reason why a person would like to have this particular job, to occupy a certain step on the hierarchical ladder of positions.

Here are some career goals as an example:

• engage in a type of activity or have a position that corresponds to self-esteem and therefore delivers moral satisfaction;
• have a job or a position that meets self-esteem, in an area whose natural conditions favorably affect the state of health and allow you to organize a good rest;
• to occupy a position that enhances and develops opportunities;
• have a job or position that is creative in nature;
• work in a profession or hold a position that allows you to achieve a certain degree of independence;

• have a job or position that pays well or allows you to simultaneously receive large side incomes;
• have a job or position that allows them to continue active learning;
• have a job or position that simultaneously allows you to take care of the upbringing of children or the household.

Career goals change with age, and also as we change ourselves, as our qualifications increase, etc. Forming career goals is an ongoing process.

Career management should begin when you apply for a job. When applying for a job, you are asked questions that set out the requirements of the employing organization. You should ask questions that meet your goals, formulate your requirements.

As an example, here are some questions asked by applicants to the employer:

• What is the organization's philosophy in relation to young professionals?
• How many days a year will be spent on business trips (including foreign ones)?
• What are the prospects for the development of the authority?
• What are the wage systems at his future workplace?
• What are the chances of getting a higher position?
• Will conditions be created for training, advanced training or retraining?
• Is it possible to reduce the position and in connection with what?
• In the event of a layoff, is it possible to count on the assistance of the authority in finding employment?
• What are the principles of formation pension fund, the possible size of the pension?

When managing a career in the process of work, you must remember the following rules:

• Do not waste time working with a non-initiative, unpromising boss, become necessary to an initiative, operational leader; expand your knowledge, acquire new skills; prepare yourself for a higher-paying position that becomes (or becomes) vacant.
• Get to know and appreciate other people who are important to your career (parents, family members, friends).
• Make a plan for the day and for the whole week, in which you leave room for your favorite activities.
• Remember that everything in life changes: you, your knowledge and skills, the market, the organization, environment; assessing these changes is an important quality for a career; your career decisions are almost always a compromise between desires and reality, between your interests and the interests of the organization.

• Never live in the past: firstly, the past is not reflected in our memory as it really was, and secondly, you cannot return the past.
• Do not allow your career to develop much faster than others; quit as soon as you feel it's necessary. Think of the authority as a labor market, but don't forget the external labor market; do not neglect the help of the authorities in finding employment, but in search of a new job, rely primarily on yourself.

But in order to manage a career, a more complete description of what happens to people at various stages of a career is necessary. To do this, organizations interested in effective management career, special studies are being conducted. In table. 1.6 is given indicative list questions that need to be analyzed in the course of a career.

Table 1.6

Analysis of the problems that appeared in the process of career

Separate research results are drawn up in the form of career charts, which allow you to visually trace the path traveled up the career ladder and the qualification characteristics that impose requirements on individual positions. In table. 1.7 shows an example of a career path for a state civil servant of the highest level of management.

Career profile of a state civil servant of a higher

management level

Table 1.7

To effectively manage your business career, you need to make personal plans. The content of a personal career plan for a leader consists of three main sections: assessment of a life situation, setting personal final career goals; private goals and action plan.

• 1. ASSESSMENT OF THE LIFE SITUATION
• 1.1. Job
• Am I clear about my work and its goals?
• Does my job help me achieve other life goals?
• What are the goals of my development and advancement in work?
• What job do I want to do in 10 years?
• Do I have enthusiasm and motivation?
• What is my motivation right now? In five years?
• What are the strengths and weaknesses of my motivation?
• What activities can I take to make sure that my work will meet my personal needs in the coming years?
• 1.2. Economic situation
• What's mine economic situation?
• Do I have a personal budget - what is it and do I stick to it?
• What measures can I take, if necessary, to improve my economic situation?
• 1.3. Physical state
• What form am I in now?
• What is my rating based on? (own view, tests, etc.)
• Do I have regular check-ups with the doctor?
• In what medical institution it is necessary to be treated?

1.4. Social status (human relations)

Am I genuinely interested in the opinions and perspectives of others? How do I account for them?

Am I interested in other people's concerns and problems?

Do others care about my opinion?

Am I imposing my thoughts and opinions on others?

Can I listen?

Can I appreciate the people with whom I communicate? How does this manifest itself in practice?

Do I strive to develop the people I interact with?

How do I maintain friendships?

How can I amplify feedback in your relationships with others?

• 1.5. Psychological condition
• What is my mental state?
• What is my rating based on? (self-image, tests, medical examination result)
• What stressors are bothering me right now?
• Should I change jobs now?
• What stressors can expect me in the near future?
• Should I change my lifestyle, circle of friends, hobbies?
• Do I need psychiatric help?
• 1.6. Family life
• Do I have the conditions to create a family?
• Should we have another child?
• Do I pay enough attention to my parents, wife, children?
• What is the best way to spend leisure time with your family?
• Where to go on vacation?
• Where should children go to study?
• How to help children with families of their own?
• 2. SETTING YOUR PERSONAL CAREER END GOALS
• 2.1. My career goals are:

• 2.2. My plans must be realized before_, at the latest
• 2.3. What factors contribute to the achievement of my career?

What hinder?_

2.4. What are the most critical points in achieving my career? What can I do about it

2.5. What do I need to engage to achieve my career:

time, money, health, etc.?_

Am I ready to engage these factors or do I need to change my goals?_

3. PRIVATE GOALS AND ACTION PLAN FOR MY CAREER

For the effective organization of the career management process in public service bodies, within the framework of the personnel management system of this body, it is necessary to form a block of career management functions. These functions should be performed by: top managers, personnel service, directors of departments and heads of departments of public authorities.

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If we consider a career in a socio-political, economic key, in terms of its significance for the state, then this is a question, first of all, of ensuring our National economy necessary professional staff. This is a very topical issue for us, since in some sectors of the economy there is a catastrophic lack of specialists, in others there is an overabundance of them. Also increased sharply specific gravity older people in certain sectors of the economy and the country as a whole. And the trends are not encouraging. Thus, according to a number of monitoring agencies, the number of students in domestic universities has decreased by about 500,000 people.

The reasons for this situation include the “demographic hole” that we fell into in the late 1990s, the lack of demand for many specialists, the discrepancy between their education and the actual work performed, and others. Thus, according to the research center of the NP "Experts of the labor market" at the end of 2014, the work corresponded to the specialty received only in 46.7% of cases. In general, up to 50% of graduates of Russian universities, more than 60% of graduates of secondary and up to 80% of graduates of primary vocational schools remain unemployed, lose social and, most importantly, moral guidelines, join the army of the unemployed or take the path of deviant behavior. True, our young people still understand that you cannot make a career without education, and they try to study and work (more often at the same time).

In connection with the indicated relevance of the problem under study, it is necessary to understand what a career is, its essence, content, and significance for state and municipal employees.

Career (from French cariera) - successful advancement in a particular area (public, service, scientific, professional) activities. IN general view, a career involves: the subject's awareness of his prospects, the procedural part of the movement through positions, the growth and development of the individual, the accumulation and use of its potential. It is argued that a career is realized by certain methods and means in accordance with the life goals of the individual and is often associated with the process of socialization.

Career - a path, a course, a field of life of service, success and achievement of something.

IN AND. Dal.

Explanatory Dictionary of the Living Great Russian Language

The choice of a career is the most important decision in a person's life to achieve his goals and depends on the correspondence between his personality and the nature of his work, as well as on the combination of personal expectations in the field of personal career with the possibilities of the organization.

The concept of service career exists in a broad and narrow sense. In a narrow sense, a career is an official promotion, the achievement of a certain social status in professional activities, the occupation of a certain position. In a broad sense, a career is professional advancement, professional growth. The result of a career is the high professionalism of a civil servant, the achievement of a recognized professional status.

A civil servant, as a rule, consciously chooses and builds a career in professional and official terms. The essential component of a career is the concept promotion. That is, a career is a process defined as moving forward, as a sequence of evolutionary changes. This is the basis for the understanding of a career as an active advancement of a person in the development and improvement of a way of life that ensures its stability in the flow of social life. Career can be imagined as a process of mastering certain values, benefits recognized in a society or organization.

Quarries pierced by the head itself are always stronger and wider than quarries laid by low bows or the intercession of an important uncle.

DI. Pisarev, Russian literary critic, publicist and writer

As a social phenomenon, a service career should always be based on a personality-oriented moral character, be built for a person and provide him with opportunities for continuous development and self-expression of creative and moral potential, otherwise it is difficult to attract to the state civil and municipal service talented people.

The specificity of the career of a civil and municipal employee and, in general, the subject area of ​​this profession puts forward special requirements for the goals, strategies, forms and methods of activity of the service itself, based, first of all, on the recognition of a special attitude towards bureaucracy on the part of society and the attitude of an employee to himself, in in which the moral self-worth of the individual is associated with the social position of a person representing public authority, dignity professional ethics civil and municipal service. This formula reflects the inseparable connection between law and morality, which regulate the meaning and direction of the career of people in this profession.

To understand the essence of a career as a phenomenon, it is important to consider the concept of self-realization of an employee's personality. There are both professional and personal self-realization. In the first case, the realization of personal potential is predominantly fragmentary, concrete-subjective in nature, in the second case, the entire sphere of professional interests, moral guidelines, aspirations, desires of a person is subject to change. The subject of self-realization in the first case is located within the object of activity (for example, some sphere of the economy), which is engaged in by a state or municipal employee. The effect of the influence of professional self-realization indirectly finds expression in the reflection (reflection) of a person who evaluates his “success in professional activity”, as well as “job satisfaction” and “expectations, hopes, prospects” associated with this field of activity.

