Types of goals of public administration. Control work tree of goals of public administration

The buildings 21.09.2019

Goals and objectives of public administration

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

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

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

At present, most of the citizens of our country are not satisfied with the needs of the lower level, people want to realize themselves as much as possible. Therefore, when making management decisions, it is necessary to take this into account. The Constitution of the Republic of Belarus also aims at this, in which a person is proclaimed the highest value, and observance of his rights and interests is the duty of the state.

Goal setting in public administrationin the short term should only be defined in the context of quality of life : legal and public order, satisfaction of the most important material and spiritual needs of citizens, the right of the people to a worthy human existence.

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

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

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

The entire history of mankind testifies that the formation of the goals of public administration is an extremely complex matter. This process is inexorably dominated by three negative factor:

· subjectivity;

· big number goals, their variability and inconsistency;

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

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

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

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

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

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

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

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

According to the current Constitution of the Republic of Belarus, main source of poweris the people, and the policy of the state is aimed at creating conditions that ensure a decent life for its citizens. This is the main goal of public administration, the main direction of internal and foreign policy Belarusian state . Its achievement is subject to other goals of public administration, which include:

Ensuring the internal and external security of the state;

creation of conditions for the development of democratic institutions of society;

Guaranteed protection of the rights and freedoms of citizens;

· creating equal legal conditions for the development of all forms of ownership, the formation of market mechanisms;

creation of a favorable ecological environment;

Mutually beneficial cooperation between central and local authorities.

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

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

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

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

When fulfilling the goal-task, it is possible that various problems:

Inadequate perception of them by the governing body;

possible discrepancy between the content of the formulated tasks and the expectations of the organization's staff;

· the contradiction between the high pathos of tasks and the low resource level of their provision.

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

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

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

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

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

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

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

So the goals should be:

large-scale, but realistically achievable;

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

· coordinated with all its totality.

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

For socio-political purposes, a strategy for the development of society for the long term is expressed. And the highest value and goal of society and the state is proclaimed a person, his rights, freedoms and guarantees of their implementation. The strategic long-term goal of the development of the Republic of Belarus is a progressive movement towards a post-industrial type of society, to improve the level and quality of life of the population.

Social Goals determined by socio-political goals. Based on this, they consist in creating conditions that provide a decent level and quality of human life.

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

Goals of public administration in the economic sphere is the definition of a long-term strategy for economic development, the creation optimal conditions for its implementation. The main economic goal is the transition to a socially oriented market economy and, on its basis, improving the well-being of the lives of citizens.

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

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

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

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

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

· general, covering the entire complex of public administration;

· private, covering individual subsystems.

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

Goal setting in public administrationin the short term should only be defined in the context of quality of life : strengthening the legal and social order, satisfying the most important material and spiritual needs of citizens, the right of the people to a worthy human existence.

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

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

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

subjectivity;

a large number of goals, their variability and inconsistency;

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

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

If priorities are set incorrectly, then this is often detected after the negative consequences that are inevitable in this case have appeared.

According to the current Constitution of the Republic of Belarus, main source of poweris the people, and the policy of the state is aimed at creating conditions that ensure a decent life for its citizens. This is the main goal of state administration, the main direction of the domestic and foreign policy of the Belarusian state. Its achievement is subject to other goals of public administration, which include:

ensuring the internal and external security of the state;

creation of conditions for the development of democratic institutions of society;

guaranteed protection of the rights and freedoms of citizens;

creation of equal legal conditions for the development of all forms of ownership, the formation of market mechanisms;

creation of a favorable ecological environment;

mutually beneficial cooperation between central and local authorities.

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

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

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

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

inadequate perception of them by the governing body;

possible discrepancy between the content of the formulated tasks and the expectations of the organization's staff;

the contradiction between the high pathos of tasks and the low resource level of their provision.

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

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

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

So the goals should be:

large-scale, but realistically achievable;

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

coordinated throughout.

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

For socio-political purposes, a strategy for the development of society for the long term is expressed. And the highest value and goal of society and the state is proclaimed a person, his rights, freedoms and guarantees of their implementation. The strategic long-term goal of the development of the Republic of Belarus is a progressive movement towards a post-industrial society, an increase in the level and quality of life of the population.

Social Goals determined by socio-political goals. Based on this, in the Republic of Belarus they are to create conditions that provide a decent level and quality of human life.

Goals of public administration in the economic sphere- this is the definition of a long-term strategy for economic development, the creation of optimal conditions for its implementation. The main economic goal of the Republic of Belarus is the transition to a socially oriented market economy and, on its basis, improving the well-being of citizens' lives.

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

The presented horizontal cut of goals does not give a complete picture of their subordination. The vertical slice arranges the goals according to their importance:strategic, operational, tactical . Strategic Goals - These are long-term goals that determine the main directions for the development of society in the long term. Operational goals are put forward at a certain time period, taking into account the emerging socio-political and economic situation. Tactical goals determine specific actions to achieve strategic goals, which is why they are also called providing.

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

general , covering the entire complex of public administration;

private , covering individual subsystems.

According to the results: –final and intermediate goals.

By time allocate:

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

medium-term goals (for 5 years);

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

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

The term "public administration" characterizes both a scientific discipline and a field of practical activity related to the problems of organizing state power and public life. The basis for understanding the nature of public administration is the understanding of its necessity, social conditioning and target orientation.

The need for public administration stems from the need to ensure the implementation of state policy aimed at the efficient use of natural, labor, material and information resources, fair redistribution of income and guaranteeing basic social rights, maintaining public order. Social conditioning follows from the practice of public administration as a complex organizational system, the functioning of which is aimed at meeting the needs of citizens. The target orientation of public administration means setting rational (that is, corresponding to available resources) goals and objectives, determined by the need to obtain the maximum possible results with the minimum use of taxpayers' funds based on the orientations given by public authorities.

Management - it is a purposeful and constant process of influence of the subject of management on the object of management. Various phenomena and processes act as an object: a person, a social community, society as a whole, social processes.

State-political management - activities of institutions of political power of three levels:

1) federal;

2) subjects of the Russian Federation;

3) local government.

The subjects of political power are the President of the Russian Federation, the Federal Assembly of the Russian Federation, the highest officials of the constituent entities of the Russian Federation (presidents of the republics, governors of regions) and representative (legislative) bodies of state power of the constituent entities of the Russian Federation; councils of authorized municipalities and elected officials of the local administration.

State Administration - a type of state activity for managing the affairs of the state, within the framework of which the executive power, its bodies and officials are practically implemented. The subject is the public sector of the economy; infrastructure (eg federal roads, airports, transport), all social services; services involved in road and communal services; government agencies education, healthcare; army, police, prisons, fire protection and other structures whose activities are financed from federal, constituent and local budgets.

State management. In the 80s of the XX century. in the West, the change in the paradigm of public administration gave rise to the concept of "new public administration", reflecting a new understanding of the status, social role of the state and administration in society. It is expressed by the concept of "state management". “New public administration” means a market and contractual approach, treating citizens as clients to whom state and municipal authorities provide public services paid by a citizen based on his financial condition.

There are two approaches to the concept of public administration. AT broad sense public administration is the activity of the state in the direction various areas public life through public authorities, which include legislative, executive and judicial authorities at all levels, with the involvement of non-governmental organizations. In a narrower sense, public administration is understood as the executive and administrative activities of executive authorities within their competence to regulate and manage public affairs. Thus, public administration f is the activity carried out on a professional basis by a special group of people (state and municipal authorities authorities, officials) in the political and administrative system, realizing the will of the state on the basis of laws and other regulatory legal acts to grant and ensure the constitutional and legislative rights (and obligations) of citizens, the provision of public services on the principle of equal rights of citizens in order to build a legal socially oriented states.

