Borshchevskii Georgii

The concepts of the rational bureaucracy, public management and public-state governance are studied in the article. The assumption that one of them is more progressive than the others is indicated as incorrect, because all concepts originally aimed at the rationalization of the public administration and subordination of its own interests to the interests of the society. In the modern context a set of prerequisites for the real participation of citizens in the governance are formed today: transition to the network organization, a partnership, a production of public goods, values of public service. It is proved that the modernization potential for building of an open and democratic public administration was placed to create the Concept of the Russian Federation civil service reform (2001). The classification of the barriers and challenges that hinder the civil service reform is proposed by the author and the growth points and the alternative transformation vectors are formulated. The risks of each alternative in the short, medium and long term and the ways of overcoming them are considered. It is indicated that the harmonization of the legal framework for civil service and public sector should become a priority. At the first stage, it is proposed to deny the comprehension of the civil service as the specific "official” activity and converging its legal content with other activities in the public sector. The denial of the mentioning of the serving nature in the activities of the civil servants is aimed at the increasing of their personal responsibility. It is necessary to complement the legislation with the basic principle of targeting efforts of the civil servants to provide the economic growth and improve the quality of life of the citizens of the Russian Federation. At the next stage can be formed a new type of service - the public service - that will include the state civil service, the municipal service and the public sector organizations, as well as some other types of organizations. This requires some changes in the personnel policy: the formation of a single personnel reserve for the entire public service, improving the qualification requirements for all public positions based on professional specializations and ensuring the effective public control. A systematic approach to the creation of the public service will increase the efficiency of public institutions and their resilience in the face of global instability. The conclusions of the study were tested by the author during his participation in the work on the draft of the Strategy of the socio-economic development of Russia for the period till 2030.

The dynamics of the number of civil servants from 1984 to 2014 is considered in the article. The hypothesis of the study that the number of personnel is an important indicator of the efficiency of the civil service reform is supposed. The method of determining the number of civil servants in comparable groups in terms of executable functions is designed and tested. It is found that the change in the number of civil servants takes place in the mainstream of socio-economic development of the country. The change of the share of civil servants in the population and among the employed in the economy is analyzed. Some proposals about the incorporation of the identified regularities during the development of reforming measures of the civil service are designed.

The paper provides interpretation of comparable data on several levels and of the results of an analysis carried out in the course of a long period. The author, analyzing the data from studies, presents trends in the development of public service. The article explains what influence the findings of the research carry.

The methodology of the comparative analysis of the level of remuneration of civil servants is considered in the article. The quantitative characteristics of the reforming process of the public service concerning remuneration are considered in the dynamics from 1984 to 2014 and are the subject of the study. The objectives of the work consist of determining the sources for comparative analysis; the development of a method of representation of the level of remuneration of civil servants in various periods of time in a comparable format; interpretation of the gained results. The study found that in the tiers of prices of 2014 the remuneration of public servants of the RS FSR in 1984 and 1989 was comparable with the remuneration of public servants of the Central apparatus of the Federal bodies of the executive power in the end of the 2000-ies. Positive correlation in the wages of civil servants with inflation and dynamics of the gross domestic product is revealed. It suggests that the change in this indicator occurs in the general context of socio-economic development. Thus, the obtained data on the progress of civil service reform in the past will become a solid foundation for the design of reforms in the future.