The subject of self-realization in the second, “common” case for a person is inside him. In this case, the product of the individual’s activity is herself, her moral integrity, her satisfaction, success from the processes of self-change, self-identification with herself, her personal “I” and the “I” of the rest of the world. At the same time, personal and professional self-realization can merge with each other, unite in the processes of self-realization activity. It is necessary that both types of self-realization do not interfere with each other. That is the best option, for any employee, when the level of development of the personality itself, its maturity, as a result of working on oneself, contributes to the successful performance of official duties in a certain position.

The four main qualities that determine the appearance of the "ideal subordinate", as shown by a survey conducted among managers, are: professional knowledge; skill to work in team; performance and responsibility; the ability to quickly learn new knowledge and skills.

There are several types of employee careers. Career intra-organizational means that a particular specialist in the process of professional activity goes through all stages of development: training, employment, professional growth, support and development of individual professional abilities, retirement.

Career interorganizational means that an employee in the process of professional activity goes through all stages of development: training, employment, professional growth, support and development of individual professional abilities, retirement.

Specialized A career is characterized by the fact that an employee goes through all stages of development within the framework of one area of ​​activity in which he specializes. Non-specialized an employee's career refers to the ability of an employee to work in any area of ​​the organization, and not in any particular function. As a result of such a career, the employee acquires a much smaller amount of specialized knowledge (which in any case will lose its value over time), but owns holistic view about the industry, organization, backed up by the same personal experience.

A vertical career is the type of career with which the very concept of a career in the state and municipal service is most often associated, since in this case promotion is usually the most visible. A vertical career is understood not only as an ascent to a higher level of the structural hierarchy (promotion, accompanied by a higher level of remuneration), but also as a demotion. This is a promotion from the lowest position to the highest.

Horizontal career - a type of career that involves either moving to another functional area of ​​activity, or performing a certain service function at a level that does not have a rigid formal fixation in organizational structure(for example, the role of the leader of a temporary team, etc.). Or, for example, an employee of the administration of district N, who was responsible for working with youth, was appointed responsible for the development of physical culture and sports in the same district. The positions are approximately the same order, but the functions of the employee have changed, and with the development new position expands his professional experience.

Career stepped- a type of career that combines elements of horizontal and vertical views careers. The promotion of an employee can be carried out by alternating vertical growth with horizontal, which gives a significant effect. We use the example given just above, when an employee from the position of an ordinary worker responsible for working with youth is appointed head of the department for the development of physical culture and sports. This is both a higher position and a different functional profile.

Hidden career - the type of career that is the least obvious to others. It is available to a limited circle of employees, usually with extensive business connections outside the organization. When a person with achievements in the profession that are not obvious to others is appointed to a higher position.

A centripetal career is understood as a movement to the center of the organization's management, for example, inviting an employee to meetings that are inaccessible to other employees, meetings of both a formal and informal nature, gaining access to informal sources of information, confidential appeals, and certain important assignments of management. Such an employee may hold an ordinary position in one of the divisions of the organization. However, the level of remuneration of his work, as a rule, significantly exceeds the remuneration for work in his position.

The career growth of state and municipal employees is directly related to their high moral qualities as an integral part of the official's competence. In the minds of employees, the concept of a professional should be identified with the concept of a highly moral person.

There are quite a few striking examples of truly moral service to the Motherland in our history. One of them is the ministry of Pyotr Arkadyevich Stolypin. A Christian, a patriot, an outstanding statesman who gave all his strength, and, finally, his life, to the service of the Motherland. In the years when the shadow of a revolutionary catastrophe hung over our Motherland, he worked with outstanding courage, patience and zeal for the peaceful and lawful transformation of people's life. Dealing with a lack of understanding of his own, with the furious hatred of his enemies, with many attempts on his life, he addressed his fellow citizens with the words: “We want to believe that from you, gentlemen, we will hear a word of appeasement that you will stop the bloody madness. We believe that you will say the word that will make us all stand not for the destruction of the historical building of Russia, but for its re-creation, reconstruction and decoration.

The Order named after Pyotr Arkadyevich Stolypin was established in the Russian Federation. Awarded for merit in the field of state and municipal government. The award set, in addition to the order, includes three medals named after Stolypin, for rewarding employees of the authority headed by the holder of the order. Order named after Stolypin, awarded as part of the forum of heads of government.

A. A. Danilov, L. G. Kosulina History of Russia XX - early XXI century.

IN last years, the importance of morality in the career of employees is increasingly depreciating, which can lead to deformation of the entire system of state civil and municipal service. This is due to the current situation in our country: on the one hand, people are taught from childhood that success in life is achieved by diligence in studies, hard work, honesty, etc. On the other hand, the young person quickly discovers that opposite qualities are often more useful for "success".

Today, in the understanding of many employees, the concept of "professional competence" has a vague, indefinite meaning and carries a subjective semantic load. Let us specifically emphasize: if professional competence is not based on the law, discipline, leadership, universal moral values, the ability to analyze the social consequences of decisions, if all this is absent or minimized, then it is difficult to talk about the professionalism of managerial employees in the full sense of this concept. Many employees in their work act in the old way: they use non-scientific management technologies in practice, focusing on the attitudes and requirements of a higher manager.

The whole art of management consists in the art of being honest.

Thomas Jefferson, third President of the United States

Concept government controlled in the writings of Lorenz von Stein

Lorenz von Stein(1815–1890) - German philosopher, statesman, historian, economist. Author of various works on society, state, law. In terms of ideological pedigree, von Stein is a descendant of imperial knights, which hardly matches his original socialist teachings. His era is the era of the strengthening of Prussia as a state, which then became the backbone of a united Germany. The era when the tasks of nation-building were unexpectedly intertwined with the problems of social class antagonisms, which so clearly manifested themselves in the series of European revolutions of 1848.

L. von Stein associated the implementation of social reforms with the purposeful policy of the state, since the state stands above capital and labor and itself “suffers a lot from the dependent position of the lower, purely working class,” since the more numerous this class, the poorer the state itself.

The state can solve the "social question" by creating such a state structure and such institutions that would allow labor itself to lead to the acquisition of property. This path turns the state into a social state and allows each person to be provided with conditions of well-being. Under these conditions, L. von Stein understood "not spiritual or economic wealth as such, but precisely a living and free movement that makes this wealth achievable for every person."

It should be noted that the welfare state does not seek to change the class structure of society and eliminate class contradictions, it only tries to smooth out, minimize, and balance these contradictions. Real way achieving this is the ability to move a person from one class to another by changing attitudes towards property.

If the state is “unable to fulfill its highest social function, which consists not in the subordination of one interest to another, but in the harmonious resolution of their contradictions, then its place is taken by the elementary power of physical forces and Civil War destroys together with the well-being of all the state itself, which could not understand and preserve this well-being.

The mission of the welfare state at the level of government is expressed in two main tasks: firstly, to promote free interclass movement, and secondly, to help those who suffer deprivation. L. von Stein showed how these two tasks are implemented in specific managerial functions states:

1) removal of legal obstacles to free interclass movement;

2) care for social needs, which is designed to provide each individual with the physical conditions of independence; assistance to labor without capital in achieving economic independence, for example, through auxiliary funds, insurance business, self-help in the form of a union system of the poor.

In the understanding of L. von Stein, the state is the only guarantor of social justice and thus "rise above all other social institutions and interests."

L. von Stein wrote: the state “is obliged to maintain absolute equality in rights for all different social classes, for a separate self-determined personality thanks to its power. It is obliged to contribute to the economic and social progress of all its citizens, because, ultimately, the development of one is a condition for the development of another, and it is in this sense that the welfare state is spoken of.

Career of a public civil servant

Career is a process, a feature of which is the maximum use of the potential of an employee within specific living conditions, i.e. promotion, depending on his efforts and energy. At the same time, a career is seen as a process of achieving a prestigious position in society, from the point of view of broad public opinion and a high level of income. Its essence is presented as progress, promotion, achievement of a higher level of professionalism. The benchmark for a civil servant is to achieve peaks in the development of himself as a person and as a subject of professional activity.

Professional service activity civil servant is carried out in accordance with the job regulations, job regulations component administrative regulations of the state body.

The job regulations include: qualification requirements for the level and nature of knowledge and skills for a civil servant who replaces the corresponding civil service position. And also to education, length of service in the civil service (public service of other types) or length of service (experience) in the specialty. Job duties, rights and responsibility of a civil servant for non-performance (improper performance) official duties are also included in the regulations.

In accordance with the federal program state support local self-government, the creation of a system for training civil servants is a national task. In this regard, it is expedient to legislatively provide for the inclusion in the local budget of the cost of training for the professional training of personnel for the civil service.

Professional training for the civil service is carried out in educational institutions higher professional and secondary professional education in accordance with federal law.

The grounds for sending a civil servant for professional retraining, advanced training or internship are:

1) appointment of a civil servant to another civil service position in the order of promotion on a competitive basis;

2) the inclusion of a civil servant in the personnel reserve on a competitive basis;

3) the results of attestation of a civil servant.

The advanced training of a civil servant is carried out as necessary, but at least once every three years of a civil servant.