The concept of public administration includes the most important organizational and legal categories that are manifested in managerial relations:

a) state management activity- this is the implementation by the subjects of executive power, as well as other levels of public administration (civil servants and officials) of the functions of public administration;

b) subject of state administration speaks state as a set of public authorities at all levels of the administrative apparatus. A specific subject of state or municipal government is the relevant body, official of the state or local government;

in) object of state and municipal administration- these are public relations of social, national and other communities of people, public associations, organizations, legal entities, the behavior of individual citizens, acquiring social significance, that is, these are relations that can be subject to state or municipal regulation.

All definitions of public administration contain an indication of its main content - the purposeful practical impact of the state on social relations, the purpose of which is to streamline, organize the corresponding system and exert regulatory influence on it, that is, ensure its proper functioning and possible changes. It should be noted that such an impact is ensured precisely by the power of the state, that is, by the imperious nature of the methods and means used in the management process. From the point of view of its purpose, public administration is a phenomenon designed to exercise executive power. Thus, nature public administration stems from its special social function aimed at streamlining development processes in the interests of the whole society by harmonizing various requirements, needs and forms of activity, where the state apparatus acts as an effective mechanism for the implementation of public power and ensures the implementation of state policy through a system of administrative institutions.

The essence of public administration is revealed through its environment, resources, implementation of decisions and control. Environment consists of economic, political, legal and cultural conditions for the activities of government entities and provides boundaries, objects, forms and methods of government.

Branch of public administration- this is a system of links of governing bodies, united by a common object of management (management of industry, transport, agriculture, construction, internal and external affairs, education, healthcare, finance, defense, communications, railways, forestry).

Area of public administration- these are grouped according to the main purpose of the branches of public administration (management of the national economy, management in the socio-cultural and administrative-political areas).

Sphere of public administration- this is a complex of organizational relations regarding the implementation of intersectoral special-purpose powers (for example, standardization, certification, planning).

Body of state administration (executive power)- this is a subject of executive power that directly performs the functions of public administration within the limits established by legislative and other regulatory legal acts, is endowed with the appropriate competence, has a certain structure and managerial personnel.

The state-legal nature of management is determined by the following features:

firstly, in the management process, the functions of the state are carried out while observing the interests of the state (public interests) and ensuring the rights and freedoms of citizens;

secondly, management functions are carried out by specially created state entities on behalf of and on behalf of it or by other entities to which the state transfers part of its powers in the field of management;

thirdly, all subjects of state administration are obliged to act within the competence established for them by laws and other regulatory legal acts.

1.2. Goals, functions, forms and methods of public administration

The goal is a reflection of social needs and interests of society, a product of consciousness, a subjective reflection of the objective. Goals of management - what the subject of management should achieve, the end result management activities.

The purpose of public administration is reflection of public needs and interests. The hierarchy of goals of public administration is based on the principle of priority of the needs and interests of the development of society. The following types of classification of goals can be distinguished:

1. Depending on the functions performed:

socio-political - involvement in the management of all political forces in the country, maintaining processes in society and the state that contribute to the improvement of state and public structures, human development;

organizational and legal - formation of a legal system that contributes to the implementation of the main functions of the state and the solution of its tasks with the help of democratic institutions and mechanisms of the rule of law, as well as organizational and functional formations;

production support - ensuring the rights and freedoms of citizens, the rule of law in society, public order and security, the necessary level of well-being, the creation and maintenance of the production activity of managed facilities;

socio-economic - streamlining public life and satisfaction of public interests; achieving economic well-being, building and maintaining a certain system of economic relations;

spiritual– restoration of spiritual and cultural values;

information and explanatory - development of knowledge, motives and incentives that contribute to the practical implementation of a set of goals, and providing the necessary information.

2. Associated with the quality of society, its preservation and transformation - strategic goals. Are divided into: operational – fix large blocks of actions; tactical – define daily, concrete actions.

3. By volume: public and private.

4. According to the results: final and intermediate.

5. By time: distant, near and immediate.

W management tasks- intermediate, milestone goals of management activities. Among the main tasks of public administration are:

1. State regulation of the processes taking place in the field of social, economic and cultural life, and governmental support some enterprises and organizations.

2. Ensuring the effective functioning of the market mechanism, the creation and provision effective work mechanism of taxation.

3. Creation, maintenance and provision of the welfare of citizens, their rights and freedoms, satisfaction of social needs and interests; ensuring public order and security.

4. Creation of personnel potential of management (public service).

5. Strengthening the prestige of the country and maintaining an appropriate status in the international arena.

All public administration operates on the basis of certain principles. The principle of public administration is a regularity, relationship or relationship of the socio-political nature and other groups of elements of public administration, expressed as a certain scientific position, fixed for the most part by law and used in the theoretical and practical activities of people in management.

System-Wide Principles government controlled – universal laws. Let's highlight the main ones:

1. The principle of objectivity state administration makes it necessary in all management processes to follow the requirements of objective laws (natural and socio-historical) and real possibilities.

2. The principle of democracy understood as democracy in public administration. Assumes the priority of the rights, freedoms, interests of citizens in all spheres of public administration.

3. The principle of legal order public administration - the need for legislative definition and consolidation of the main elements of public administration (goals, functions, structures, process, principles).

4. The principle of legality state administration - the establishment in public administration of the regime of widespread and complete implementation of legal acts, all activities of public authorities are subordinate to the law.

5. The principle of separation of powers in public administration implies a division into executive, legislative and judicial branches.

Structural principles are divided into:

1) structurally-targeted;

2) structural and functional;

3) structural and organizational;

4) structural and procedural.

Specialized principles: principles of civil service, principles of working with management personnel, principles of information support of public administration, etc.

Control function- this is a specific direction of the managerial (organizing, regulating, controlling, etc.) impact of state administration on the object of management. Management functions have a specific content and are carried out using specific methods and forms of management (for example, coercive mechanisms, publication of legal acts of management, subordinating influence). Along with the functions of public administration, the functions of public administration bodies (that is, their control over objects), as well as the administrative functions of all state bodies (legislative and judicial authorities) are highlighted.

As a general managerial functions reflecting milestones organization of the management process, V. I. Knorring identifies the functions of organization, planning, motivation and control. G.V. Atamanchuk classifies the functions of public administration into internal (management within the state management system) and external (the impact of state bodies on managed objects), general (reflecting the essential moments of management) and specific (reflecting the special content of individual influences). To general functions Management refers to organization, planning, regulation, staffing and control.

The main functions of public administration include the following.

1. Information support for the activities of state bodies, that is, the collection, receipt, processing, analysis of information necessary for the implementation of state (administrative) activities. In this case, information is understood as a set of information about the management system, the changes taking place in it, the forms of contact between the management system and the outside world, intra-organizational and external management relations. Accuracy of information, consistency and efficiency information processes- these are important conditions for optimal information support of the management system, which directly depend on further actions authorities and the performance of their main functions.

