The system of labor motivation of state civil servants. Improving methods of motivating civil servants

The motives of labor activity are different for specific professions and are realized in them. According to the results of the study given in table. 1 “The structure of the motives of civil servants”, the majority of civil servants came to work in government bodies for the following reasons: material support, social package, job security, free education. The motivation of civil servants to improve the efficiency of their activities must be oriented taking into account the above factors. As practice shows, the motives of material support are dominant when entering the civil service.

The components of the motivational behavior of the staff are many elements: organizational and personal goals, the relationship between the management and employees of the organization, their internal motivations, the system of career advancement and the system of career expectations of employees, the conditions for job satisfaction and the system of motivation and stimulation of work in the organization.

The mechanism of motivation involves needs, interests, motives and incentives. One of the characteristics of the motive is its strength, it affects the level of human activity, the success of the manifestation of this activity, and in particular, the effectiveness of the activity. Motivated employees show more perseverance in the task, plan their work for a longer period of time, show loyalty to the organization and its management.

The study of the influence of the strength of the motive on the level of human activity was carried out back in the 20th century by M. Winterbottom, J. Atkinon, E. French, F. Thomas, X. Heckhausen.

Russian physiologist N.E. Vvedensky formulated the law of optimum-pessimum, the observance of which is necessary for the performance of mental labor. Unfavorable conditions for the productivity of managerial work are impulsiveness, a sudden acceleration of the pace of work, in which a person gets tired faster. The optimum is strictly individual, each person has his own rhythm and pace of work. Experimental studies conducted by E.P. Ilyin, V.V. Skryabin and M.I. Semenov, confirmed the existence of an optimum of motivation and the strength of the motive.

The strength of the motive depends on many factors, it can be influenced by various incentives, both material and non-material.

Financial incentives occupies a leading position in the system of motivation of civil servants, as it is the main source of satisfaction of basic human needs. At the same time, studies of motivation have shown that wages are not the only factor in increasing labor motivation, satisfaction can be brought by the nature of the work, its content, etc. The mechanism for stimulating the work of civil servants is established by the laws of the Russian Federation.

The Federal Law No. 79-FZ of July 27, 2004 “On the State Civil Service of the Russian Federation” establishes a complex structure of the monetary content of a state civil servant, including: official salary, salary for class rank, bonus for civil service, bonus for special conditions of state services, premium, state social guarantees. In the structure of remuneration of civil servants, the official salary and various allowances predominate; the level of monetary content is mainly affected by the official position. There is a duplication of the salary of a civil servant with allowances, the grounds for payment of which are the same factors that determine the size of the salary. Such a system of remuneration, established by Art. 50 of the Federal Law No. 79, does not allow financial support and protection of an employee, interest and attract qualified personnel to the civil service.

The dynamics of changes in the remuneration of civil servants in the period from 1995 to the present has been uneven. The increase in the level of remuneration was carried out both by indexing official salaries, and by increasing the size of allowances to the official salary, as well as by introducing new components into the salary structure. The share of official salaries in the annual wage fund of state bodies is continuously decreasing: from 50% at the beginning of 1995 to 16.5% by 2007. Differentiation in terms of official salaries of civil servants does not correspond to differentiation in terms of wages in general. The degree of vertical compression by levels of wages in the central offices of federal ministries and departments is 1:9, and in the territorial bodies of federal executive bodies 1:4, with a level of vertical compression of official salaries of 1:3.77. A simple increase in wages does not lead to an increase in wages.

stimulating function, since the indexation of the salary of the monetary content by 10% increases its value for the junior group of positions by 500 rubles, and for the highest group of positions - by 8 thousand rubles.

Even E. Lawler proposed to divide the wages of any employee into three parts in order to establish the relationship between the results of labor and income. One part of the salary is paid for the performance of official duties, and all who perform similar duties in this organization receive the same remuneration for this. The second part of the salary is determined by years of service and cost-of-living factors. The amount of this part of the salary is automatically adjusted. The third part is determined by the results achieved by each employee. This part changes all the time depending on the contribution. For employees with lower labor productivity, this part of the salary is minimal and does not automatically increase. The actually earned part of the wage can change dramatically, so that if the productivity of the worker falls, then the wage decreases by reducing its variable part. The essence of this system is to link the employee's salary with the results of work in the current period.

The close connection of the remuneration that an employee receives with the effectiveness of his activities brings income to both the employee and the organization.

At the Department of "State and Municipal Administration" IPKgossluzhby in 2006-2009. a survey was conducted on the topic: “What incentives have the greatest impact on you?” (table 2).

The survey involved 526 state civil servants of various federal executive bodies.

Most of the respondents noted the importance of: the stability of their position (90%); lifetime employment (80%); financial incentives (80%); the dependence of wages on the results of labor (80%), which is currently absent, and the observance of the principle of fairness (92%).

As a result of the survey, it can be concluded that the wage system needs to be modernized, it should depend to a much greater extent on the results of work.

table 2

		% responses
	The absolute amount of material remuneration
	The need to establish the dependence of wages on the results of labor
	Guarantees of stability, a sense of security
	Comparison of the results of their work with the results of other employees (competition effect)
	Lifetime employment

	Status differences

	Ability to make decisions
	Satisfaction from interesting work
	Possibility of self-realization
	free time motivation
	Criticism, punishment

motivation civil servant

In connection with the foregoing, it is advisable to increase the official salary for an increase in the volume and complexity of work, for an increase in qualifications, for combining positions and functions, and an increase in the service area; to pay bonuses for improving the results of functioning and development of the supervised industry, for improving the quality of adopted and implemented state decisions aimed at meeting the needs and interests of the population, based on the results of the year, for the implementation of proposals to increase labor productivity. It is especially important to link bonus indicators with labor productivity indicators.

In addition to material ones (the competitiveness of wages in the labor market in a given region, the presence of a constant and variable parts of wages in cash and their ratio, the relationship of wages with results), the following incentives can be used to influence the motivation of civil servants: organizational - significance and responsibility of work, completeness of tasks performed, independence in performing tasks, feedback; moral - praise and censure, competition; moral and psychological climate in the team, the influence of public opinion, the attractiveness of the content of the activity, the presence of a perspective, a specific goal, the clarity of goal setting, a fair attitude from management, professional retraining and advanced training, career growth.