Professional retraining and advanced training of a civil servant is carried out in state-accredited educational institutions of higher professional and secondary professional education.

employee development- this is not an end in itself. It makes no sense to develop staff if employees do not have the opportunity to realize their increased abilities. It must be remembered that abilities are likely to be put into practice only when there are real opportunities for this. Each program for the development of human resources of the state and municipal service, including the development of abilities and changes in activities and needs, should be focused on a measurable improvement in specific performance indicators of the organization. No change can be made unless it is clear that it will bring about an improvement, a shift that will make the activity more efficient, more purposeful, more satisfying to those involved.

The professional career of civil servants is not only (and not so much) promotion through the official levels of the organizational hierarchy, but also the process of realizing a person's capabilities. Service relations in the civil service are regulated by various branches of law: international, constitutional, labor, administrative, financial, etc. The legal basis is formed by various regulations. A professional career is usually accompanied by a personal professional development, and the connection here is mutual. The dominant motives of those employed in the civil service are a guarantee permanent job, stability of the position, the desire to realize oneself in professional activities, prospects for career growth. It is also possible to single out a clear typology of the professional career of civil servants based on the identification of six associative types of professional career, depending on such parameters as self-esteem, efficiency, level of aspirations and “locus control”. Now there are many problems in building a career of a civil servant, the main of which are: insufficient qualifications of civil servants, the problem corporate culture, not the attractiveness of the state as an employer. Measures are currently being taken to address these issues.

Introduction

Chapter I. Recruitment and Career of Young Officials: Weber's Ideas and Russian Reality

1 Factors of a professional career of a civil servant in the Russian Federation: traditions and modernity

2 Hypotheses and methodology

3 How to become officials: recruitment channels and tools

Chapter II. Career vision. Legal basis of the organization

1 How do elevators work?

2 Legal basis for career organization

3 Foreign experience

Conclusion

Introduction

The changes that have taken place in Russia over the past ten years have made the problem of strengthening statehood and, in particular, increasing the efficiency of public service, urgent. The dependence of the results of socio-economic transformations on the state of the management mechanism and the quality of personnel performing state functions is becoming more and more obvious. The activities of civil servants are significantly affected by their status stability (employment stability, guaranteed wages), as well as opportunities for career advancement as they gain experience and professional knowledge. Conducted in 1996-1997. by the scientists of the RAGS, studies of career strategy and tactics revealed a fairly pronounced interest of a significant part of civil servants (67%) in official and professional growth. At the same time, an expert survey (1998) of 173 civil servants showed that their satisfaction with their social and official position is in the range of 10-13%. This reflects the mood of the Russian bureaucracy, which is undergoing permanent reorganizations and changes in administrative and socio-economic legislation.

In Russia, dislike for officials is historically very strong, and often it is the bureaucracy that public opinion blames for all troubles. According to polls, people rate the efficiency of officials very low and do not consider it necessary to raise them. wages. Such a position is accompanied by the conviction that all officials have other than salaries, monetary income, and the bureaucracy as a whole is highly corrupt. However, the quality of the bureaucracy is a reflection of the level of development of the society in which it operates. To rephrase a well-known expression, we can say that every society has the bureaucracy that it deserves. The quality of a bureaucracy seems to depend not least of all on who it is made up of and how its representatives are selected. However, empirical studies of its composition, mechanisms of its formation and functioning processes in modern Russia began recently. The specific difficulties of such studies are related to corporatism and the actual closeness of public authorities from outside observers, as well as the fact that the processes of forming a new Russian bureaucracy are far from completed. Therefore, the tasks of collecting facts about the bureaucracy and describing the daily activities of officials seem to be very relevant. At the same time, it is necessary to analyze these facts through the prism of existing theoretical concepts. An efficient bureaucracy is almost synonymous with an efficient state. If officials are inefficient, incompetent and poorly motivated, large-scale "failures" of the state become almost inevitable.

The ideal bureaucracy, according to Weber, is rational, highly professional and apolitical. A bureaucrat should not be a servant of his superiors and must work in the interests of the cause, regardless of the change of power. All this must be ensured by a number of factors and special procedures. Among them: recruiting based on open competitions, promotion within the organization on the basis of meritocratic criteria, depoliticization of careers and functional responsibilities, professionalization of activities, competitive remuneration and certain social guarantees. The remuneration of officials is clearly fixed, tied to the status or position, as well as to the length of service in the civil service, and does not depend on the specific amount of work. Their bureaucratic careers are, if not guaranteed, then at least predictable. All the rules and features listed above have one main goal: they are aimed at ensuring that civil servants are highly professional experts and identify with the state, and not with specific ideologies, politicians or lobbying groups.

Such an analysis would be useful for the implementation of the civil service reform program, which is one of the political priorities today.

The purpose of the work is to identify and analyze the current mechanisms for the selection and promotion of officials.

Using data on young civil servants, I set out to answer several related questions. First, what channels and tools are used to enter the bureaucracy? Secondly, how do young officials see their careers? Thirdly, according to what criteria is promotion organized within bureaucratic organizations, i.e. how do the "elevators" that provide intra-organizational mobility work? Fourth, how do ideas about career growth mechanisms affect the behavior of people in a bureaucratic organization? And finally, fifthly, how committed are young officials to their organization and public service in general?

The object of my work is young officials, and the subject is the professional career of civil servants. The professional career of civil servants, in my opinion, is not only (and not so much) promotion through the official levels of the organizational hierarchy, but also the process of a person realizing his capabilities. A professional career is usually accompanied by personal professional development, and the connection here is mutual.

Chapter I. Recruitment and Career of Young Officials: Weber's Ideas and Russian Reality

.1 Factors of a professional career of a civil servant in the Russian Federation: traditions and modernity

Society's distrust of officials was not born today, but traditionally accompanies the entire history of the Russian state. “Officiality or bureaucracy,” noted the researcher of Russian statehood E.P. Karnovich, - nowhere in their mass they did not enjoy the special disposition of the population, they are looked upon as some kind of unfriendly force towards the people. In the memorandum “On the past and present of the Russian administration”, written by E. Berendso in 1904 to the Minister of Internal Affairs V.K. bureaucracy due to the lack of honesty and due legality in its activities.

People who are professionally involved in government, statements of this kind seem unfair. A look at the specifics of the professional activity of an official, what is called "from the inside", ascertains with external assessments of the activities of the state apparatus, with a view "from the outside".

This contradiction cannot be dismissed so easily. Public complaints about the bureaucracy force us to take a closer look at the specifics of the daily professional work of an official, at the motives and incentives for his career growth, to understand how the conditions for the functioning of the state apparatus correspond to the tasks assigned to him. The most important indicator manageability of the process of reforming the system of state and municipal government is the management of the official's career. The traditions and value orientations that have developed here can make significant adjustments to the implementation and implementation of normatively prescribed rules and procedures. Despite the traditional unpopularity of the image of an official, bureaucratic service in pre-revolutionary Russia has always remained a privileged professional occupation, since it provided extensive benefits - stable salaries, bonuses and pensions, ranks and orders, after reaching a certain rank - the nobility. The most extensive lower stratum was mainly recruited from the philistinism and petty bourgeoisie. The career of an official suggested the possibility of joining privileged groups and even ruling class in the form of honorary citizenship, personal and hereditary nobility. The middle stratum of the bureaucracy was replenished mainly by people from the intelligentsia, the cultural strata of the bourgeoisie and the impoverished local nobility, who moved to the cities. Most of them were educated in gymnasiums and, more rarely, at universities (by the way, they were painfully torn apart by society, to which the rank and file were generally quite indifferent).

The bureaucracy had the character of an open system when replenishing its lower and middle stratum and almost caste-closed - in the upper stratum. The highest stratum of the bureaucracy - as a rule, large landowners, industrialists, well-born nobles (with the exception of the favorites, who, due to the special personal trust of the sovereign or empress, could also come from the lower strata). Sociological studies of the pre-revolutionary Russian bureaucracy have recorded significant differences in the motivation of the higher and lower, middle stratum of the bureaucracy. For the upper stratum of the bureaucracy, unlike the middle and lower, salary is not the only and even far from the main source of income, and therefore the service is a means to achieve completely different goals than just survival, namely, to join public power in the interests of a large land ownership and commercial and industrial capital.

Questionnaire surveys of pre-revolutionary officials showed that an important factor in the career growth of a Russian official was protectionism, depriving disciplined, but not protected officials of faith in the future, hopes for a more or less secure position. Obtaining a favorable position in the public service was not associated with personal initiative, enterprise, innovation, but with patronage, a bribe, or a long exhausting service. An official without patronage had only one way - "webbing, webbing without end" and an involuntary aversion to work that does not bring moral and material satisfaction. Thus, patronized officials often simply imitated official activities, while competent officials, who lost out in competition due to lack of patronage, lost interest in it. As a result, the service suffered, i.e. a huge, complex matter of public administration, on the healthy state of which the well-being of the entire population and the state itself depended. An important factor professionalization of the Russian state apparatus in the XIX century was the formation of "administrative law" of the bureaucracy. On the basis of the "Charter on the Civil Service" (the third volume of the "Code of Laws of the Russian Empire"), adopted in 1857, all the official duties of officials, the procedure for entering the service and dismissal from it, promotion to ranks, awards, pensions, uniforms and some of the privileges of this profession. But there were serious flaws in this "Charter". The greatest dissatisfaction, as shown by the results of the polls, was caused by the notorious "third paragraph", or officially - article 788 of the "Charter ...", which read: "Officials who, according to the conviction of the authorities, are incapable of performing the duties assigned to them ... it seems to be dismissed according to at your own discretion..." The authorities could not explain the reason for the dismissal, the victim received a “wolf ticket” and was deprived of the right to a pension. The next, Article 789 of the statute clarified that the dismissed officials did not have the right to complain, to appeal either to the court, or to the Senate, and even more so to the office of His Imperial Majesty, where their complaints simply would not be "accepted for consideration."