2. Forecasting and modeling of the development of the public administration system, systems and structures of state bodies. Forecasting - anticipation of changes in the development and results of any events or processes in the system of state activity, in state bodies on the basis of the data obtained, professional experience and practice, the achievements of scientific and theoretical analysis. Forecasting is a necessary tool in making the most important management decisions; without it, it is impossible to determine the consequences of social processes, the future state of society as a whole, the mobility and efficiency of government bodies. Forecasting, as well as information support, is an important condition for the effective performance of many functions of the state and public administration, in particular planning. Modeling- this is the creation of a management system designed for planned management, solving problems and achieving goals.

3. Planning- this is the definition of directions, proportions, rates, quantitative and qualitative indicators of the development of certain processes in the public administration system and, in particular, the implementation state functions(economic, socio-cultural), the ultimate goal of which is to ensure the proper functioning of public administration.

4. management, that is, the operational regulation of managerial relations arising from the exercise of the powers of state bodies and official duties, ensuring the regime of proper state activity in the form of the adoption of administrative acts (legal acts of management: orders, orders, instructions, instructions, rules, guidelines, etc.) . Management in the narrow sense is the giving of current instructions by leading civil servants (officials).

5. Management- this is the establishment of rules and regulations for the activities and individual actions of state bodies (civil servants, officials), managed objects.

6. Coordination- this is the coordination of the activities of various state bodies to achieve common goals and objectives of public administration. The coordination function is often used in conjunction with the control and supervision function. The use of coordination mechanisms creates the conditions for the successful achievement of the goals and tasks of public administration by all participants in managerial relations involved in the overall management process. Coordination functions are to some extent characteristic of each government body, because the heads of these bodies and their structural divisions constantly coordinate the internal and external activities of their subordinate entities.

7. The control- this is the establishment of compliance or non-compliance of the actual state of the public administration system and its structure with the required standard and level, the study and evaluation of the results of the overall functioning of state bodies, as well as specific actions of management entities; establishing the correlation between what is planned and what has been done in the system of public administration. Control is monitoring the quality of management activities, identifying errors in management and the degree of compliance of management actions and administrative acts with the principles of legality and expediency. In certain areas of state activity, state authorities are constantly strengthening control over the commission of certain actions. Control must be consistent, reasonable, justified, public, objective, legal and operational. One of the types of control is supervision, which is carried out, as a rule, only to determine the compliance with the legality of the measures (actions, decisions).

8. Regulation- the use of methods and methods of management in the process of organizing the public administration system and its functioning. Regulation is the establishment of generally binding requirements and procedures for objects of management and various subjects of law in order to ensure public order, security, equality of participants in economic relations, the foundations of democratic competition, and the rights and freedoms of citizens. It can be noted that at present, taking into account the constant reforms in the state structure of the country, the function of state regulation is becoming predominant and paramount. Under government regulation refers to the consolidation in legislative and other regulatory legal acts of general requirements for state management activities carried out by executive authorities.

To the specific functions of public administration should include:

1. The implementation of state coercion in the field of maintaining law and order and public order: ensuring sufficient defense capacity of the country; establishment and maintenance of the border regime, protection of the state border; maintenance of public order and public safety; protection of life, health of citizens and property from criminal and other unlawful encroachments. For the bodies that ensure the security of citizens and the state, the functions of combating organized crime and corruption in various fields are of particular importance.

2. State regulation to limit inappropriate state intervention in the economic and socio-cultural sphere: improving the people's welfare, social protection of the population with incomes below the subsistence level; ensuring rational, full and integrated use natural resources; environmental protection, etc.

The list of special functions of public administration is extremely difficult to establish, since the state body has many areas of activity that ensure the fulfillment of its main tasks. To the special functions of public administration can be attributed:

development and introduction of standards for the number, material, financial and labor costs of state bodies;

justification of financial and other material costs for the maintenance of the personnel of the state body;

development of criteria for assessing the effectiveness of civil servants;

conducting research in various government bodies;

development of regulatory legal acts establishing public-service relations or other legal relations in special state bodies.

Each of the federal executive authorities functioning in the country performs a number of state administration functions assigned to it, which are the functions of special state bodies, executive authorities.

Public administration method– a conscious way of influence of the managing subject on the object by legitimate means, that is, it is a certain set of interrelated management actions that has developed in practice to achieve the goals set.

Within the limits of the powers established by law, the subjects of management apply various means at their disposal: economic, political, ideological. The state (by judicial decision) may prohibit political party for its anti-constitutional activities, and the mayor's office - not to allow a political demonstration with nationalist slogans, to ban the propaganda of extremist ideology, etc. Various methods of encouragement, permits, requirements, prohibitions are used, and liability can be established for failure to comply. It is important that bodies and officials can apply only such methods of state and municipal administration that are permitted by law (and in accordance with it by the charter of the municipality). There are the following main methods of public administration.

Administrative and legal methods - these are methods of state administration that are based on the hierarchical structure of the governing state entity and are carried out within the limits and in accordance with the procedure established by the Constitution, laws and other legal acts in force on the territory of the country. The subject is the bearer of administrative power. Their essence is the impact on those managed according to the “order-execution” type. The relationship of direct subordination of the managed to the manager is ensured by the system of legislation, the exercise of power “vertically”, the application of prohibitive sanctions, up to legal coercion. Among the legal methods, one can single out legislation, state-administrative management, justice, and control. Tools (administrative and legal: law, by-laws, directive, order, order, regulation, instruction and other elements of power relations). Examples: payment of taxes by working citizens of the Russian Federation to the budgets of different levels of the Russian Federation; resolution of the executive authority of the constituent entity of the Russian Federation; exchange of a passport of a citizen of the Russian Federation at the age of 20 and 45.

Organizational Methods – are based on legal norms and the specific power of the organization as a system. This is management by creating an organization or improving existing ones to solve certain tasks. Organizational methods affect all stages of management. Organizational measures are carried out by means of indirect and direct influence on managers and managed. Typical organizational actions: redistribution of powers, duties and responsibilities; development of instructions, regulations; personnel movements.

Political methods of management - ways of directly or indirectly influencing the behavior and activities of those controlled by political means. First of all, we are talking about state policy developed and implemented by the authorities. Political instruments: a set of democratic forms, norms and procedures for political actions and relations; technologies of parliamentarism are, for example, parliamentary debates, activities of the opposition, lobbying of groups and interests in parliament, the practice of parliamentary inquiries to the government, parliamentary hearings; See also referendums, negotiation processes, discussions.

Economic methods - these are forms and means of influencing the socio-economic conditions of life of people, collectives, social communities, organizations; these are also ways of creating certain conditions by the state in which it is beneficial for the managed object to act as the state wants. Such methods are based on the presence of citizens, organizations and the state of material interests that determine their actions, and the degree of economic activity is determined by the development and volume of material incentives. Main tools: distribution and redistribution of material and financial resources by state bodies, regulation of financial flows in the country, development and implementation of budgets; in relation to a person, these are mechanisms of material incentives for labor and entrepreneurship. Examples. Development and implementation of state tax policy; tax incentives, for example, in order to increase the share of foreign investment in the Russian economy, the practice is to reduce the tax rate on foreign capital, “tax holidays” for specific enterprises. Another example is the system of state social security - the payment of increased and nominal scholarships, pensions.

Social Methods - are used to motivate the activity of those managed by changing social environment habitation and satisfaction of vital needs and interests. Tools: development and implementation of nationwide social standards for social benefits and services; legislative consolidation and implementation of the subsistence level of the population; regulation of the system of remuneration, pension provision; social assistance, etc.