In Russia, there are no unified approaches to the formation of mechanisms for evaluating the results of the work of civil servants and taking them into account when calculating wages, but they are certainly necessary.

Until now, there is no quantitative assessment of the performance indicators of managerial personnel, due to the difficulties of measurement. As a result, the subjective assessment of the manager is used, which often causes a feeling of injustice and has a demotivating effect.

In order to avoid injustice in the evaluation of civil servants, it is necessary to move away from subjective factors of evaluation and focus on objective, measurable indicators, which may be the criteria for the effectiveness of the work of civil servants, which allow evaluating the work performed in quantitative indicators (points), and in accordance with this, it is more fair to distribute premium. This approach helps to eliminate the formal, egalitarian calculation of bonuses, increases the motivation of civil servants,

The efficiency of public civil servants is influenced by many factors of motivation, which can be grouped according to the following criteria: the level of labor organization; formation of management personnel in accordance with the goals of the state body; the establishment of various pay groups in accordance with job regulations; the use of as many incentives for material and non-material motivation as possible; determination of criteria for evaluating the results of labor depending on the complexity of the work.

Specific methods of increasing the motivation of civil servants include the following:

competitive selection for civil service, which is designed to promote a fair distribution of positions in state bodies, to prevent the penetration of random people, self-serving, as well as those accepted on a related or other basis (for example, “personally devoted” or “necessary”);

an increase in cash income, the dependence of the size of material remuneration on the results of labor;

use of a wider range of moral incentives. Along with traditional forms of motivation, such as certificates of acknowledgment, acknowledgment, placing a photo on the honor roll, modern approaches to labor motivation can be used: free time motivation, horizontal rotation of personnel, participation of lower-level civil servants in the management of their unit (participation in public work, planning of corporate events);

career development planning for civil servants, which is one of the strongest motivating factors. Each civil servant from the moment they start working should be included in the career advancement scheme for the next 3-5 years, which will contribute to the manifestation of initiative, more efficient performance of official duties. It is necessary to promote and develop a career only for those employees who have achieved high performance;

* distribution of work between employees in accordance with job regulations, as well as a fair assessment of the results of work.

Improving the mechanism of labor motivation of state

employees can be carried out by:

the use of a mixed wage system, a special procedure for remuneration, its regulation depending on the position and quality of public services;

implementation of performance-based remuneration, including the combination of the goals of the organization with the goals of the individual;

simplicity and fairness of wage systems; wider use of forms of non-material motivation (social package, psychological incentives, flexible schedule).

2. In order to objectify the assessment of the work of civil servants, it is necessary to move away from subjective evaluation factors and focus on measurable indicators, which may be the criteria for the effectiveness of the work of civil servants, which allow evaluating the work performed in quantitative indicators (points). This approach makes it possible to eliminate the formal, equalizing accrual of bonuses, and increases the motivation of civil servants.

3. To ensure the legal and social protection of civil servants, increase motivation for the effective performance of their duties and in order to compensate for restrictions in the civil service, civil servants establish basic and additional guarantees in the field of remuneration, conditions of service, rest, medical insurance, state pension provision and etc.

Introduction

There has always been great interest in career development of employees in all types of organizations, since the most important resource of any institution is a person. However, there is currently a particular interest in studying the careers of civil servants (hereinafter referred to as civil servants). This is due to the fact that the civil service is changing on its own: more and more young people go there for service, more innovations are being introduced in this area of activity, wages are rising. Career for civil servants is an integral part of the civil service system. This system is a set of organizational and legal measures to determine the procedure and grounds for admission to the civil service, certification, execution of powers, appointment of class ranks, promotion of employees in the horizontal and vertical positions of the hierarchy, as well as termination of public service. In addition, a career is one of the most important social mechanisms. This is the promotion of civil servants at the levels of the hierarchy of positions in accordance with the chosen specialization in work, increasing their professionalism and competence. That is why the development of the civil service itself depends on the development of the career of civil servants. In other words, the more fair the career of civil servants develops, the better the work process in government bodies is.

The relevance of the chosen topic lies in the fact that today the role of the civil service in the life of civil society has greatly increased, which is due precisely to the focus on career development of civil servants. In order to effectively manage a career, you need a clear understanding of how to build it and how it develops. However, today in many state bodies there are no universal methods for managing the career of civil servants, since there is no clear understanding of the ways and means of its development, as well as the factors by which it develops in one way or another.

As for the scientific novelty of this work, it lies in the fact that the study conducted by the author includes not only the problems that exist in the management of the career of civil servants, but the factors influencing its development, the identification of which can help in career management not only in government, but also in the commercial sector. And the proposed ways of solving the identified problems constitute the practical significance of the work.

The purpose of this work is to identify the factors influencing the development of a career in the civil service, the problems that exist in the management of the career of civil servants, and also to develop recommendations for their solution.

The tasks by which the goal will be achieved are:

Preparation of a theoretical framework on the topic of career development in the civil service.

Identification of factors influencing the development of a career in the public civil service by conducting a quantitative study.

Identification of problems existing in the field of career development in the civil service, through quantitative and qualitative research.

The object of the study is the service relations that arise in the civil service. The subject is career development in the civil service.

The factors influencing the development of a career in the civil service to the greatest extent are the quality and effective work civil servant, as well as the level and quality of his education, and in the least - gender, age and social status of the civil servant.

Today, in the management of the career of civil servants, there are such problems as underestimation of the role of incentives and rewards for civil servants and, as a result, a low level of satisfaction of employees with their work and the quality of their service; difficulties for women in career growth.

The information base for the completion of the thesis is the scientific literature on the chosen research topic; textbooks and study guides that systematically present the basic theory on the topic of career development in the public service; articles containing expert interviews with foreign government officials.

The theoretical basis on which the study is based consists not only of such regulatory legal acts (hereinafter - NLA), as Federal Law of July 27, 2004 N 79-FZ (as amended on April 3, 2017) “On the State Civil Service of the Russian Federation”, but also from such scientific works as: Aksenov E.A. Personnel management in the public service: textbook.- M.: IPK civil service, 2006. - 178p.;Mogilevsky E.A. Personal factors of professional career of civil servants. Abstract diss. cand. psh. Sciences. - M., 1998.;Cherepanov V.V. Fundamentals of public service and personnel policy: a textbook. – M.: Unity-Dana, 2010.