The "third point" forced officials to see in the face of their own superiors a power that was, as it were, above the law, and forced them to timid obedience to all, even sometimes illegal, orders of it. Both the appointment and the dismissal depended entirely on the will of the superiors. The official in the hierarchy itself remained defenseless, one on one with the immediate superior armed with the "third point".

Many times various government commissions, and later Duma factions, attempted to cancel the “third point”, as contrary to modern legal consciousness, but to no avail. The "legalized arbitrariness", which formed the basis of the service law of the bureaucracy, was stubbornly preserved until the February Revolution. To what extent the rudiments of patrimonialism (dependence on the will of the boss, and not on the results of activity) are obsolete in modern management official career? The practice of unjustified dismissals of officials in connection with the arrival of a new leader (head municipality, governor, etc.), alas, not uncommon. In our study of state and municipal employees of the Ural Federal District, 15.2% of respondents indicated their "insecurity from the arbitrariness of the boss" in our study.

What contributes to the career growth of state and municipal employees? Among the factors of career growth, the leading positions in the respondents' answers are occupied by: the presence of professional experience, length of service in this organization (53.2%), good relations with management, and its support. (49.9%). The next most important factor is professionalism: “the desire to improve one's professionalism” (41.1%), the ability to present oneself as a good employee (35%). In 2006-2008, the Ural Academy of Public Administration under the leadership of Chevtaeva Natalia Gennadievna (Dean of the Faculty of Training of State and Municipal Employees of the Ural Academy of Public Administration, Doctor of Sociological Sciences, Professor) carried out a research project “The factor of socio-professional corporatism of bureaucracy as a resource for increasing effectiveness of the system of state and municipal management”. In accordance with a quota stratified sample (the parameters of the sample were based on the following characteristics: gender, age, level of authority, region), 1,200 respondents were interviewed in the following categories of state and municipal employees of the Ural Federal District:

Managers and employees regional level the executive branch of federal government bodies operating in the Urals Federal District;

Heads and employees of the executive authorities of the subjects Russian Federation Ural Federal District;

Heads and employees of local self-government bodies of the Ural Federal District.

The geography of the study covered all areas of the Ural Federal District: Sverdlovsk region. - 361 people, Chelyabinsk region - 294 people, Kurgan region. - 116 people, Tyumen region, including the Khanty-Mansi Autonomous Okrug - Yugra and the Yamalo-Nenets Autonomous Okrug, - 429 people. The sampling error was no more than 3%.

I note that the factors of professionalism and loyalty to the management go hand in hand, as complementary in career advancement. No less significant, according to respondents, is the ability to work creatively in a team (27.6%). He draws attention to the fact that his career depends little on the ability of an official to “respond in a timely manner to the needs of the population”. Only 9.3% of respondents named this factor among those significant for career advancement. In order to determine the main parameters of the attractiveness of professional activity in the authorities, the respondents (state and municipal employees of the Ural Federal District) were asked the question: “What do you value in your work?” (Multiple answers could be selected). The factor of stable earnings and social security is dominant in the scale of interests of bureaucracy - almost 70% of respondents gave preference to it. The next by a wide margin is a group of factors, the degree of significance of which for respondents is approximately equal (about 30% of each factor): the possibility of promotion, comfortable working conditions, social significance, prestige of work, "the opportunity to communicate with people of one's own circle."

An interesting picture emerged after the correlation of answers to this question, depending on the age of the respondents. The desire to acquire social capital, to establish useful social connections that promote career growth, is actively expressed in the age category “under 30 years old”, while the more mature age category of officials (40-49 years old), who have accumulated social capital, can invest it in a significant managerial resource , noting the factors of proximity to power and the prestige of work among the priorities.

Table 1. Dependence of aspects of their professional activity attractive to officials on age

Age / Attractive aspects of work Up to 3030-3940-49 years 50 and older Opportunity for promotion40,525,120,813.7 Participation in management17,824,331,726.3 Stability of earnings, social security24,623,231,121.1 Comfortable working conditions23,625,734,416.3 Cash no social connections30,821,922,724.7 Proximity to power17,530,037,515 .0Prestige of work21,424,335,918.4 Opportunity to communicate with people of your circle29,220,629,920.3Other22,914,328,634.3

What group of interests forces officials to show fidelity, loyalty to the system of state, municipal government, “links” them into a single socio-professional group?

The results of respondents' answers to the question "To what extent do you social status helps you decide life problems” allow us to conclude that, in itself, belonging to the socio-professional group of officials, according to the majority (76%) of respondents, helps them solve various life problems. Another factor indicating the positive attitude of officials to participation in specific joint activities can be considered the degree of their legal protection in comparison with workers in other areas. The data presented in Figure 1 indicates that the vast majority of officials (to one degree or another) highly appreciate the degree of their legal protection in comparison with workers in other areas. Only a fifth of the bureaucracy is not aware of such an advantage.

In order to determine which stratum of the bureaucracy feels the benefits of its social and legal protection to a lesser extent, we looked at various variants of the correlation dependence. Significant factor was the level of the job hierarchy.

It could be assumed that there is a clear relationship between official status and awareness of the measure of legal protection. However, these studies reveal a somewhat different picture. Despite the general recognition of the advantages of legal protection of one's professional affiliation, in comparison with workers in other areas, two poles of the management hierarchy expressed great concern: the highest and the lowest. Among the answers that assess the degree of their legal protection as “much worse” than workers in other areas, the categories of officials of higher and junior positions prevail (the share of dissatisfied among senior officials in this category was 9.5%, against 1.5% -3.5% , 2.6% in the hierarchy of senior, leading and main positions). Apparently, the degree of dependence of these levels of the managerial hierarchy on extra-legal mechanisms of influence turned out to be the greatest.

An important factor in the professional activity, career of an official is strict observance of the rules and regulations, requirements for state and municipal employees. Does it always become the basis of daily practice? Let's consider just one aspect. Today, in the rules governing the activities of civil servants, the concept of "conflict of interest" and the model of behavior of a civil servant have appeared, clearly prescribing to him the way to resolve this situation of conflict of interest. In particular, in the Decree of the President of the Russian Federation of August 12, 2002 No. 885 "General principles official conduct civil servants" says: "If there is a threat of a conflict of interest - a situation where personal interest affects or may affect the objective performance of official (official) duties - report this to the immediate supervisor and implement his decision aimed at preventing or resolving this conflict of interest" . Wanting to understand to what extent this formalized norm has become the basis of the officials' daily official behavior, we asked the respondents the question: "Do you consider it necessary to inform your superiors about official violations and misconduct of your colleague?"

The results of the respondents' answers turned out to be in the spirit of the traditions of the Russian mentality. The vast majority of officials (65.3%) would report to their superiors about official violations and misconduct of their colleague “only in exceptional cases”, the categorical “no, in no case” was chosen by a fifth of the respondents (19.7%), in total these categories 85% of the respondents were officials.

Only 2.1% expressed their readiness to “be sure to report the misconduct of their colleagues to the management”, while another 6.1% chose the milder option “most likely yes”. So officials who are ready to strictly implement the model of behavior prescribed for them by the rules turned out to be 8.2% in total. The category of “manipulators” was also revealed, who would make decisions to inform the management about the misconduct of their colleague “Depending on the relationship” with him - such turned out to be 6.8%. It can be stated that the professional community of officials gives preference to the existing horizontal social ties, showing the strongest corporatism at the intraorganizational level. Our analysis of the traditions, mindsets and preferences of the Russian bureaucracy once again proves that as long as the mechanisms within the “workshop” of officials remain unclear, the introduction of innovations in the system of state and municipal government will lead to the most unpredictable consequences. The vital and socio-professional position of the bureaucracy turns out to be that serious resource, without taking into account which it is difficult to count on the effectiveness of the functioning of the administrative apparatus, on optimizing its activities in accordance with the expectations and preferences of modern Russian society.

1.2 Hypotheses and methodology

Aggregated data state statistics indicate that the rate of renewal of the composition of officials in Russia in the second half of the 1990s was insignificant. The main "turnover" of personnel took place on the lower floors, while staffing changed little at the top. Promotion from lower positions to higher ones was practically blocked. As a result, young people had no incentive to stay in public service for a long time, leaving older officials without visible competition from below and from outside. This practice may create barriers to the accumulation of specific human capital in the state apparatus, causing an unjustified and irresistible segmentation of collectives into young people occupying the lower floors of the bureaucratic hierarchy, and the elderly, who monopolized the higher ones. At the same time, it is natural to assume that personnel policy» in this case has a strong personal emphasis aimed at the formation of internally cemented teams or clans connected by client ties, i.e. relationships of devotion and patronage between ordinary employees and superiors. Ultimately, all this has a negative impact on the effectiveness of the public service, opposing both the current and long-term interests of certain groups within the state apparatus. The main hypotheses around which further discussion is organized are as follows:

Hypothesis 1. In providing access to the civil service in Russia, personal informal connections play a more significant role than impersonal competitive and meritocratic procedures and rules.

Hypothesis 2. In career advancement within bureaucratic organizations, employee loyalty to management is more significant than business meritocratic criteria.