Illegal Methods. Among them, two subgroups are distinguished: organizational and technical, which are committed in accordance with legal norms, but their procedure is not regulated in detail by law, and illegal, which are committed in violation of current legislation. Examples. Organizational and technical non-legal methods are used in activities in extreme conditions of units of the Ministry of the Russian Federation for Civil Defense, Emergencies and Elimination of Consequences natural Disasters. Each emergency situation is unique, and no legal act can provide for all possible and necessary options for action or inaction, their validity and adequacy to the current situation. Illegal methods - the use of violent measures to disperse a sanctioned rally; misuse of funds from the federal or regional budget by a civil servant.

Information and ideological methods- this is a purposeful moral and moral influence of the state on the consciousness of people, propaganda and agitation by the state. Another name used for this group of methods is socio-psychological. Examples. A classic example is the warning of the Ministry of Health and Social Development of the Russian Federation about the dangers of smoking, which is mandatory for every pack of cigarettes. Social advertising that has become a part of life Russian society and aimed at the formation of civic consciousness and law-abidingness: “Pay taxes and sleep peacefully”; “Slipping into a red light, you can say goodbye to white”, etc .; propaganda healthy lifestyle life.

1.3. The unity of the public administration system: the relationship between state power and public administration

The concept of "public administration" cannot be identified with the concept of "state power", it is advisable to correlate them as a general and part of it. Power is the right and opportunity to exert a controlling influence on social processes and relations with the help of managerial decisions and managerial actions. However, management decisions and actions must be prepared and justified before they are made, and in this decision-making process, as well as in the process of bringing the decision to execution, state organizations and persons are involved, professionally performing management functions and not always having authority. .

However, “power” in the concept of public administration is not just a “part”, but its system-forming basis, since it is impossible to exert a governing, regulating, organizing, controlling impact on society in the absence of the right and opportunity to do so.

Distinguish power personal, or personal (for example, in the family or in the relationship of master and servant), corporate(power in a public organization, extending only to members who voluntarily joined it and have the right to leave the organization at any time) and social. Sometimes military power, technocracy or expertocracy (the power of specialists who often prepare the most important decisions), etc., are emphasized.

Any power is a manifestation or service of social power. social power- this is the power of the people in society, taken as a whole, the power of its majority, the dominant class in society, in some conditions - the power of the nomenklatura. It has a political character and finds its expression in state power, which, as a derivative, is also political, but acquires a certain independence and, as a special phenomenon, differs from the political power of the people or class.

All state power is political, but not all political power is state power. Political power- this is an immanent property of the people (popular sovereignty), its majority, a class that acts (especially during a revolution) on behalf of the people. State power is the property of the state, on its behalf it is exercised by state bodies and officials. State power has legal and almost always (except revolutionary events) supremacy in society. It is sovereign and universal - it regulates all spheres of society that it is expedient to regulate in this way and which are amenable to regulation. The remaining varieties of power in society are private and subordinate.

Non-state political power and state political power have different forms and mechanisms of their implementation. The political power of the people, their political will, are manifested, for example, in the exercise of various forms of direct democracy (elections, referenda, etc.); in the liberated regions, this power is based on armed detachments. State power is formalized, it is implemented specialized state apparatus(parliament, government, courts, etc.).

Thus, state power is the continuation and highest manifestation of the political will and power of the people. It is the sovereign, supreme and universal power inherent in modern society, which is its necessary function, carried out by a specialized state apparatus.

Types of government. There are many classifications of state power in terms of its nature, limits of action, tasks and methods of implementation, etc. According to the social character, the power of the people and the power of a certain social class, layer (for example, the dictatorship of the proletariat in the former states of totalitarian socialism). From the point of view of the territorial limits of action, the federal state power and the state power of each subject of the Federation are distinguished. Depending on the methods of implementation, they distinguish between democratic and non-democratic (authoritarian, totalitarian, etc.) state power. Democratic state power expresses the interests of the majority of the population and is exercised in accordance with the principles of political diversity, multi-party system, separation of powers, respect for human rights, recognition of local self-government, the rule of law, etc. Authoritarian state power is usually associated with the violation of human rights, the use of violence, with a dominant position executive power, when Parliament and the courts play a secondary role. In addition to these features, totalitarian power is characterized by the consolidation of the leading role of one specific party in the constitution (one-party system is usually established), the parliament and courts are transformed into decorative institutions, and merged party-state structures are created. Under the conditions of totalitarianism, personal power is usually affirmed (for example, the power of the Fuhrer in Nazi Germany).

In Russia, state power is basically democratic. In general, it is carried out in the interests of the people (about a third of the population lives below the “poverty line”), but in the conditions of the transition period with its many problems, bureaucracy (including corrupt ones), the top "new Russians", the highest nomenclature of the subjects of the Federation.

A state cannot have several “state authorities” that are fundamentally different in nature; it must be one in essence. The unity of state power has three components. First, it is social unity. State power, even formed on the basis of a bloc of various social forces, cannot be socially heterogeneous; it needs social certainty. Otherwise, it will not be able to fulfill the tasks of state leadership of society (regardless of how these tasks are understood). Secondly, this is the unity of goals and directions of activity of the state power, all its bodies and officials, which is due to the need for a coordinated management of society. Different state bodies cannot set and solve fundamentally different tasks that are not consistent with the general line of the government. This will lead to loss of control over the society. Thirdly, it is organizational unity. State authorities, methods of its activity form a certain system. This system is built primarily on the basis of the unity and separation of the branches of state power.

As you know, there are three traditional branches of government: legislative, executive and judicial. Over time in constitutions and scientific research other branches of state power began to be mentioned (electoral, control, press power, church, tributary (the power of the political opposition in parliament, etc.). Some of these names deserve attention, in others different phenomena are mixed: power as such, public power, public power and a special form of the latter is state power.

In modern conditions, the doctrine of the separation of powers is supplemented by three provisions:

1) about the balance of powers, the system of their mutual checks and balances, balancing;

2) the need for interaction between the authorities, which implies their unity on fundamental issues, but does not exclude differences in the methods of achieving common goals;

3) on the subsidiarity of the authorities, when, with the consent or authorization of the bodies of one branch of government, and sometimes directly on the basis of constitutional norms, the bodies of the other branch, by their actions, can supplement the implementation of the functions of the first.

Subsidiarity is possible if this is not prevented by constitutional provisions and if the branch of government to which assistance is provided does not object.

Modern experience has shown that the concepts of unity and separation of powers in their respective interpretation do not contradict each other, do not exclude each other, are complementary. Some new constitutions contain provisions formulated with contemporary ideas on the compatibility of the unity and separation of powers, including the fact that state power is one, is carried out in accordance with the principle of its division into legislative, executive and judicial in their interaction with each other and using a system of checks and balances.

Public administration (state administration), understood in the broadest sense of these words, is an integral sphere of activity of state power, all its branches, all its bodies, all officials, that is, the implementation of state power in all its forms and methods. Different bodies perform their (partial) tasks of managing public affairs differently. Parliament does it in its own way, the government, courts, prosecutors, ministries, etc., do it in their own way.

Some state bodies have their own imperious, decisive powers (for example, parliament or the president). Their main task is to establish general rules for management and control, and they are engaged in direct management activities less often, instructing subordinate bodies to solve specific management tasks. Other bodies and officials are directly involved in management activities (ministries, civil servants). Some bodies and officials have only advisory powers (for example, the State Council). There are special bodies that are involved in checking compliance with laws, control (for example, the Commissioner for Human Rights), monitoring the execution of the budget ( Accounts Chamber). Bodies of this kind, rather, participate in public administration, but participation is also a way of governance. Mixed, state-public bodies are often created (for example, a tripartite commission on labor relations, consisting in Russia of representatives of the state, entrepreneurs and trade unions). They can also perform managerial tasks to some extent, for example, when making an agreed decision. Sometimes some functions of state bodies are transferred to public bodies or organizations, local governments. In this case, they also perform the tasks of state administration. For this purpose, they are also provided with the material resources necessary for the performance of such functions.