As for the methodology, since the author of the work also conducted a quantitative study, the data collection method was a questionnaire (to identify factors that affect the development of a career in the civil service, and the level of their influence, as well as problems existing in this area), and a qualitative study, conducted with the help of an expert interview (to identify problems that exist in the field of career development in the civil service, as well as to develop recommendations for their solution).

The introduction of the work reveals the relevance, determines the degree of scientific development of the topic, object, subject, goal, objectives and research methods, reveals the theoretical and practical significance of the work. The first chapter discusses the theoretical basis on the topic, reveals the basic concepts, analyzes the current situation in career development in the civil service. The second chapter is devoted to the description of the study and its empirical part. The third chapter reveals the results of the study and describes the recommendations developed by the author of the work for solving the identified problems in the field of career development in the civil service. In conclusion, the results of the study are summed up, final conclusions on the topic under consideration are formed.

1. Theoretical foundations of career studies

The choice of a career is one of the most difficult and important choices, on which the whole future life of a person will depend, since it will affect not only his professional development, but also his personal life. For a better understanding of a career, it is necessary to give a definition of this concept, as well as a theoretical basis for the chosen topic.

1.1. Concept and types of career

There are quite a few explanations for the term "career". In the broad sense of the word, a career is professional development, advancement in the field of the chosen profession, as well as the result of a person’s professional activity. In a narrower sense, career refers to career growth, the achievement of a certain level of professional development and the occupation of a certain position.

As a rule, career choice and its development are conscious, which also applies to civil servants. They develop both professionally and in job terms, therefore, in this context, a career is referred to as a constant development and sequence of states of the public service system.

It must be understood that a career is a rather complex phenomenon, since its development depends on many different factors, such as: the personality of the person himself, his character; the environment in which it develops (hereinafter referred to as the career environment); society in which a person works, its characteristics and level of development. The combination of these factors determines the speed, vector and level of complexity of career development.

The multidimensionality of a career determines both the variety of types that it has, and the many approaches to its typology, which are distinguished by specialists. In order to classify a career, there are several reasons.

1. Classification on the basis of individual professionalization. It, in turn, is divided into a professional (personal) and official (within a particular organization) career.

The first is characterized by such features as the development and work of a person in approximately the same subject professional area, regardless of the change of job. In addition, this career is characterized by the achievement by a person of a certain level of professional development and authority in a particular area of professional activity and the recognition of this authority by this professional community.

As for the official career, it is usually built within the framework of one organization and means the promotion of an employee up the career ladder. In addition, this type of career means a change in the official status of a civil servant, his role in the society of a given state body, as well as a change in the level of his authority and influence. It is important to note that the movement of a civil servant can be not only vertical, but also horizontal.

2. Classification according to the directions of movement of a civil servant in the structure of the organization.This type of classification contains three types of career:

vertical - means climbing the career ladder to a higher level of job development, replacing a higher position. It is this type that is most often meant when talking about a career as a whole;
horizontal - the transition from one functional area of activity to another, but without a significant increase in wages, the number of official powers and the level of influence within this particular organization;
centripetal - is a movement specifically to the leadership of the organization. This type of career refers to the desire of a civil servant, for example, to attend meetings of senior positions of a state body or part of it, to carry out assignments that require special skills and trust from management, and also to have informal conversations with superiors.

3. Classification according to the content of changes occurring in the process of career movement.It, like the previous types of classifications, is divided into several types of career:

imperious - characterized either by the employee's official growth, an increase in his authority, authority and level of influence in the organization, or an informal increase in authority, an increase in the level of respect in the team;
qualification - means growth in one's professional field, an increase in the number of professional skills possessed;
status - is expressed in the assignment to a civil servant of the next rank or rank for length of service or a title for special services to a state body.

4. Classification according to the characteristics of the course of the career development process.Here it is advisable to divide the classification into the following categories of the career process:

a) by the nature of the flow:

linear - career proceeds evenly and gradually;

non-linear - on the contrary, it is carried out in jumps, with uneven intervals in time;

stagnation - stagnation in a career, lack of movement. This type is less common than the previous two;

b) according to the degree of stability:

sustainable - a career that is reliable, not dependent on external factors;

unstable - the career is unstable, there is a risk of its termination due to external factors;

c) if possible:

potential - a professional plan for the development of his career, built by the person himself, which can affect his actions in relation to building a career;

real - the career that was realized by a person in a certain professional area for a certain period of time;

d) by the time of implementation:

normal - gradual uniform professional and official development of a civil servant and his promotion through the hierarchy;

high-speed - fast, but consistent career development along the vertical ladder. Such a career proceeds several times faster than a normal one, and the character is mostly for gifted and stubborn people;

"landing" - an unexpected replacement of usually leading positions in the organization;

e) according to the direction of the ongoing changes:

progressive - the most preferred type of process development, which means that each subsequent stage of professional development is distinguished by a higher level of abilities, includes accumulated results and experience;

regressive - a career moves down a line, undergoes negative changes and a decline due to prolonged illnesses, a discrepancy between the activity of a civil servant and job requirements for him, and so on.

1.2. Stages of career development in the civil service

Every person at any moment of his life is at a certain stage of his career. This may be the stage of career formation, the stage of its peak or decline.

There are five stages of career development in the civil service system.

First stage just as in other professional fields, is to find their professional area of interest and place in life, and then get the education they need. This choice most often occurs under the influence of already existing life experience, the opinions of parents and acquaintances, and also because of the existing image of this particular profession. Career in this case acts as a kind of ideal image.

Second phase characterized by taking office, the process of adaptation to the professional working environment, as well as the formation of a real situation and a real idea of the chosen profession. During this stage, the civil servant assumes new roles and functions. As a result, mechanisms of self-evaluation and awareness of responsibility come to the fore. In the first two or three years of the second stage of career development, a civil servant already has a more accurate idea of the chosen profession, and by the end of this stage, this image becomes as accurate and real as possible.

Third stage consists in becoming in a position, in forming a civil servant of the functions and skills necessary for his position, as well as in forming the ability to predict social expectations related to the field of his profession. At this stage, there is an increase in the level of activity of a civil servant, an expansion of the range of his interests, including professional ones, an actualization of his expectations from work and the development of his career. The employee is already clearly defined with the desired area of professional activity and further moves in its direction, accumulating the required knowledge, skills and experience. In addition, he receives the necessary important professional and business qualities, increases the level of his competence and professionalism, as well as the ability to solve complex problems. And, finally, it becomes more psychologically stable.