Hypothesis 3. The practice of access to civil service and the expected policy of promotion of employees in bureaucratic organizations shape the individual's intraorganizational career prognosis. Such a forecast significantly affects the behavior of young officials in the civil service, stimulating their desire to remain committed to their current job or change it.

Hypothesis 4. In organizations that adhere to meritocratically oriented procedures in the policy of hiring and promotion, the level of remuneration is higher.

To test these hypotheses, individual data are needed, which should represent the entire bureaucracy and give an idea of ​​various aspects of its activities, mobility, pay, etc. So far, there is no such data. We have much more limited data from a special survey of young officials conducted in 2001-2002. It covered persons under the age of 35 working in positions of state or municipal employees in federal, regional and city governments.

At the federal level, 10 Moscow-based federal ministries and departments related to economic management were selected. For the study of regional officials, three regions of the European part of Russia were chosen, located to the north, east and south of the capital and in a certain way reflecting the diversity of the regions of European Russia. The object of study were the administrations of these regions, as well as the city administrations of the corresponding regional centers. In each of the selected organizations of state power and administration, a standardized questionnaire was used to interview young officials of category B (the largest category of civil servants), with higher education up to the age of 35 inclusive. A total of 819 people were interviewed at the federal level, 294 in 3% of regional administrations, and 344 in 3% of city administrations. In each of the organizations, about 50% of the list of officials were included in the sample. For regional and city administrations, a general overview of the results obtained has been published. An additional source of information for this work was the materials collected by G.A. Monusova in 2002 during interviews with middle-level managers in the same federal ministries where young professionals were surveyed. These data are not directly used in the article, but they helped in formulating hypotheses and main conclusions. G. Monusova's conclusions based on the analysis of qualitative information are in good agreement with our quantitative data. A.E. came to similar conclusions. Chirikova, who analyzed the relationship between formal and informal rules for the functioning of the regional bureaucracy also with the help of qualitative (“soft”) data.

.3 How to become civil servants: recruitment channels and tools

The importance of competitive entry into the civil service is noted in the description of its functioning in some countries that have achieved particular economic success. There are at least three explanations for this. First, careful selection ensures the selection of the most skilled and productive workers. Since the cost of firing in this area is high, it is very difficult to correct mistakes made in hiring. Secondly, the operation of objective selection procedures provides the hired official with a certain autonomy from higher leaders, prevents the creation of closed clans, and creates the ground for more effective mutual control. All this encourages officials to focus primarily on the interests of society and the state, and not on the interests of their superiors. Thirdly, competitive selection at entry helps to realize such an important condition as equal access to public service. This not only ensures social justice, but also increases the chances of finding the most deserving candidates. As a result, the initial selection of factors for certain functions affects the quality of the performance of these functions much more strongly than any other influences on already selected performers - their training, stimulation, etc., which is also characteristic of many other social situations. Are the current selection procedures in Russia aimed at selecting the most promising employees, or is there a systematic accumulation of the "worst" - the least qualified and productive? Effective selection tools include qualifying examinations (preferably written ones) and tests, which can be used on their own or as part of competitive positions.

Table 2 shows what procedures are actually applied when hiring officials and what entry positions they apply to.

It follows from the table that the absolutely predominant form of selection of candidates is an interview - almost 94% of the young officials surveyed went through it when applying for a job. It would not be a big exaggeration to assume that the "resolution" of the interview as a filter in selection the best candidates extremely small. This is a very subjective procedure, and when applied to the selection of lower-ranking officials (in conditions of an acute shortage of applicants), it can also be completely formal.

Table 2. Types of procedures accompanying hiring, depending on the position of the entrance to the organization * (% of the number of respondents **)

PositionsInterviewParticipation in an official competition for a positionTestingPassing an oral examPassing a written exam Having at least one of the four procedures: competition, test, examAll respondents (N-1443)94441Less than 18Specialist (N-46)94Specialist 2nd category (N-204)9536Specialist 1st Category (N-471)943328Leading Specialist (N-382)94649Chief Specialist (N-179)977916Consultant (N-43)911212Advisor (N-7)86Deputy Head (N-16)88Head of Department (N-25)84 * According to the results of the answer to the question "What procedures did you go through when applying for a job?", it was possible to indicate any number of procedures

** Cells with less than 5 observations are not filled in the table

More formalized procedures include competition and testing. The scale of their use is small: approximately 4% of our respondents participated in each of these trials. Characteristically, the higher the "input" position, the higher the degree of coverage by them. For example, only 2% of specialists of the 2nd category participated in the competition, but already 7% of those accepted for the position of chief specialist. Only 3% of specialists of the 2nd category were tested, but already 9% of newly hired chief specialists and 12% of consultants. This trend persists if we take such an indicator as participation in at least one of the four procedures that increase the meritocratically oriented selection selectivity. Among specialists of the 2nd category, there were 6% of them, and, for example, among the main specialists - 12%. Data on the prevalence of selection procedures in different levels the territorial hierarchy are given in Table 2. In regional administrations, when hiring new employees, the practice of selecting applicants on the basis of a competition, as well as the use of special tests, is still more common than at the city and federal levels. The share of those who have passed at least one of the procedures that increase the objectivity of selection in regional administrations is 3 times higher than in city or federal ones. In the future, we will more than once encounter the fact that the personnel policy of regional administrations is more focused on the selection and promotion of the most successful employees.

Table 3. Types of procedures accompanying recruitment, depending on the level of executive power* (% of the number of respondents, N=1447)

Executive level Interview Participation in the official competition for filling a vacancy Testing Passing an oral exam Passing a written exam Having at least one of the four procedures All respondents9444108 Ministries (N-814)9433106 Regional administrations (N-290)93991017 City administrations (N-343)9423216

Possible forms of obtaining information about a job candidate (screening), along with the already mentioned examination and testing procedures, include preliminary internship in an organization, as well as work without enrollment in a permanent staff (urgent employment contract or contract of employment). Such forms of employment give the employee the opportunity to show many essential qualities that remain hidden under other forms of selection, and the employer the opportunity to get to know the potential employee better and make a more informed decision about the appropriateness of his use in the future. But such forms of screening are also not very common in the surveyed organizations: the shares of trainees and temporary workers are about 11%, overlapping in about 20% of cases. Another way to reduce uncertainty in hiring is referrals from people who are respected and trusted by the employer, or hiring those with whom the employer already knows. However, this practice creates the danger of the formation of a kindred-friendly, rather than a business environment. The data in Table 3 illustrate the fact that personal recommendations (45% of cases) or personal acquaintance with a future employee (40% of cases) are precisely the dominant channels for employers to obtain information about future employees. Less than 20% of young officials came to the organization without being previously introduced to the future employer. Thus, the information previously received or collected by the employer was in most cases the basis for recruitment.

Table 4. Practice of finding a job (% of the number of respondents*)

Answers to the question: “how did you get a job in this organization?” All respondents N-1457 Ministries N-819 Regional administrations N-294 City administrations N-344 Personal recommendation 45514034 Head of department or someone else from the management offered this job 32284137 Applied here myself , but they already knew me here861210On my own initiative without recommendations (“from the street”)1110916On an application received at the university3422Through the employment service2114Other4611 Generally, general structure entry channels to federal, regional and city administrations is approximately the same, with slight differences. When applying for a job in the surveyed federal ministries, the "entrance doors" were opened relatively more often than in the case of regional and city administrations with the help of a personal recommendation, somewhat less often - thanks to personal acquaintances. On the contrary, when applying for employment in regional or city administrations, the role of personal recommendations decreases, and the “efficiency” of personal acquaintance increases. This difference can be explained by the scale of the city where the action takes place. Moscow, where the federal ministries are located, has a larger population and is slightly less likely to have direct links to a direct employer. Accordingly, a large load is assumed by indirect connections, the expression of which is someone's recommendation. City administrations are somewhat more likely than regional and federal ones to hire specialists "from the street" and involve employment services. This difference is most likely a sign of a lower prestige of work in city administrations. Accordingly, more open “access to officials” today is not the result of a special policy of the relevant administration, but a naturally occurring consequence of the low attractiveness of the corresponding jobs. If the referrer is based on knowledge of the recommended professional merit, this reduces uncertainty about the qualities of the hired person and reduces transaction costs recruitment (for example, for screening or training). To do this, he must know the recommended worker well. But the recommendations on which young officials come to work are unlikely to fulfill the above-mentioned function. This is evidenced by the composition of recommenders (Table 4), among which more than a quarter are acquaintances of the recommended and acquaintances of acquaintances, 27% - his relatives and acquaintances of relatives. It is clear that these people (unlike, for example, a university teacher or a supervisor - only 8% of respondents took advantage of their recommendations) can hardly objectively assess the business qualities of an applicant for a position.