Finally, supranational organizations and bodies have been created that can make decisions obliging the state to take measures related to internal state issues, essentially within its competence, within the scope of its sovereignty. Such bodies are, for example, some bodies of the European Union (commissions, Council of Ministers, etc.). The legal acts adopted by them on a number of issues may apply to individuals and legal entities of the Member States or the relevant rules should be included in the own law of such states.

In general, having considered various classifications of authorities, we can conclude that state power is a broader concept denoting the affiliation of the state, on behalf of which state administration is carried out through state bodies and officials.

Questions for self-control

1. What is the relationship and content of the concepts: management - state-political management - state-administrative management - public management - public administration?

2. Give a description of the nature and essence of public administration, highlighting the obligatory object and subject.

3. What are the signs of the state-legal nature of management.

4. Highlight the main goals and objectives of public administration at the present stage of development of the Russian Federation.

5. Give complete description principles of public administration.

6. Give examples of public authorities in the Russian Federation that implement the main functions of public administration discussed in this chapter.

7. List the varieties and give examples of special and specific functions of public administration.

8. What methods of public administration, in your opinion, seem to be the main ones in building a democratic legal state?

9. Which of the two concepts seems to you to be broader in meaning (and why): state power or state administration?

10. Give various classifications of state power and give examples of bodies that implement it.

Management decisions (political or administrative) are essentially reduced to actions to achieve the chosen goals. The choice of goals is the initial stage in the development and adoption of any decision.

The goal is an element of the mental activity of the managing subject; internal motivation for action. Being an ideal image of the desired result of the state subject’s control action on the object (society, certain social groups, individuals), the goal is formed under the influence of dominant values, expresses a certain plan, idea, accumulates known knowledge about the managed system and management experience data. The goals of various current decisions of the executive bodies are motivated by the attitudes of higher organizations, the common sense of managers and the daily needs of people.

The subject of public administration deals with an object characterized by an unlimited range of diversity. The art of management is to implement the principle of necessary diversity, to find, as noted, the balance of the diversity of the subject and object (society). This problem is solved by choosing goals. The set of problems that the governing body faces determines the multi-purpose nature of state decisions, which requires the distribution of goals by significance and time of implementation. Hence the task of constructing a hierarchy of goals, more precisely, a “branch” or “tree” of goals, because a decision can be subordinated to the implementation of two or more equivalent goals at the same time.

Management goals are classified on many grounds: 1) according to the level on the scale of socio-political values - the highest goals and goals of everyday practice; 2) according to the degree of generality - nationwide (nationwide), national, class, group (corporate), collective, individual; 3) by the importance of the spheres of life of society - economic, social, political, cultural, confessional; 4) by time parameters - long-term, medium-term, short-term, current; 5) by relevance - requiring immediate implementation, regardless of the situation, updated by the current situation;

6) in terms of achievability - really achievable and possibly (theoretically) feasible, etc. Goal ranking is an integral, essential aspect of decision making.

The typology of goals predetermines the difference in the types of decisions. National, nationwide, long-term goals are implemented in the political decisions of the governing bodies of the state, in the form of general political strategies. Economic, social and other goals related to the functioning and development individual areas activities of society, constitute the rational basis of the relevant policies. Short-term, current goals are translated into administrative, operational-tactical decisions. The problems and goals of the regional and local scales are reflected in the decisions of the authorities and management of the corresponding levels.

The public administration system, like any socially organized entity, consists of functionally interconnected subsystems (elements) that have specific properties, due to which they find their place in the structure of the organization. The organizational and functional structure of public administration is a certain way organized, functionally interconnected composition of system-forming elements (structural parts): state institutions that ensure the functioning of the management system, in their vertical and horizontal dependence, in organizational interaction and subordination. It is determined by factors of organizational and functional sustainability: subsystems of goals and principles; differentiation of competence, distribution of functions and powers between subjects and objects of management; subsystems of the used forms, methods, means and resources of management.

The construction of the organizational and functional structure of management begins with the definition of its goals. The goal of public administration is to create optimal conditions for achieving a certain level of the state of society and the state in accordance with the planned prospects for their development.

In achieving the main goal, one of two methods usually dominates: directive or terminal management. The first is a system of hard programming, the second is a free programming of movement towards the goal. The choice of paths is the definition of enabling goals and can ultimately play a decisive role in achieving the set goals. In a number of cases, the system of supporting goals turns into an end in itself, and the state and society become its hostages, as is the case under tyrannical regimes.

As the main and supporting goals are realized, a huge variety of secondary goals arises, designed to ensure the integrity, dynamism and reliable controllability of the state as a system. To form the structure of the goals of public administration, to arrange them in a strictly hierarchical order, to trace the relationship between goals of different content, their logic and mutual linkage in achieving the main goal, allows the technique called the "tree of goals". The tree of goals in public administration is a way of forming the structure of the goals of the state development program, which ensures the interconnection of many goals and sub-goals of different content (social, political, economic, spiritual, etc.), their coordination in order to achieve qualitative changes in a given direction. The goal tree has a hierarchical structure. In essence, it presents the general strategy of public administration, which gives it a system-organized character.

The tree of goals of public administration forms a specific dependency system that allows you to determine the place and role of each specific goal in the process of its implementation, to distinguish them in order of importance under the existing conditions of management activity. The formation of the tree of goals of public administration occurs in ascending order from the general to the particular. The starting point is the main goal. Separate intermediate goals originate from it, which, in turn, are divided into more specific ones, ascending to their peak. Thus, goal-setting, goal-setting and goal-setting of the implementation of public administration take place.

Although the construction of the tree of goals is a technical and methodological technique that does not carry an ideological and political load at its core, the very set of elements that make up the “trunk”, “branches”, “crown” and other elements of the tree gives a fairly complete picture of the nature of the state, social orientation of its goals, their priority and means of achievement.

The idea to present the system of goals of public administration in the form of a tree, leaving "roots" (means of communication) in the "soil" (society), was not born by chance. In fact, society, the state, in terms of life, development and functioning, adaptation to the conditions of existence, does not fundamentally differ from a living organism. Both are systems where processes take place that can be described by the categories of systems theory. In particular, such a property of the system as the desire to achieve the goals of consistent improvement and development of life support mechanisms is applicable to society and the state. The comparison of society with the "soil" that nourishes the tree of goals is also not accidental. This confirms the idea of the classic that humanity sets itself only those tasks that it is able to solve. If the nutrient medium is not able to ensure the vital activity of the tree of goals, the latter perishes, no matter how wonderful impulses its creators may be guided by.

When forming the tree of goals of public administration, the subject of governance must have comprehensive information about the needs and interests of society, social groups, citizens of the state, i.e. about the needs of society in public administration. He needs to have a clear understanding of the resource base in the broadest sense, including material, financial, intellectual, organizational capabilities, legal support, etc. This should, to the extent possible, minimize the element of subjectivity in defining management objectives.