Fourth stage comes when a civil servant reaches a certain level of professional and job development, evaluating it as a personally significant fact. At this stage, he is satisfied with the results of his activities.

Fifth stage, the most effective and productive in terms of career development, is already characterized by stable work, during which not only the skills and abilities acquired during previous years of work are consolidated, but also expectations for career growth and promotion appear. At this stage, a civil servant can be more creative, as he has already satisfied many of his psychological and material expectations and needs.

The division of a career into stages of development is necessary for its management in the public service system. Each head of a civil service body is obliged to take this division into account and form an individual approach to all civil servants in connection with it in order to ensure their efficient and productive work.

Since the development of a career by a civil servant is not only the realization of his professional desires and life ambitions, but also a way of earning money, a means of subsistence, when choosing a profession, it is also necessary to pay special attention to the level of remuneration and material place in the labor market. The relatively low wages of civil servants is one of the most significant reasons for their outflow, and most often the civil service loses the most promising and talented people.

1.3 The current situation in career development in the civil service

The phenomena of career development in the civil service can be analyzed in the context of systems theory. The main idea behind the career development model is that dynamic organizations, including public sector organizations, and dynamic employee careers should be seen as complementary phenomena. The civil service career development system in its content should represent a transition from the exclusively organizational practice of career management to individual career growth in organizations with all the ensuing consequences.

Any social organization is always a system in which one could make a career. However, not all organizations have formalized career development systems that support individuals who want to pursue their career aspirations.

Based on the situation in the field of civil service in Russia, it can be concluded that underestimation of the career of civil servants leads to a violation of state interests. When promoting personnel, managers often pursue personal and corporate interests. However, well-designed career systems can provide organizations with the ability to rise to the highest levels of the management hierarchy with people who are able to generate, create and implement new ideas, helping the organization adapt to a rapidly changing environment.

A motivated and talented employee working in the civil service, despite the changes in the ruling parties, can reasonably expect a clear and long-term strategy for his career: having demonstrated exceptional performance, proving the ability to create value for citizens.

Speaking about the public service in Russia, it is impossible not to notice that today quite a lot of attention is paid to the development of the effectiveness of its work. Evidence of this is, for example, the development in 2003 of the federal program "Reforming the Civil Service of the Russian Federation". And as part of its implementation, Federal Law No. 79-FZ of July 27, 2004 “On the State Civil Service of the Russian Federation” was issued, decrees of the President of the Russian Federation were signed, which seemed to address such personnel issues as certification and competitions for filling vacant positions in the state civil service, class ranks, the formation of a personnel reserve and so on.

However, practice shows that the theoretical foundation for the development of the civil service is not at all similar to what is happening in reality. For example, certification, which is mandatory for civil servants to pass every three years, is in fact a pure formality and can be carried out once every five years, for example. This happens because the personnel departments of state bodies have not yet fully realized the importance of effective and targeted career management of civil servants. They do not pay the necessary attention to the qualitative selection of personnel, its assessment and development, advanced training of civil servants, and planning their careers. The significance of official documents containing the theoretical foundation of personnel technologies in the civil service is underestimated, reference to them is made in less than half of the questions concerning the career development of civil servants. For this reason, the leadership of state bodies assembles a working team for itself exclusively from people who suit its preferences, without focusing on such an important theoretical basis.

In order for the modern career development management system for civil servants to be effective, it should be based on the motivation of employees by introducing certain criteria of professionalism and indicators into their performance, the observance and achievement of which will push civil servants to high-quality and efficient work. Today, such indicators can be considered: professional competence, the ability to creatively approach problem solving, not only psychological stability, but also psychological compatibility with the chosen type of activity, professional dedication to one’s work, a high level of motivation to achieve high professional service results, the ability to plan his work activities, as well as the ability to anticipate the results of work, and so on.

So, in the course of writing the first chapter, containing the theoretical foundation for the development of a career in the civil service, the author of the work found out what careers are in the broad and narrow sense of the word, defined a classification by which several types and types of careers can be distinguished. Next, the stages of career development in the civil service were described. In addition, the author of the work analyzed existing situation in this area.

The next chapter will present a description of the research part of the work, namely a description of the methods of collecting and processing data, as well as the reasons for choosing these methods.

2. Methodology of the study

In order to fully understand the chosen topic of the thesis, the author decided to conduct a study in order to identify the factors affecting the development of a career in the public civil service, the problems that exist in this area, and also offer recommendations for their solution.

Since the goal of the work, set at the beginning by the author, contains several components, in order to identify the factors influencing the development of a career in the civil service, the author conducted a quantitative study. Identification of the problems existing in this area occurred partly through quantitative research, through qualitative research. Thanks to the latter, it was also possible to offer recommendations for solving the identified problems.

2.1. Description of the quantitative study

One of the components of the main goal of the work, which the author indicated in the introduction, is to identify factors that affect career development in the civil service. In order to achieve this goal as accurately as possible, it was decided to conduct a quantitative study, since it is it that answers the questions “who?” and how many?".

Quantitative research is a method of collecting and analyzing primary information, used in cases where accurate statistical information is needed based on a large number of respondents. This type of research can be carried out through personal or telephone interviews, monitoring, statistical observation, product testing. For this work, such a method of quantitative research as a questionnaire was chosen, since it is it that makes it possible to cover the maximum number of respondents and obtain not only quantitative, but also qualitative information. The questionnaire method is a psychological verbal-communicative method in which a specially designed list of questions - a questionnaire - is used as a means to collect information from the respondent.

The questionnaire that was used to conduct the quantitative research for this paper was created on the basis of a review of the literature on the chosen topic, such as: scientific articles, educational materials, regulations. In addition, information on the current situation in the field of career development in the civil service was used as a basis for creating this questionnaire. Using the questionnaire method, the author found out the opinions and personal experience of civil servants regarding the factors influencing their career development.

The questionnaire itself, developed for this study and including 12 questions (see Appendix 1), was created using the Survio online questionnaire creation tool and was distributed using the Internet information and telecommunication network (hereinafter referred to as the Internet) to work emails. mailboxes of civil servants of the Russian Federation. This method of distributing the questionnaire was chosen due to its ease of use, and also because of the possibility to cover the maximum number of respondents by sending the questionnaire to the mail of civil servants from other cities of Russia.