Answers to the question “Who directly recommended you for this job?” All respondentsMinistriesOblast administrationsCity administrationsMy acquaintances25262522Relatives, parents12101315Acquaintances of relatives, parents16181214Acquaintances of acquaintances6834Others13131413I was personally acquainted with the one who hired15112019Teachers of the university, scientific manager89116No one recommended7659Average number of elections1.01.01.01.0

So, the facts indicate that the procedures for the “entry” of an employee into state and municipal administrations are most often ineffective in terms of selecting applicants "on merit" and are unlikely to provide it. To a greater extent, they are adapted to filling vacancies with employees loyal to their superiors. The position of the majority of leaders, as shown by interviews, hinders the development of meritocratic selection procedures in the Russian state/municipal service. Such managers criticize the practice of competitive selection for being slow, inflexible, and expensive, and besides, they do not believe that exactly the employee who is needed at a given workplace will be selected through competition. There are also unnamed reasons: direct supervisors lose some of their power during competitive selection and therefore are unlikely to be supporters of the relevant innovations. In order to avoid hiring an employee on a competitive basis, department heads, as a rule, find organizational opportunities - for example, the right to hire without competition a person who is in the personnel reserve. We have to admit that certain rational grounds can be found in the resistance of leaders to the practice of competitive selection. The fact is that the country has not developed a general recruiting and mobility infrastructure: there are no reliably recorded “credit histories” of job seekers, there is no culture of recommendations and trust in recommenders, there are no reliable ratings of professional educational institutions, tests and procedures for the competitive selection of candidates have not been developed. Therefore, the introduction of meritocratic selection mechanisms is a very difficult task, which requires a comprehensive reform of the entire personnel work. If, nevertheless, this work can be done and the mechanisms of meritocratic selection are introduced into the public service system, then not only the society that receives more qualified and free from direct administrative pressure officials will benefit, but also the newly hired officials themselves. The prestige of their work, their autonomy, opportunities for mobility in the system of state/municipal service, and their social security will increase. Characteristically, the young officials themselves are in favor of holding objective competitions for filling vacancies (in the ratio of five and a half to one - 67 against 12%). Perhaps they associate with such competitions and hopes for "unblocking blood clots" in the promotion system already within the organization. Getting a job in a ministry or in the administration of a region (city) is only the first step in the career of a civil servant. The second step is adaptation to the rules prevailing in a given organization, development of one's own strategy and tactics of behavior. Each young employee must answer for himself the question of whether there is a career prospect here? If yes, what should be done and how should one behave? And what to do if such a prospect is not visible? Or is the "price" of a career too high? The way young employees answer these questions determines their future in the organization (and in the public service system in general), and the future of the organization itself. Let us consider further how exactly young employees imagine their careers and build their life plans.

.1 How do lifts work?

civil servant career

A long-term career within an organization or corporation, which is the public service, is, according to Weber, an essential feature of the latter. As I already said, the expediency of such career building is based on the assumption (often implicitly) that in public administration there is a high proportion of specialized knowledge and skills (“hardware specifics”) that officials accumulate in the course of practical work. Therefore, in the interests of the effectiveness of the organization, a person must work in the public service for a long time. Based on the expediency of a long-term career, the processes of advancement (vertical mobility) acquire a key motivating role. The entire system of incentives should be of a prospective, delayed nature. To encourage an official to maintain a long-term commitment to the organization and work effectively over a long period of time, it is necessary to form in him the idea that his efforts today will be rewarded in the future, i.e. his status and earnings will grow depending on the length of successful work. The implementation of this whole long-term process is possible only under the condition of a general high mobility: in order to promote those who are at the lower levels of the hierarchy, it is necessary that those who occupy the middle positions move up. To do this, in turn, senior officials should retire in a timely manner, vacating the corresponding top positions. Compliance with the regularity in the work of "elevators" that move personnel from floor to floor also implies the relative isolation of the entire system. People from the outside should come mainly to lower positions. "Lateral entry" to medium and high positions, of course, will disrupt and slow down the well-coordinated dynamics of phased intra-organizational (intra-corporate) relocations. If vacancies do not open, or are filled by people from the outside, or the promotion is not based on business criteria, this undermines career hopes or stimulates the official to display those qualities that are not related to the fulfillment of the tasks proclaimed by the organization. Let's see to what extent the real processes of vertical dynamics in the organizations we study correspond to the expectations derived from Weber's ideal type. To understand the functioning of the career "elevator", we asked the respondents the question: "How often do vacancies (vacancies) for heads of departments appear in your organization?" This position in itself is high enough for young specialist and opens up opportunities for further upward movement. In this sense, it can be considered as a conditional indicator of the turnover of vacancies. The opinion that such vacancies are opened quite often was expressed by 26% of young employees of ministries and only 6-9% of employees of regional and city administrations. At the same time, about 50% of officials in all types of administrative organizations believe that such positions are filled by the most competent people from within the organization, thereby confirming the priority of internal promotion. So, vacancies, according to young officials, appear rarely, although young employees of ministries note the facts of their appearance much more often (compared to those surveyed in regional and city administrations). This, ceteris paribus, creates more favorable conditions for vertical mobility in ministries. A logical way to improve the chances for advancement and intensify the movement of career "lifts" is a forced retirement after reaching a certain length of service in the public service or by age. This practice is widespread in various countries. More than half of young officials support various kinds of restrictions for their colleagues who have reached retirement age (dismiss, transfer to lower positions, to work under a contract, etc.). But only 18% take a radical position: "dismiss those who have reached retirement age in any case." Respondents working in city and regional administrations are relatively more rigid. This is directly related to the rarer than in the ministries, the appearance of vacancies there and the slower work of career "elevators". However, almost half of the young officials do not agree at all with any restrictions on the labor rights of people who have reached retirement age. It is known that for the development of achievement motivation, including career achievement, the freedom to form claims, the absence of "ceilings" is necessary. Table 5 shows how young people assess the specific range of possible career growth and its limits. According to 42% of respondents, a young specialist who joined the organization in one of the lower positions will "in most cases move up one or two steps" or "may move three or four steps up, but it is unlikely that he will reach the level of head of department." Another 28% believe that "at least in a few cases, he/she can reach the head of the department, but not higher". Thus, more than two-thirds of the respondents see some promotion opportunities for themselves and their colleagues, but believe that the "ceiling" of this promotion is too low. Against this background, the presence of about a third (31%) of respondents who believe that a young person "in rare cases can count on more - to reach the highest positions in the organization" is especially striking. Of course, the "in rare cases" clause makes such statements somewhat easier. And yet, such a significant number of those who admit the idea of ​​higher career achievements is clear evidence that among our respondents there is a rather noticeable group of young officials who are self-confident and strongly oriented towards the vertical social mobility. The "limits to growth" in the views of the respondents are poorly differentiated depending on where they work (at the federal, regional or municipal level). For example, ministry employees have a slightly more optimistic career vision. And although the difference is not very large, it still adds weight to the overall set of arguments in favor of the fact that career advancement in the ministries seems relatively more real to young officials. In order for young specialists to be ready to invest resources in their own development, and for direct supervisors not to interfere with their potential career, both should have a fairly clear idea of ​​the fundamental mechanisms and prospects for a civil servant career. Here it is important to see both its horizon and vehicles(for example, competence, initiative, loyalty), with the help of which you can move towards this horizon. If a "long" upward career is generally unlikely, then all more or less ambitious and capable people will soon start looking "on the side." If the horizon of a possible career for a young worker is long enough, the issue of promotion criteria becomes relevant.

Table 6. Perceptions of career opportunities and limits (in % of respondents)*

Answers to the question: “Let's say that a young specialist came to work in your organization in one of the lower positions. what position can he advance to?” All respondents N-1396Ministries N-785Oblast administrations N-282City administrations N-329… one or two steps up, no more than 24202829 Three or four steps, but unlikely to reach the level of department head18201416 in several cases- up to the head of the department, no higher than 28282727 in rare cases can reach the highest positions31323028 In our study, young people were asked the question: “What do you think is the first thing that ensures promotion in your organization?”. The list of "tips" included 16 various options, revealing the possible criteria for the advancement of people in the public service. You could choose any number of items, but the respondents were limiting themselves and on average gave about 4 answers (84% of the respondents chose 6 or less answers). The distribution of answers to this question (Table 6) shows that, in the opinion of respondents, promotion is primarily influenced by the level of competence sufficient for a new position (this criterion was indicated by 54% of respondents) and the ability to master new types of work, develop (45% ). So, the criteria for promotion, in the opinion of young officials, are most often business qualities, moreover, they are in demand for a new position and its development. The characteristics of the current job (they are indicated by such answer options as good work in the previous position, initiative and independence) are mentioned less frequently. Perhaps this explains why, say, the positions of heads of departments are often recruited from outside. The perceived belonging of the applicant for promotion to a team of like-minded people is not much behind the frequency of mentions of the two qualities of leaders. The prevalence of this promotion criterion once again reminds us of the existence in bureaucratic organizations of informal associations of officials - "management teams". "Team" is not necessarily opposed to the interests of the cause, but still does not fit into Weber's criteria for building an ideal bureaucracy. Weber's approach is fundamentally individualistic: an official, ideally, should be free from any internal corporate interests, should serve only the interests of the cause, his career should be built on the basis of only his personal merits. In this sense, the "team game" of bureaucrats testifies to the imperfection of the Russian bureaucracy in terms of Weber's criteria. The mention of belonging to a team of like-minded people allows the respondent to give a touch of nobility to the interests of the team to which he belongs. But the social qualities that are next in frequency of mention are already devoid of this noble coloring: they directly emphasize personal devotion, service to “persons”, and “not to the cause”. This is the meaning of such promotion criteria as the ability to present oneself, connections and acquaintances, knowledge of the intricacies of “hardware” work, loyalty to the leadership.

Recall that P. Evans and J. Roch included only guarantees of a long-term career among the signs of Weberian bureaucracy, without saying anything about the criteria on the basis of which the promotion of officials through the levels of the hierarchy is based. But we believe that the content of the promotion criteria is also actually among these features. An official can expect a predictable long-term career only if promotion is based on the assessment of his business merit, and cannot build such expectations if his career depends on the whims of his superiors and the need to adapt to them.