The conditionality and validity of the goals of public administration are determined by many parameters: the nature of social relations, reforms, the solution of strategic tasks, the laws of social development, historical experience, natural and human resources, democracy, legality, spiritual values, cultural traditions, intellectual potential, national character, etc. In doing so, the regularities and tendencies of social development, as well as the country's historical experience, must be taken into account.

Any goal can be achievable only if it is real, if its achievement is provided with natural and human resources. It should be borne in mind that both of them are depleted. The depletion of the former is natural and, with the rapid development of scientific and technological progress, proceeds quite quickly and irreversibly. Therefore, humanity is constantly preoccupied with their search. Depletion of human resources is associated with adverse conditions caused by serious social upheavals. Under certain circumstances, caused by wars, especially civil wars, famine, repressions, etc., the so-called negative selection may occur, caused by the death of the most passionate part of the population in a short historical period and sharply reducing the intellectual, moral and creative potential of the population.

From the point of view of the organization and functioning of public administration, the formation and implementation of goal-setting, democracy has a huge potential. It is no coincidence that in the modern world only states that have chosen a democratic form of organization of power have achieved a high development of the economy, living standards, and social protection. A democratically organized society provides the widest range of rights and freedoms to citizens of the state, involves them in the process of developing and determining the goals of state development, gives them a real opportunity to influence state power and control it.

The goals of public administration in a democracy are gaining reliable support from civil society. Civil society has enormous democratic potential and is a kind of breeding ground in which democracy can live and develop. Only in the conditions of democracy and a developed civil society does the people become the subject of the formation of the goals of public administration, they gain confidence in these goals, a real sense of their involvement in the policy of the state, a sense of civic responsibility.

Mankind knows that the most reliable way to achieve a goal in a civilized way is the way of following the requirements of law and law. Only having in its hands a well-functioning mechanism for the implementation of law, society, with the help of the state, is able to provide itself with strong guarantees of the desired progress towards its goals. The mechanism for the implementation of the law implies, along with the legal system, a high level of legal culture, as well as a consistent course of state power to protect the legitimate rights and freedoms of man and citizen. We can justifiably regard the idea of the rule of law as one of the greatest achievements civilization, and the practice of building it as the defining goal of the world community. Therefore, without exception, the goals of public administration should be evaluated from the point of view of their compliance with law and law. The rule of law cannot emerge overnight. The constitutional consolidation of its main provisions is only a prerequisite. Therefore, the rule of law is also a program goal, the implementation of which will take place in stages, in accordance with the achievement by society of a certain stage of maturity, high level legal consciousness of citizens and authorities.

An important condition for goal-setting in public administration is organization. With the help of the organization, there is an ordering and rationalization of the development of the goals of public administration, as well as the unification and rallying of people to achieve them. The purpose of the organization is to have in advance everything necessary to achieve the goal. The practical implementation of the goal tree is always associated with making the necessary amendments and adjustments. Whenever this task arises, there is a need for organizational work. Through competent organization, it is possible to achieve the set goals faster and at minimal cost.

When determining the goals of public administration, it is necessary to rely on the intellectual baggage accumulated by mankind, as well as on the spiritual values of society, the cultural traditions of a particular state. Only under this condition will the goals set have sufficient grounds.

History knows many examples when good intentions, based on not quite reliable or incomplete knowledge, turned out to be beautiful utopias, and their implementation turned into the complete opposite of the original idea.

Putting forward certain goals, the subject of management must keep in mind at least two circumstances. First, check whether the tasks that society and the state faced at the previous stage have been solved, especially if these are turning points, historically fateful. Political analysis of the past makes it possible to detect those tendencies in social development that could not be realized for one reason or another, but did not lose their vitality, but only turned out to be temporarily forgotten. So it was, for example, in October 1917 in Russia. This allowed prominent representatives of the Russian emigration in the early 1920s. it is enough to accurately determine the time period of the communist experiment. Secondly, when formulating goals for future development, it is necessary to provide for the possibility of their adjustment in the event of social fluctuations (from Latin fluctuatio - fluctuation, deviation). Having determined the tendencies of social development and assessed the possibilities, it is possible to foresee events with a high degree of probability. To prevent the spontaneity of their development and possible negative consequences, it is necessary to calculate the options and models of their possible manifestation, i.e. make a forecast of developments. Modern technical means and methods make it possible to program the most acceptable variant of such a development and, on this basis, to determine the course of action, executors, means, timing, sequence of implementing the intended goals, i.e. planning. The risk is inevitable. You just need to have a good idea of its degree. Planning, therefore, is a necessary attribute of management.

When structuring the goals of public administration, one should proceed from the logic historical process development of the state as a system in which each previous goal determines the next one. Naturally, along with the general defining goal, the state puts forward many other very significant goals, but all of them are designed to develop and supplement the main goal. Thus, it is possible to single out a chain of main types of public administration goals: socio-political - social - spiritual - economic - organizational - activity-praxeological - informational - explanatory.

The goals of socio-political development are of particular importance. They express the general orientation of the state course for the long term. Mistakes in the definition of these goals have, as a rule, dire consequences. So, with the adoption in the 1960s. program of communist construction in the USSR, the goal was proclaimed - "the current generation of Soviet people will live under communism." At the same time, the goal was also put forward to "catch up and overtake America." The goals of socio-political development are complex and determine the qualitative state of society as a system.

The goals of social development are determined by the socio-political course of the state. Applied to modern Russia they include the provision of conditions for the development of the social structure, the creation of a "middle class" - the pillars of political stability, the achievement of a decent human level and quality of life.

A very delicate area of public administration is the spiritual life of society. The historical experience of the advanced countries has shown how great was the influence of the spiritual mood, general educational and scientific potential on the development of their economy, politics, culture, and way of life. The goals of the state in the field of managing spiritual life have nothing to do with spiritual violence, the imposition of ideological clichés, and all-pervasive censorship. They consist in creating optimal conditions, including economic ones, for the development of spiritual culture, ensuring free access to its values for the general population.

The goals of public administration in the economic sphere are to determine a long-term strategy for the country's economic development, to create optimal conditions for its implementation to ensure a real and sustainable growth in the material well-being of citizens. In the field of managing production processes, the goals of the state are to ensure economic independence and high activity of managed objects, their ability to act in conditions of both domestic and international competition.

The organizational goals of public administration are to create a system of functional and organizational structures, their institutionalization, capable of ensuring the appropriate influence of the subject of management on the object of management.

Activity-praxeological goals involve the optimization of the human factor and the concretization of the activities of all structures and components of the controlled system based on the maximum approximation to the perfect activity in terms of its effectiveness.

The informational goals of public administration involve the establishment social communications through direct and feedback links between the subject and the control object, designed to ensure the optimal volume and reliability of information about the state of the controlled system, for the operational adjustment of the control action on the control object. Without this condition, it is absolutely impossible to make the right decisions.

Explanatory goals are closely related to information goals, which play an important role in public administration, since citizens of the state must clearly understand what tasks the state is solving, what motives the authorities are guided by when making certain, including unpopular, decisions. Since there is always an element of coercion and restriction of the freedom of activity of the controlled object in management, reasoned information about the processes taking place in society, explaining their objective necessity, significantly weakens social tension, has a mobilizing effect.

The above classification of public administration goals reflects their horizontal cut and does not yet give an idea of their subordination. In order to arrange them in order of importance, it is necessary to build a system (tree) of public administration goals.

The goals of public administration are formed on the basis of the goals of the state, pursuing the implementation of its public functions. The main strategic goal, the core of state policy, the trunk, from which, like branches, all the other goals of public administration come, is the goal of creating conditions in modern states that ensure a decent life and free development of a person. Since management goals are outlined and formulated by people, they are subjective. But, being an expression of the real needs of society at a certain stage of its development, they are objective in nature.