The questionnaire described above was sent to 113 e-mail addresses of civil servants of the Russian Federation, employees of the Ministry of Labor and Social Protection of the Russian Federation, the Ministry of Labor, Social Protection and Demography of the Penza Region, the Ministry of Health of the Russian Federation, the Ministry of Sports of the Russian Federation, the Ministry of Finance of the Russian Federation, Ministry of Economic Development of the Russian Federation, as well as the Ministry of Culture of the Russian Federation. The listed ministries were chosen because email addresses civil servants of only the listed ministries were publicly available on the Internet. The age of civil servants to whose mail the questionnaire was sent ranged from 25 to 60 years (the most active stage of civil service, as well as the age when officials already have some relevant experience in their work, or experience of moving up the career ladder).

As for the content of the widespread questionnaire, the dependent variable was the development of a career in the civil service, and the independent variables were the factors influencing this development, such as: gender, age, level and quality of education received, social status, quality and effective Job, great experience work in this field, relevant work experience elsewhere, special professional merits, family/friendship ties, and more.

In addition, as mentioned at the beginning of this chapter, the quantitative study was partly carried out in order to identify problems that exist in the field of career development in the public service. Here, the dependent variable was also career development, and the problems existing in this area became the independent variable, somehow:

Underestimation of the role of civil servants in the life of the state.
Low job satisfaction of civil servants.
Low labor productivity of civil servants.
Difficulties for women in career development.
Lack of incentives for public civil servants from the state.
The desire of state civil servants to develop professionally not because of their interests in work, but because of the possibility of increasing monetary compensation.
Other

2.2. Description of the qualitative study

In addition to identifying the factors influencing the development of a career in the civil service, the author of the work also set herself the goal of identifying the problems that exist in this area, as well as developing recommendations for their solution.

To achieve the agreed goals, the author of the work decided to conduct a qualitative study, since it is it that answers the questions “how?” and why?". This type of research is a method of collecting, processing and analyzing information about individuals who, as performers of social roles, are the main object of research. Qualitative research can be done through various types of observation, experimentation, content analysis, historical/philosophical analysis, situation modeling, role playing, and so on. For this work, the author chose such a method of conducting a qualitative study as an expert interview, since it is this method that makes it possible to obtain the most truthful and informative answers to the necessary questions. The expert interview method is one of the varieties of in-depth interviews, which is a conversation between experts (competent specialists in the chosen industry) and the interviewer himself. In order to conduct an expert interview, you must first prepare a detailed plan for its conduct, develop a list of questions that need to be answered.

The list of questions for conducting an expert interview (see Appendix 2), as well as the questionnaire with which the quantitative study was carried out, was developed on the basis of a review of the literature on the chosen topic, such as: scientific articles, educational materials, legal acts. In addition, information on the current situation in the field of career development in the civil service was also used as a basis for creating a list of questions. And finally, the results of the quantitative study, which was described earlier, served as the foundation for the qualitative study.

The purpose of the expert interview, which included 3 questions, was to identify the problems that exist in the field of career development in the civil service, as well as to develop recommendations for their solution. Therefore, this list included such questions as, for example, “What problems, in your opinion, exist today in the field of career development in the civil service?” or “What solution do you see for this problem?”.

An expert interview was conducted among 9 people. The respondents who took part in the qualitative study were civil servants of the Ministry of Labor and Social Protection of the Russian Federation, since the author of the work underwent undergraduate practice there and had the opportunity to conduct an expert interview in this state body. The age range of the respondents was 25-60 years, the same as in the quantitative study, since it was necessary to understand what problems in the field of career development in the civil service arise for the young generation of civil servants, and which for already experienced employees of the Ministry. The departments whose employees were interviewed are: the Department of State Policy in the Sphere of State and Municipal Service, Anti-Corruption, the Department of Labor Conditions and Labor Protection, the Department of Remuneration, Labor Relations and Social Partnership, the Department of Demographic Policy and Social Protection of the Population, as well as department of complex analysis and forecasting. The listed departments were chosen by the author of the work for the reason that their civil servants were the most suitable for the requirements necessary for conducting a qualitative study.

Summing up this chapter, it is necessary to say the following: the second chapter of the thesis was devoted to the description of the methodology chosen for the research work, namely the description of quantitative research conducted by questioning civil servants, as well as the description of qualitative research conducted by means of expert interviews with them.

In the next chapter, the author will present the results of the research part of the work, namely the factors influencing the development of a career in the civil service, the problems that exist in this area, and also offer recommendations for their solution.

3. Research results

In order to this work had practical significance, and also had scientific novelty, in this chapter the author will present the results of the study described in the second chapter of the study, as well as offer developed recommendations for solving problems that exist in the field of career development in the civil service.

3.1 Factors affecting the development of a career in the civil service

As mentioned in the second chapter, the questionnaire developed for conducting a quantitative study was sent to 113 e-mail addresses of civil servants of various ministries. However, in the end, only 44 questionnaires were completed. The author of the work suggests that the reason for this phenomenon was the high workload of civil servants, as well as the possibility of a sent letter containing a questionnaire developed for this study getting into the "Spam" email folder. An indicative moment for this study is the fact that 100% of the completed questionnaires turned out to be relevant for the analysis and identification of results, as they were filled out as informatively and adequately as possible.

According to the results of a quantitative study, civil servants pay quite a lot of attention to the development of their careers. They value a career, first of all, as a way to fulfill their needs and abilities, and only then - as a way of earning money and professional and job advancement, and they are also quite conscientious about serving in this state body.

So, the result of the quantitative study was the identification by the author of the work of the main factors affecting the career development of civil servants, the level of their influence on it, as well as the identification of the problems that exist in this area.

Thus, it turned out that the quality of work of a civil servant, as well as the level of his education (see Graph. 1), have the most influence on the development of a career in the civil service.

Graph 1. Factors influencing career development in the civil service

On the chart above, you can see that the maximum number of respondents (37 people or 84.1%) identified the factor that influences the career development of civil servants to the greatest extent, its high-quality and effective work. This means that the career advancement of a civil servant depends only on himself and no one else, which was to be expected. This factor means that the more capable a person is, the more effort he puts in to do his job with the highest quality, the faster his career will develop.