Various promotion criteria are recognized by young officials not in isolation, but in certain combinations. Relationships between these criteria can be determined using factor analysis. Integral indicators (factors) built on its basis more generally characterize the respondents' ideas about what influences promotion in the organizations where they work (Table 7). The table shows the first two factors, which together explain 27% of the variance of the original features. The first factor collected all the main variables that characterize business promotion criteria. It can be called the parameter of merit promotion, or the parameter of meritocratic promotion in the organization.

Table 7. Promotion criteria perceived by officials (in % of the number of respondents)

Characteristics of qualities All respondents N-1444 All ministries N-813 All regional administrations N-291 All city administrations N-340 Business qualities Sufficient level of competence for a new position 54507049 Ability to master new types of work, develop 45415943 Initiative 38354838 Independence in work 32284133 Good work in the previous position 3027392 8Social capitalBelonging to a group of like-minded people, to a “team”37374232The ability to “submit » themselves as a good employee37412934Knowledge of the intricacies of "hardware" work27272927Connections and acquaintances34382531Loyalty to management20241417"Formal" criteriaWork experience in the organization38403734Total length of service in the state (municipal) service13131414Acquisition of another higher education8879Availability of education degree8973Age14151512Gender1012106Average number of selected positions4.44.44.84.1

Significant positive loads on the factor have such characteristics as “the ability to master new types of work, to develop” (it is noteworthy that this variable has the highest weight), “independence in work”, “initiative”, “sufficient level of competence for a new position”, “ good job in previous position. Only one indicator, “connections and acquaintances”, has a noticeable negative load on the factor. The higher the value of this factor for a particular respondent, the greater his/her conviction that the current promotion principles are based on business ability and merit. And, accordingly, the stronger, according to young officials, the organization's commitment to meritocratic principles of promotion, the clearer the prospects for one's own career. In indicators that have positive loads on the factor, the dependence of a career on the relationship of an employee with management or other significant figures is not visible, and the criterion of "connections and acquaintances" even has a negative load. Therefore, the high severity of this factor in a person is associated with the feeling that a career depends on himself - his labor efforts and abilities. The promotion criteria included in the second factor with the most noticeable weights are in a different plane than those listed above. Firstly, these are demographic characteristics that do not depend on a person - gender and age, and, secondly, those types of activity that are aimed at maintaining ties with management and other significant figures in the organization. Among them: the manifestation of loyalty to the management, the establishment of connections and acquaintances, the ability to "apply" oneself as a good employee, knowledge of the intricacies of apparatus work. These are precisely the characteristics that can be classified as “out of business” social capital. Characteristically, the indicator “belonging to a team of like-minded people” was also included in this factor, although its factor load is lower than that of others who do not have a noble coloring of social qualities. The general meaning of the promotion criteria combined in this factor is that when they are used, the main power over the career of an official is in the hands of the leadership. At the same time, it is either undivided (when it comes to advancement according to the criteria of age and gender), or it can be influenced by someone who wants to advance, but the method of this influence is only personal service to the leadership. Thus, the higher the value of the factor, the stronger the respondents' conviction that only skillful sycophants with connections, and even those who are suitable according to personal data, have a chance to move up. This factor can be conditionally called a promotion parameter based on loyalty to the management. The factors obtained correspond well to two opposite forms of government - bureaucratic and patrimonial, described by M. Weber. There is, however, one curious difference. For Weber, these two opposite forms act as poles of the same parameter: with the growth of meritocratism, the role of loyalty criteria decreases, and vice versa. According to the results of the factor analysis, it turned out that there are two independent parameters: each administrative organization has its own meritocratic and its own “loyal” principles, and their values ​​vary independently of each other.

So, the respondents' answers to various questions about promotion lead to the same result: the competence criterion outstrips the loyalty criterion in importance. This conclusion suggests that the promotion system serves the interests of the cause and is organized in accordance with Weber's criteria of rationality. True, in considering such facts, it must be borne in mind that the selection system for promotion comes into effect after the selection system for hiring has taken effect. Recruitment in the organizations under consideration, we recall, was organized mainly on the basis of personal connections and recommendations, providing the necessary minimum of loyalty. It is possible that the presence of such a "filter for loyalty" at the entrance to the state or municipal service allows management to control the loyalty of employees in the selection processes within the organization less.

2.2 Legal basis for career organization

Passage of public service by employees, their professional and service promotion. The regulatory influence on it, on the one hand, is the rule of law, and on the other hand, a set of organizational factors aimed at implementing the requirements of the legislation in the civil service. Service relations in the civil service are regulated by various branches of law: international, constitutional, labor, administrative, financial, etc. The fundamental ideas in the field of human rights are set forth in the Universal Declaration of Human Rights, approved by the UN General Assembly in December 1948. Other rights include the following. “Everyone has the right of equal access to public service in their country. Based on this document, the Supreme Soviet of the RSFSR approved the Declaration of the Rights of Man and Citizen (November 22, 1991). According to this Declaration, Russian citizens have “an equal right of access to any positions in state bodies in accordance with their professional training and without any discrimination. The requirements for a candidate for the position of a civil servant are determined only by the nature of the job duties.

The right of citizens to equal access to public service is not bypassed in the Constitution of Russia. The Constitution also regulates the right of Russians to dispose of their abilities for work: to choose the type of activity and profession, to receive education in state and municipal educational institutions. In the field of public service, the listed legal provisions specified in the adopted laws, decrees of the President, resolutions of the Government of the Russian Federation. Among them it is necessary to highlight: the federal law“On the Fundamentals of the Civil Service of the Russian Federation” (adopted by the State Duma on July 05, 1995); Decrees of the President "On the register of civil servants" (No. 33 of January 11, 1995) and "On advanced training and retraining of federal civil servants" (of August 23, 1994). In the light of the topic of this work, the law “On the Fundamentals of the Civil Service of the Russian Federation” seems to be the most significant. It, among other things, reflects a career approach to public service. The methods of selection of persons for public positions are decisive in admission to the civil service. In the past, a system of interviews with candidates and the corresponding appointment to a position was practiced at the discretion of the head. The law gives a more progressive approach to selection. It regulates the competitive system for selecting personnel for public positions. This avoids bias in the assessment of applicants. Russian legislation defines two types of competitions: document competitions and competitions based on trials. The first type is carried out to fill vacancies in senior positions, the second - for leading, chief, senior positions. The competition of documents is held within the framework of state bodies, both employees of the institution where the competition is held, and outsiders have the right to participate in them. The competition-test is conducted by the state competition commission. It includes serving in a certain public position for a certain period (for citizens who are first accepted into the public service, as well as when transferring from another specialization - 3-6 months). The test allows the employee to reveal his professional quality, to prove compliance with the position held. By Russian legislation the test ends with a qualifying exam, the purpose of which is to determine the professional, business, personal qualities of a candidate for the position. The result of the examination may be an appointment to a position belonging to one of the five groups of public positions in the civil service. The hierarchical structure of positions includes: junior, senior, leading, chief. Their specific names are determined for each type of service by the Register of public positions of federal civil servants (approved by Decree of the President of the Russian Federation of September 03, 1995 No. 981). These positions are career steps for employees. In addition, according to the results of the state qualification examination, civil servants are assigned qualification categories corresponding to certain groups of positions. This determines the passage of a vocational qualification career. The procedure for assigning qualification categories is regulated by the relevant Regulations (approved by Decree of the President of the Russian Federation of April 22, 1996 No. 576). The criteria for categories are: vocational education; public service experience; seniority and work experience in the specialty; knowledge legal framework activities within the position. It provides for the possibility of passing the exam at the initiative of the employee, which is an important factor in career growth, self-realization, and professional qualification position. The promotion of employees to higher positions, as a rule, is carried out on the basis of certification. Its procedure and conditions are established by the federal laws of the constituent entities of the Russian Federation. In addition, the certification procedure is stipulated in the Regulation approved by the Decree of the President of the Russian Federation of March 09, 1996 No. 353. For certification, it is necessary to create a special commission, which includes independent experts, which is necessary for a competent and objective assessment of the applicant. Based on the results of the certification, the commission may submit recommendations to the head for the promotion of an employee in a position, assigning him the next qualification category, inclusion in the reserve for promotion to a higher position, and financial incentives. However, at the moment, certification cannot be considered a means of personnel movement. Survey data show that the main way of promotion is still the sole decision of the head - 60% of respondents. Only 14% of employees note the coincidence of real progress with the conclusions of attestation.

For the training of civil servants, the State Committee of the Russian Federation for Higher Education in 1994 introduced the specialty 061000 “State and municipal government» with the qualification - manager. Professional activity specialists of this profile is carried out in the system of bodies of representative, judicial, executive authorities, in other state bodies. The training of such specialists began only in recent years. Training is conducted in such educational institutions as the Russian Academy of Public Administration under the President of the Russian Federation, the Academy of National Economy under the Government of the Russian Federation, the Financial Academy under the Government of the Russian Federation and some others. A state order has been introduced for retraining and advanced training of employees. The general goals and objectives of solving this problem are defined in the Federal Law "On higher and postgraduate vocational education”, adopted by the State Duma on July 19, 1996, and in relation to public service - in the Decree of the President of the Russian Federation of August 23, 1994. "On the advanced training of civil servants"" Decree of the Government of the Russian Federation No. 1047 "On the organization of retraining and advanced training of civil servants of public authorities."

2.3 Foreign experience

Considering the issue of managing the career of civil servants, one cannot ignore the experience of foreign countries.