The achievement of the strategic goal is divided into stages, time periods, during which, taking into account changing circumstances and the availability of certain resources, operational goals are put forward, which in turn can be divided into many goals or blocks of a more specific nature.

Correction of movement in the direction of achieving strategic targets is carried out through tactical goals. The latter require high management skills from the subject of management, the ability to quickly respond to ongoing events. Therefore, tactical goals are also called providing.

The goals of public administration can be classified on other grounds. For example, in terms of volume, they can be general or private. General cover the entire complex of public administration, private - separate subsystems. According to the results, the goals of public administration can be final and intermediate. In time, they can be promising (remote, close) or immediate. In relation to the main goals, secondary (secondary) ones may arise, which are often associated with overcoming various kinds of obstacles in achieving the main goals.

Each historical period in the development of productive forces and social relations has its own system of state administration goals. However, these goals should not be of a voluntaristic nature and are designed to meet the system of requirements that has been proven by world practice. They must be scientifically substantiated, conditioned by objective trends in social development, socially motivated, have sufficient resources and systemic organization.

The implementation of the goals of public administration is based on the basic provisions, which are the principles of public administration. Principles (from lat. principium) are the initial, fundamental provisions, guidelines, proven by theory and practice. They contain patterns, relationships, relationships that humanity has accumulated through trial and error over many centuries.

By their very nature, principles are objective, knowable, and functional. Unlike patterns that operate independently of the will of people, principles are realized as a result of their conscious activity, being understood and interpreted by them in a certain way. Because of this, they are quite often burdened with elements of subjectivism. However, this circumstance does not give grounds to consider the principles as essentially subjective. The effectiveness of the principles of public administration is significantly increased, and their objective nature is most fully manifested if they find appropriate legal consolidation. For example, in management theory, a group of principles of delegation of authority is known. They can be successfully applied in various branches of management activity, or they may not be applied or applied selectively. However, when a federation is created, the principle of delimitation of the subjects of jurisdiction of the federation and its subjects receives constitutional consolidation. As regards, for example, the delimitation of the subjects of jurisdiction and powers between the state authorities of the Russian Federation and the state authorities of its subjects, it became necessary to adopt a special federal law, which would consolidate the order and principles of this most important aspect of federal relations.

Since public administration is diverse in terms of the chosen goals and tasks to be solved, the most significant, specific, objectively necessary, stable connections and relationships inherent in this particular type of management activity are identified and are properly substantiated in the principles underlying it.

“When a person does not know which pier he is heading to, not a single wind will be favorable for him.” Seneca

The issue of goal-setting in management in general (in any of its forms), and in public administration in particular, is one of the most relevant and important for management theory and practice. And, unfortunately, to those of them, the methodology of which is the least developed.

Objectively, the goals of public administration are born and should be born "from below" - to come from the needs and interests of the people united in the state. However, for many years in our country there was no discussion of the problem of what kind of society the people want, what are the real interests of the latter and how to achieve their practical implementation. Goals for society and the state were usually postulated by the supreme rulers in the form of emperors, leaders and leaders with their entourage. The people at the state level, in essence, never acted as the subject of the formation of the goals of state administration; usually it was assigned the role of a means of realizing such subjectivist goals, and moreover, in conditions where the price of the means was not particularly worried. Just think: over the 20th century, the natural and human resources of the richest country have been depleted, and not a single vital problem (food, housing, transport, etc.) has been solved!

The transition to genuine (rather than verbal) democracy involves, first of all, a change in the mechanisms of goal-setting in public administration, giving this subsystem elements of an objectively determined, justified and rational nature.

What is meant by goals?

Goals are a product of consciousness, a subjective reflection of the objective. Such a duality - an objective basis and an ideal expression - leads to the fact that in each goal there can be a very different ratio between the real and the ideal (imagination), figuratively speaking, between "earthly" and "heavenly". More often, the subjective prevails in goals.

Putting forward the goals of state administration, on the one hand, influencing the whole society, and on the other hand, relying on state power, is a very difficult intellectual process. It includes the following backbone moments .

First of all, public sources for the emergence and fixation of the goals of public administration. Contrary to the prevailing stereotypes, according to which "it is clearer from above", the goals of public administration are born and should be born "from below" - to come from the needs and interests of people. The meaning and goals of the state should consist in this and only in favoring the material and spiritual development of its people. It is the internal state of society and the problems that concern it that are the true and relevant source of the formation of the goals of public administration.

Secondly, the subjective side of goal-setting and the relativity and openness of the formulated goals of public administration caused by it. There are real difficulties in justifying goals that cannot be ignored. After all, any future is always unclear, unknown, probabilistic, alternative, open. It has to be anticipated on the basis of information about the past. Everything that has happened has become history, but what will happen, we can only assume, although the analysis of certain trends, patterns, unambiguous manifestations creates the prerequisites for a certain penetration into the future. At the same time, without anticipating the future, it is impossible to build even a private life, not to mention a public one. The formula of the French philosopher Auguste Comte is known: to know in order to foresee, to foresee in order to manage. Without "looking" into the future, of course, management is out of the question.

Back in the 20s of our century, N.D. Kondratiev posed the problem of foresight, moreover, of interconnected foresight: a) the spontaneous course of events; b) a certain effect of actions and activities carried out by people; c) possible means of our influence on events; d) the expected results of the planned actions and activities and their impact on life. The very essence of management requires a well-established goal-setting mechanism, and in it - a logical progression from a more abstract general foresight (futurology) to specific forecasting (in different models and variants), from it to programming using modern mathematical and other methodology and techniques, and then and to planning - the choice of the proper course of action and its steady implementation. According to US researchers, "planning is decisions made in advance about what to do, when to do it, and who will do it." Planning bridges the gap between where we are now and where we want to be. Therefore, the rejection of planning (with all the conventionality of many of its elements) means a rejection of goal-setting in public administration, and, consequently, of governance itself, because in such a case, spontaneous mechanisms come first with the absolute unpredictability of their consequences.

Thirdly, a hierarchy of goals of public administration, which has a great sociological meaning.

Under the influence of Marx's concept of economic determinism, for a long time in our state administration, economic development was considered its primary, fundamental goal. But such an approach is acceptable only in the sense and within the limits that, indeed, the economy creates a resource base for society and the solution of its problems. The transformation of the economy into a value in itself often leads to the destruction of the "nature - society - man" system, which is clearly seen in the example of many countries, including developed ones.

I think main goal public life and public administration is creation, maintenance and improvement of conditions for the free, creative life of people, the establishment of rational relationships between the individual, society and the state. Hence the hierarchy of goals of public administration, built on the principle of priority of the needs and interests of the development of society.

According to the source of occurrence and content, descending (from more to less complex and at the same time derivative) and logical sequence (when the previous one determines the next one) the main types of goals of public administration form the following structure:

socio-political which are associated with a comprehensive, holistic, balanced and high-quality development of society;

social, which reflect the impact of socio-political goals on social structure society, the relationship of its elements, the state and level of social life of people;

economic that characterize and affirm economic relations which provide the material basis for the implementation of socio-political and other goals;

spiritual associated in one aspect with the perception of spiritual (cultural) values that guide society, and in another aspect - with the inclusion of the spiritual potential of society in the implementation of socio-political and social goals.