In second place, lagging behind the first by only three votes (34 people or 77.3%), respondents put the level and quality of education. This factor means that to work in the public sector, you need a completed higher education, preferably in the direction of "State and municipal administration" or in the profile necessary for working in this ministry or department.

The third place in terms of the number of votes cast by respondents (25 people or 56.8%) was given to such a factor as extensive experience in this field. That is, the longer a civil servant works in the public sector, the higher his chances of developing his career. In addition, according to Article 50 of the Federal Law “On the State Civil Service of the Russian Federation” dated July 27, 2004 No. 79-FZ, it is indicated that the remuneration of civil servants also depends on length of service.

The fourth (19 people or 43.2%) and fifth (18 people or 40.9%) places are shared by such factors as special professional merits and family/friendship ties, respectively. The first named factor includes the performance of particularly important and complex tasks, work with state secrets, and so on. The second factor means that despite the presence of a fairly open and transparent system for promoting civil servants up the career ladder, there still exists such a phenomenon as nepotism or, in simple terms, “nepotism”, that is, a kind of favoritism that provides privileges to relatives or friends, regardless of their professional qualities.

The graph also shows that civil servants' career development is less influenced by their gender, age, and relevant work experience elsewhere.

In last place is such a factor as social status (5 people or 11.4%).

The results presented by the author of the work above are also confirmed by the ranking of the level of influence of the factors cited earlier on the career development of civil servants, which was carried out by the respondents who took part in the quantitative study (see Graph 2).

Graph 2. The level of influence of factors on career development in the civil service

On it we can see that the most big influence the career development of civil servants is influenced by high-quality and efficient work, the level and quality of education of a civil servant, as well as extensive experience in the civil service. And the influence of such factors as the gender of the civil servant, his age and social status is minimal.

The conducted quantitative research, as well as its results given above, confirm the hypothesis No. 1 put forward by the author at the beginning of the work: the factors that influence the development of a career in the civil service to the greatest extent are the high-quality and effective work of a civil servant, as well as the level and quality of his education, and in the smallest - gender, age and social status of a civil servant.

3.2 Current challenges in career development in the civil service

In order to fully understand the topic of career development in the civil service, the author of the work decided to find out what problems exist in this area. As mentioned earlier, this goal was achieved partly through quantitative research, partly through qualitative research. As a result of the first, the author of the work identified these problems, and the result of the second was the confirmation of the results of the first.

So, as a result of the second part of the quantitative study, the author found out that there are several serious problems in the field of career development in the civil service (see Graph. 3).

Graph 3. Problems existing today in the field of career development in the civil service

From the graph above, you can see that today there are 5 main problems in the field of career development of civil servants.

More than half of the respondents who took part in the quantitative study identified two problems as the main ones in the field of career development in the civil service. The first and second places are shared by such problems as the underestimation of the role of civil servants in the life of the state (25 people or 56.8%), as well as the low job satisfaction of civil servants (24 people or 54.5%). The author of the work assumes that the second mentioned problem is a consequence of the first one. The lack of due respect for civil servants and an adequate assessment of their work leads to the fact that they do not feel their importance in the life of the relevant state body and, as a result, in the life of the state.

The next three places (third, fourth and fifth) were given by the respondents to the following problems: lack of incentives for civil servants from the state (20 people or 45.5%), low labor productivity of civil servants (19 people or 43.2%), and also the desire of state civil servants to develop professionally not because of their interest in work, but because of the possibility of increasing monetary compensation (19 people or 43.2%). The author of the work believes that these problems are also interconnected, like the previous two, that is, it means that one problem follows from the other. So, for example, due to the absence of any measures on the part of the state that would motivate civil servants for high-quality and efficient activities, the performance of civil servants is actually worse than it could be, that is, their level of labor productivity is low. In addition, they often work only because the amount and level of their work determines the material remuneration for their activities, and not because this work, that is, service in the public sector, is interesting to them and attracts them with the opportunity for professional development.

In addition to the already described links between the problems that exist in the career development of civil servants, the author of the work highlights the following links between them: underestimating the role of civil servants in the life of the state leads to the fact that it does not seek to develop methods to stimulate civil servants to quality work, as well as to increase their interest in his work. In addition, the low level of satisfaction of civil servants with their work leads, accordingly, to low productivity of their labor, since they do not have any desire to work efficiently and efficiently due to the fact that the conditions of service do not suit them.

It can also be seen from the graph that there is such a problem in the career development of civil servants that it is difficult for women to move up the career ladder. This problem is not the most common and serious, as can be judged by the number of respondents who voted for it (8 people or 18.2%), but it still exists. The author of the work connects the existence of this problem with the fact that in society there is still an opinion that there are purely “male” professions and purely “female”, and work in the public sector belongs to the first variant of professions.

In addition to the problems described above, the respondents also indicated the existence of another problem in the field of career development in the civil service (Fig. 1).

Figure 1. Current challenges in career development in the civil service

Introduction

For the successful functioning of any organization, each manager must properly manage resources, including human resources, so that all employees are ready and willing to do their job. He must know what his subordinates expect from him, what results to expect from them, how to influence employees, etc. All this is an effective system of motivation.

In public administration, motivation is a more complex and important element due to the specifics of the activities of state bodies (high material and human risk, a high degree of responsibility, etc.). The development of a motivation system in a state body makes it possible to increase the efficiency of the work of civil servants and properly organize it, which contributes to a better performance of their professional duties by civil servants and increases loyalty to the state body, the state and the interests of society, reducing corruption, and hence the effectiveness of the activities of state authorities and the state overall management is improved. The degree of efficiency of the activities of state bodies, in turn, is an indicator of the prestige of the country and the level of its socio-economic development.

As for the process of improving the work of public civil servants, it includes a whole range of measures to improve the public service in the Russian Federation (the introduction of qualitatively new ways to stimulate labor, recruitment methods, methods of personnel assessment, creating conditions for career growth) and is carried out in alignment with civil service reform. All these measures are connected in one way or another with the modernization of the current system of motivation of civil servants. An important place in the implementation of these measures is played by the orientation to foreign experience.