USA.

The beginning of modern civil service at the federal level was laid in 1883 by the Civil Service Law. This act abolished the previously practiced “booty” system, according to which the president who won the election could completely change all officials. The law introduced a merit system and competitive examinations for recruitment and appointment to the vast majority of posts.

In 1978, the Civil Service Reform Law was introduced. In accordance with it, the Office of Personnel Management, the Office of the Special Adviser were created. Council for the Protection of the Merit System. In addition, an annual assessment of the work of employees was provided for, and the Service of Top Managers was created.

In the USA, there is a detailed classification of jobs and positions depending on the relative complexity of duties and responsibilities, to which wage rates are closely linked. Employees falling under the jurisdiction of the Office of Human Resources are divided into 18 categories. Their salary is comparable to the payment of the corresponding work in the private sector. For SVR, a special procedure for selection, encouragement, promotion, dismissal and pensions is established. The recruitment of employees is carried out by the Human Resources Department. The department conducts examinations according to established programs. The Office's Qualifications Review Board examines senior managers. To occupy a position high discharge the employee also needs to pass the exam. The department is responsible for organizing the training and advanced training of employees. It develops methodologies for annual employee performance appraisals and oversees their implementation by departments and agencies. In 1988, almost 97% of all federal employees were assessed for their professional abilities. It is carried out by the heads of institutions and their special boards for the verification of performance. The fate of an employee's career and the amount of his remuneration depend on its results.

The Senior Management Service Act defines two types of positions: career and general. Only career officials can be appointed to career positions, which should ensure the stability of the state apparatus and "guarantee its impartiality and the people's confidence in the government." Each ministry is given a quota for career positions.

Representatives of other professional groups may be appointed to general positions. One of key features SVR is its flexible nature. Having passed the qualifying selection procedures and won the competition, a civil servant gets the opportunity to occupy various positions within the SVR, regardless of his initial position, as a result of which this system has no job boundaries. In 1989, a law was passed, according to which all career officials are required to undergo certification. On this occasion, the handbook for members of the SVR says: “Attestation aims to increase the performance of career members of the SVR, including by encouraging them creative development and for the purpose of assisting those leaders who are experiencing certain difficulties, but have the potential to achieve good results.

France.

The organization of the French civil service combines a recruitment system (“open civil service”) and a career system (“closed civil service”). In accordance with this, employees are divided into two groups: employees who are not officials, working in public institutions for hire; civil servants, permanently working in the public service system, constituting its backbone. An official is a person appointed to a permanent position, included in a certain corps of civil servants and received a certain rank in the hierarchy of administrative bodies, services, institutions of the state.

The corps brings together officials who perform the same work (teachers, treasury inspectors, civil administrators, etc.). Having entered the corps, an official may remain in it for the rest of his professional life. Each official is assigned a rank. A rank is a title that gives the holder the right to hold certain positions. Each corps consists of many ranks, which, in turn, are divided into stages. Despite the interdependence of ranks and positions, a complete match between them is not necessary. An official's career usually takes place within the corps through promotion in rank, rank or position. Obtaining a rank is determined by the results of competitive examinations and the passage of advanced training. Promotion in rank depends on length of service and attestation. Certification is also a condition for promotion to a position. To transfer to a higher category, either the decision of the management or the passage of the competition is necessary. Competition is usually required for transfer to another corps. Caring for the career of civil servants in France begins already at the training stage. The system of education includes a number of special educational institutions.

The most important of them - the National School of Administration (ENA) - prepares civil servants of the highest category. Graduation from the ENA opens the way to the highest administrative positions. The educational process lasts more than two years and is designed for active learning methods (work with documents, seminars, contacts with specialists, etc.). Training is paid. Disciplines are studied in the following areas: jurisprudence, administrative law, budget and taxes, economics, public administration, foreign languages. Graduates of the school are provided with places in the administration, taking into account the results of their studies.

Japan.

In terms of the number of civil servants, Japan is significantly inferior to countries Western Europe and the United States, which is associated with the relatively small size of the public sector in the country. The Japanese civil service, depending on the nature of the work, is divided into two main groups: "ordinary service" - the bulk of officials; and "special service" - a small top layer of officials of the state apparatus. Appointment to the civil service is made on the basis of entrance examinations, which are held according to the principle “ open doors» with a message about the time and place of their holding in the media.

A similar system was introduced in Japan back in late XIX century and remains in use to the present day.

Through competitive examinations passes and promotion. Japanese law formally gives every person who enters the administrative service an equal right to promotion. The Staff Council (the oversight body of the Cabinet) conducts competitive examinations each summer for promotion to "ordinary service" employees, in which any person in a lower position can participate. However, there are a number of restrictive conditions for applicants for leadership positions. The main condition is the educational qualification. The existing procedures exclude the possibility of appointing persons without higher education to the posts of heads of departments. In addition, the successful passing of exams does not mean automatic appointment to a position. It usually takes at least six months probation, after which, with positive results, the appointment takes place. The official position of officials is determined by the positions they occupy in accordance with their ranks, length of service and other circumstances. The size of the salary, strictly regulated by a special scale, depends on the position that determines the scope of powers. In accordance with it, all officials are divided into eight ranks. Each rank, in turn, is divided into 15 ranks. The rank depends on the position held in the state apparatus, and the rank depends on the length of service, education, and service characteristics.

In the public service of Japan, there is a specific system of "lifetime employment" (which is also typical for most institutions and enterprises in the country). This system assumes a long-term (up to retirement) service of an employee in one organization. His position and salary directly depends on the length of continuous service. This system assumes the practical absence of interdepartmental movements of officials and frequent (every 2-3 years) movements within the department, which can be considered the main distinguishing features of the Japanese civil service. A specific feature is the "cult" of education. Higher education gives officials a number of advantages. For example, if persons with a secondary or secondary technical education are enrolled in the 2nd category of the 8th rank upon entering the service, then university graduates immediately receive the 1st category of the 7th rank. In the future, university graduates also receive a number of privileges and benefits in case of promotion in ranks and ranks. The "rank" of the university is also important.

Conclusion

In this paper, we proceeded from the assumption that the effectiveness of officials' activities depends on the degree to which their characteristics correspond to the ideal type of bureaucracy described by M. Weber. The aim of the work was to assess the extent to which the practice of recruiting and promoting Russian officials in the executive branch is consistent with Weber's ideas about the ideal bureaucracy. It is shown that the hiring of young officials, as a rule, is not based on procedures that ensure the selection of candidates based on their competence. The selection of applicants is carried out on the basis of personal connections and recommendations, exams and tests, special competitions are rarely practiced. At the same time, studies conducted in other countries indicate that it is the meritocracy of selection for civil service that most strongly contributes to the effectiveness of the bureaucracy. Apparently, the weakness of this link in the organization of the Russian civil service deserves special attention and a priority response in the framework of administrative reform. When analyzing the respondents' ideas about promotion processes, it turned out that the possible horizon of their career in the civil service is quite short. More than two-thirds of the respondents, noting some promotion opportunities for themselves and their colleagues, believe that the "ceiling" of this promotion is quite low. Nevertheless, about a third of respondents believe that a young person "in rare cases can count on more - to achieve the highest positions in the organization." This indicates that among the respondents there is a group of young officials with a strong orientation towards vertical social mobility, reinforced by confidence in their own career prospects. An analysis of the opinions of officials on the criteria for hierarchical advancement showed that most often promotion is influenced by business qualities that are required for a new position and its development. This conclusion contradicts our initial assumptions that loyalty criteria will lead, the meaning of which is opposite and lies in the employee’s belonging to an informal association of officials - the management team and, accordingly, the ability to “fit in” to such a team and remain loyal to its members. However, the criteria for loyalty in terms of the frequency of mentions still do not lag far behind the actual business qualities. In addition, it must be taken into account that the selection system for promotion comes into effect after the selection system for hiring has taken place. Since hiring in the organizations under consideration was based on personal connections and recommendations that provide the necessary minimum of loyalty, it is possible that the presence of such a filter at the entrance to the state, municipal service allows management to control employee loyalty less in the processes of selection and promotion within the organization. Factor analysis of respondents' perceptions of promotion criteria showed the presence of two independent factors, the first of which characterizes meritocratic promotion, and the second - promotion based on loyalty to the leadership. These factors correspond well to two opposite forms of government - bureaucratic and patrimonial, as they are described by M. Weber. True, in Weber these two opposite forms act as poles of one and the same parameter. Factor analysis presents them as two independent parameters: each administrative organization has its own meritocratic and its own “loyal” principles, and they vary independently of each other. An official can expect a predictable long-term career only if promotion is based on the assessment of his business merit and cannot build such expectations if his career depends on the whims of his superiors and the need to adapt to them. Regression analysis shows that officials' assessment of the promotion process as meritocratic negatively affects their desire to leave the organization, and the belief that a career depends on loyalty is positively associated with this desire. The meritocratic nature of the promotion process is also positively related to the salaries of officials, thus restraining the processes of negative selection. The imperfection of career organization mechanisms, coupled with other inconsistencies of the Russian bureaucracy with the Weberian ideal type, stimulates a significant part of state and municipal officials active search alternative employment opportunities against the backdrop of a weak commitment to the state or municipal service in general. The consequences of this are manifold: significant losses of specific human capital acquired in this area, accumulation in the executive branch of employees who are the least competitive in the labor market, creating favorable conditions for corruption, and reducing the efficiency of the entire state apparatus.

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