They are in a certain way clarified by specific goals, which are a lower level of goals compared to the main ones, namely:

production, consisting in stimulating and maintaining the activity of objects producing material and spiritual values that correspond to the above goals and contribute to their implementation;

organizational, aimed at solving organizational problems of the subject and objects of public administration - the construction of appropriate functional and organizational structures;

activity-praxeological, involving the distribution and regulation of activities for specific structures, official and workplaces;

informational leading to the provision of the intended goals with the necessary, reliable and adequate information;

explanatory that require the development of knowledge, motives and incentives that contribute to the practical implementation of a set of public administration goals.

Of course, this hierarchy of public administration goals is largely conditional, but it creates a well-known benchmark, a "reference scale" for assessing management practices.

The fourth system-forming moment of public administration is building the "tree" of public administration goals. The central, defining (“trunk”) of the “tree” of public administration goals are strategic goals associated with the preservation or transformation of the social structure. Strategic goals are deployed in operational, fixing large blocks of actions to achieve the first, and operational - in tactical, defining everyday and concrete actions to achieve the first and second goals. Sometimes strategic goals are called the main ones, and the goals that allow them to be achieved are called providing.

Thus, building a "tree" of public administration goals- this is the definition of a strategic goal and breaking it down into lower-order goals.

Ranking goals is an integral, important aspect of developing solutions.

The scientific literature notes gradation of public administration goals and on other grounds: by volume - general(for all public administration) and private(for its individual subsystems, links, specific components), according to the results - final and intermediate, by time - distant, near and immediate. It should also be said about the so-called secondary (derivative) goals, which are not directly related to the implementation of strategic (main) goals, but may arise at the same time and have a negative, opposite meaning. They are undesirable, and yet they must be reckoned with.

Building a "tree" of public administration goals on the basis of and taking into account their hierarchy involves a generally difficult procedure, both in relation to public administration as a whole and to its individual parts. It is necessary to have a well-thought-out definition of strategic (main) goals, and then to "branch" these goals for all their other types. The subordination of goals strengthens the goal-setting mechanism in public administration. And, of course, the primary task is to achieve the adequacy of the goals of public administration to the needs and interests of society, to those goals that are objectively generated by managed objects. Compliance with such requirements can indeed turn the goals of public administration into a powerful driving force the functioning of the state and the development of society.

Goals of public administration, presented in a certain "tree", must meet the following requirements:

1. be objectively conditioned and justified, proceed from the objective laws and trends of social development and people's activities, correspond to the objective logic of the functioning of a particular phenomenon, process, relationship, take into account the forms and mechanisms of the latter;

2. be socially motivated, i.e. go from the needs, requests and interests of people, meet them and thereby cause understanding, support for goals, the desire to bring them to life;

3. be secured in terms of resources, both from the intellectual and material side, be based on real, and not on imaginary, on cash, and not on supposed or possible potential, be tied to specific conditions and factors of social life;

4. be systematically organized, include in a certain sequence goals strategic, operational and tactical, general and particular, main and providing, final and intermediate, remote, close and immediate, etc.

Validity and effectiveness of public administration goals and their trees determined by their dependence on certain resources and their provision. That's what it is, and the practicality of goal-setting in public administration is possible, that these are not good wishes and not a free flight of subjectivist thought, but goals-tasks that are solved in practice.

Of particular importance here, as in everything, natural and human resources, but such resources are scarce and their increase is not expected. Therefore, attention should be paid to those that do not need high costs are reproduced, developed and are at our disposal. First of all - this law resources, moreover, rights in a broad sense, which includes both the relevant worldview, traditions, lifestyle and behavior of people, as well as the system of laws and mechanisms for their provision.

Any goals that are set in public administration should be assessed in terms of their compliance with legal requirements.(justice, truth, humanism), to be enshrined in law and enforced by the force of laws and state mechanisms for their implementation. Then one can hope that the goals of public administration will not remain on paper or in the speeches of leaders, but will, at least within the limits of legal possibilities, be implemented in practice.

An exceptionally rich resource in terms of potential, both for the formation and implementation of goal-setting in public administration, is democracy- a certain system of self-organization of people's lives on the basis of their rights and freedoms.

This concept is widely practiced in the political lexicon, especially among those who occupy the position of the opposition, it is the subject of sophistication in almost any circle of intellectuals. But in the power itself, in the processes of state administration, the forms, methods and other elements of democracy are used timidly, with caution. Isn't this what caused all the troubles recorded by history and today? The concept of democracy is still operated at an abstract level, where much seems to be convincing, while democracy in the form of phenomena, relationships and processes is very concrete and declares its existence when it really penetrates the lives of most people, becomes an attribute of their everyday sensations. , thoughts and practical actions.

Objectives of public administration with minimal cost and maximum results can be achieved when the potential of democracy is included in their implementation when people know the goals of public administration and share them, take part in their implementation, feel the correlation of the results of the implementation of goals with their needs and interests.

It should also be said about such a resource of goal-setting in public administration as organization. The latter in this process solves two problems. The organization allows you to streamline, rationalize and facilitate the development of public administration goals. As experts in the field of goal management note, one of the main advantages of open goal setting is the ability to rally some and clearly show others that they can turn to other organizations as a source of economic and moral satisfaction.

The effectiveness of several approaches to organizing discussions on the choice of goals has been proven. Among them are methods such as "brainstorming", "group orientation", "alternative future scenarios" and the Delphi method. Apparently, it is not worth proving that an organized intellect makes it possible to build a better "tree" of state administration goals, in comparison with the one created by a single, even talented mind. The same takes place in the implementation of goals: functions, structure, activities, principles used, etc. must be organized. As for the "tree" of the goals of state administration, its practical implementation without organization is out of the question.

As resources for goal-setting in public administration, it is necessary to take into account such purely subjective elements as knowledge or, in other words, the innovative and technical capabilities of society. By the end of the 20th century, a large amount of social, natural, and exact knowledge had been accumulated, and significant and qualified personnel had been trained in various areas of human activity. But all this is poorly used in management processes, in particular, and in order to ensure that the intended goals of public administration are certainly implemented. Probably, the mentality of peoples and people, the social and psychological stereotypes that have taken root among them, deserve more attention. Indeed, in such characterizing features lie both certain conservatism and traditionalism, as well as well-known rationalism and constructiveness of ideas, approaches and actions. And each of them has its own meaning, is relevant in different situations and may well ensure the implementation of some goals of public administration.

special attention deserves ratio of goals and means to achieve them. The identity of the second to the first is often forgotten, as a result of which goals, noble and necessary by design, are realized by such means that as a result they lose any life meaning. Meanwhile, one fundamental point is manifested here, which is not always taken into account in management. The objective result is given, as a rule, not by the goals, but by the means used in their implementation. The discrepancy between the means leads to a significant difference between the goals and the results obtained, which, according to the feedback principle, discredits the goals themselves.

Therefore, rational and effective public administration requires the unification of goals, means and methods for their implementation, since only it creates a circuit in the public administration system, generates the trust of society and people in it, and stimulates management processes.

We recommend reading

Orientation test online

Hmm, yoda_daro claims that this is a test to determine their sexuality...

Healthy eating Program 25 frame for weight loss for android

Instruction The frames of the film merge for us into continuous movement due to ...

Human breathing • Breathing treatment • How to breathe correctly?

Pranayama is a breathing practice in yoga. Pranayama literally translates as...

Types of goals of public administration. Control work tree of goals of public administration

Goals and objectives of public administration

We recommend reading

Site search