Today, in accordance with the reform of the civil service, a large number of measures are being taken to improve the civil service. For example, a draft Federal Law of the Russian Federation dated July 27, 2004 No. 79 is being prepared with changes in terms of remuneration, in accordance with the Decree of the President of the Russian Federation dated May 7, 2012 No. 601, pilot projects are being implemented aimed at testing and introducing into the work of personnel services of federal state bodies of new personnel technologies, etc.

All global changes in the civil service of Russia result, first of all, from the existing problems in the field of labor regulation of civil servants. Firstly, today the motives of individuals have become much more complicated, and the motivation of civil servants has remained at a low level, because simple regulations and job descriptions are no longer enough. Secondly, the level of remuneration in the civil service is much lower compared to the commercial sector. Thirdly, almost the entire reward system is based on seniority. Fourthly, the theoretical basis for improving the motivations of civil servants is very poor: there are no comprehensive studies, all aspects of this topic are poorly studied through the prism of public service. Fifthly, work in state bodies has become unprestigious, there is an outflow of highly qualified personnel aged 30-50 to the commercial sector, and young people do not want to go to the civil service due to low wages. Sixth, the civil service of the Russian Federation has already undergone many changes, which for the most part were unsystematic, and now there is a need for large, comprehensive changes for many years to come, which will solve all of the above problems. These problems can be solved, among other things, by understanding the characteristics of the motivation of the work of civil servants, applying the experience of the commercial sector and focusing on experience. foreign countries who have succeeded in improving motivation in the public service.

Thus, it can be judged that the improvement of the system of labor motivation of civil servants is very relevant today and permeates the entire range of measures to improve the civil service in the Russian Federation.

The subject of this study, obviously, is the entire system of labor motivation of civil servants.

The object of research can be called legal, as well as socio-economic relations that are formed in the process of functioning and improving the system of motivation of civil servants.

The purpose of this work is to describe and analyze the system of labor motivation of civil servants today.

In accordance with the goal, the author faces the following tasks: to give the concept of motivation, to describe the main elements of the process of motivating an employee in an organization, to characterize the main theories of motivation and their application in management practice, to give a description of the labor motivation system precisely from the side of the civil service, to analyze its state on the current period, to identify the main problems of this system and suggest ways to solve them.

The structure of this work includes three chapters. The first chapter will present the main theoretical aspects, their applicability in the practice of personnel management in the civil service. The second chapter will describe the system of motivation of civil servants in the Russian Federation and the main motives that encourage people to go to public service. The last chapter will identify the main problems of the existing system of incentives for civil servants, show how these problems are being solved now and what measures are being taken for this, as well as how these problems can be solved in the future using new personnel technologies and the experience of foreign countries.

The methodology for researching this topic includes: analysis of the literature related to the study of motivation problems, analysis of the regulatory framework of the Russian Federation on this issue, situational and systematic approach, the use of a logical, comparative, structural and functional analysis of sources, as well as a secondary analysis of already conducted sociological research.

The hypothesis of this study is that it is necessary to study the motives of civil servants, balance material and non-material incentives, and use the experience of developed foreign countries.

Chapter 1. Theoretical aspects of employee motivation

To understand and clearly define what motivations are, you need to consider theory. This chapter will discuss the concept of motivation, related terms, concepts, and briefly describe the main motivational theories that are more applicable to the motivation system in public civil service bodies.

1 general characteristics motivation process

A motive is any object, tangible or intangible, the achievement of which is the meaning of activity.

In the most general form, a person's motivation for activity is understood as a set of driving forces that encourage a person to carry out certain actions with the use of certain efforts in order to achieve personal and organizational goals. These forces are outside and inside a person and make him consciously or unconsciously perform certain actions. In an organizational context, motivation is such a function of management, which consists in a long-term impact on employees, on their values and guidelines and the formation of a certain motivational core in them, which allows them to receive returns from employees in the form of their labor activity. Motivation affects the degree of application of efforts, efforts, perseverance, conscientiousness by a person in work, as well as the direction of the work itself.

In general, motivation is a complex phenomenon. An effective motivation system in an organization can not only encourage employees to purposeful activities, but also determine an adequate policy of the organization, development prospects for the organization, help form the foundations of hierarchical and corporate relations, etc. Thus, the concept of motivation deserves special attention.

There are several classifications of motivation. Motivation can be external, i.e. due to external circumstances, and internal, i.e. originated within the person. Sometimes internal motivation is called a motive, external motivation is called a stimulus. It is noteworthy that on the basis of internal motivation (which does not depend on external goals), employees approach tasks more responsibly, conscientiously and diligently, and also learn faster. Motivation can be positive, i.e. based on positive incentives (salary, bonuses, thanks) and negative, based on negative incentives (fines, demotions), when it is based on negative incentives. Also, motivation can be stable when a person needs something so much that it is enough to stimulate his actions once, and it can be unstable when the activity requires constant stimulation. Moreover, motivation can be material (for example, the desire for income or a higher standard of living) and intangible (the desire for career growth or respect among colleagues). Particular attention should be paid to the fact that the opposite types of motivation do not have clear boundaries and do not act in turn, because. often performing a certain task, an employee can be guided, for example, by both internal motives and external incentives, or material and non-material incentives, etc.

In order to motivate a person for something i.e. to manage it, this person must have some needs (for food, money, housing, respect, etc.) that can be satisfied by performing certain actions. The needs themselves are primary and secondary. Primary needs are physiological and innate, such as the needs for food, sleep, and breathing. Secondary needs are acquired in the course of human life, they are of a psychological nature: communication, respect, power, self-realization, etc.

Thus, when a person feels a lack of something, he has a need. When a person has a need, he can be induced to perform certain actions. Motivation is the behavioral outcome of a specific need that is focused on achieving a specific goal. When a person reaches the goal, this model of behavior (the law of effect) is strengthened in him. Also, when a person has a need for something, his goal is to satisfy this need. Goal setting is the conscious setting of goals by an individual (short-term and long-term).

However, employee motivation through needs has its own “pitfalls”. An organization cannot have exactly the same employees with the same needs. Also, a person cannot have one need, there are always many of them. It does not happen that a person is driven by only one motive, employees are always driven by a wide range of different factors (for example, wages, career opportunities and gaining experience). Therefore, in order to motivate the largest possible number of employees, a comprehensive motivation system is needed. It should be borne in mind that the manager needs to frequently resort to the situational approach in order to cope with the above problems.

When an individual performs a particular task, he is rewarded. In an organizational context, the term "reward" has a very broad meaning. Remuneration is everything that a person receives and considers valuable after performing the work. There are two types of reward: internal and external. A person receives an internal reward in the process of the work itself or after its completion. This may be a sense of satisfaction or self-esteem from the work performed. Useful contacts or trivial friendships that arise during the course of a task may also fall into this category. An external employee receives not from work, but from the organization. For example, it can be wages, career growth, symbols of official status (official transport, gratitude, additional benefits), etc.

Unfortunately, there is still an opinion in society that in order to encourage people to do any kind of work, material rewards will be enough. In fact, often material reward as a stimulating factor is not always decisive in the process of stimulating a person. Elton Mayo, who was an American sociologist, researcher of problems of organizational behavior and one of the founders of the school " human relations”, an experiment was conducted in one of the factories in 1923-1924, where material incentives could not reduce the colossal staff turnover of 250%. He found out that the workers of this factory did not have the opportunity to communicate in the process of work and that this work is considered not prestigious. Mayo introduced multiple breaks per day that allowed workers to socialize; staff turnover decreased several times almost instantly. All this suggests that when developing a motivation system, it is not enough to take into account only the amount of wages, it is also necessary to take into account non-material remuneration, and the psychology of employees also plays an important role in this.

Thus, a simple model of motivation can be drawn up. It is a chain of "need-behavior-reward-feedback". A person has a desire to satisfy his need. He behaves in a certain way to satisfy this need (behavior pattern), i.e. performs some work and achieves its goal (satisfying the need). At the end of the work, they will satisfy their need through external or internal rewards. Feedback shows the manager whether the reward is acceptable for the employee or it should be changed by applying other levers of influence on the individual, and also allows you to assess whether the model of behavior adopted by the employee is consistent with the goals and needs of the organization itself. Obviously, knowledge of the theoretical basis of motivation allows managers to achieve more productive work from employees, on the one hand, and satisfy their needs, on the other hand.

“At the same time, the connection between individual forces and human actions is mediated by a very complex system of interactions, as a result of which different people can react completely differently to the same impact from the same forces. Moreover, the behavior of a person, the actions carried out by him, in turn, can also influence his response to influences, as a result of which both the degree of influence of the influence and the direction of behavior caused by this influence can change.

The path to effective management of a person lies through understanding his motivation. Only knowing what motivates a person, what motivates him to activity, what motives underlie his actions, one can try to develop an effective system of forms and methods of managing a person. To do this, it is necessary to know how certain motives arise or are caused, how and in what ways motives can be put into action. You also need to know the history. All this will help to create a more complete picture of the possibilities of attracting employees to work, meeting personal and organizational needs.

Early ideas of motivation were the basis for modern theories of motivation. Managers in the past often misjudged the factors that move people, their methods were either ineffective or effective only in the short term. These methods often had a socio-cultural background and were not based on a scientific approach. All this may be suitable for uneducated employees, but with each decade, employees become more educated and less dependent on cultural factors, so the importance of a scientific approach is constantly increasing.

One of the first methods of motivating people was the “carrot and stick” method, used even before the concept of motivation itself appeared. For the fulfillment of the task, the person was promised mountains of gold, and for the failure he was punished. Obviously, there are not enough mountains of gold for everyone, so most people received only what literally allowed them to live another day. People barely made ends meet, and the remuneration was very small, but they were ready to work even for meager pennies.

At the beginning of the 20th century, the situation of workers was just as deplorable, and the “carrot and stick” method of motivation remained. The first to understand this was W. Taylor (School of Scientific Management). He increased the effectiveness of the "carrot and stick" method by determining the daily output and allowances for overfulfillment. Further, W. Taylor pointed out that it is necessary to select employees on the basis of evidence-based criteria, a system of professional selection and advanced training through professional retraining is needed. He revealed that employees and management need to cooperate for the good of the organization, their responsibilities must be distributed and delineated clearly and fairly. Taylorism showed that work schedules and calendar plans are also necessary, that discipline, clear regulations, a system of rewards and punishments, etc. are important in any organization. G. Gant wrote that wages should be specified in the contract and depend on the time of work.

Further, Mayo showed that motivation "in the old fashioned way" in the modern world is beginning to lose its relevance, that psychological and non-material motivation is important. Mayo was one of the scientists who conducted the Horton Experiment to investigate the influence of objective factors (lighting, pay, breaks) on labor productivity in the Chicago suburb of Hawthorne. This experiment allowed us to draw some conclusions. For example, it can be very difficult to evaluate staff when employees are aware of the evaluation process, because they begin to change their behavior if they know that they are being observed. It was also concluded that worker productivity is influenced by social relationships and group behavior. However, the Horton experiment did not help create any theory of motivation, but rather complicated the process.

As you can see, the process of motivation is rather complicated and not always unambiguous. In the second and third parts of this chapter, two large groups of theories of motivation will be considered, their advantages and disadvantages, as well as their application in the practice of personnel management.

So, today there are a large number of classifications of motivation theories. However, at present, these theories are usually divided into substantive and procedural. Content theories of motivation are based on the description of the needs that induce people to act, to determine the scope and content of their work. The most famous of these theories are Maslow's Pyramid of Needs, McClelland's theory and Herzberg's. Process theories at the forefront consider the process of the emergence of a particular type of behavior that directs, supports and stops it. The foundations of this group of theories are the theory of justice, the theory of expectations and the theory of Porter-Lawler. There is also a group of recent theories of motivation that take into account a variety of factors, these theories will be briefly described in part 3 of this chapter.

Pyramid of Needs

Behaviorist A. Maslow developed a hierarchy of needs, which schematically represent a pyramid.

These needs, which motivate a person to take certain actions, are divided into several groups. At the base of the pyramid are physiological needs - the needs for food, water, sleep, rest, housing, etc. Next come the need for security - the need for protection from physical and psychological abuse. Social needs (needs for belonging) - the needs for belonging to a certain social group, for communication, for love and support. Esteem needs include both peer respect and self-respect, as well as recognition of achievement and competence. The needs for self-realization at the top of the pyramid are the needs for self-expression, self-actualization, growth as a person.

Initially, human behavior is influenced by the lower level of needs, and then by higher levels. That is, before motivating a person with self-realization, it is necessary, for example, to satisfy his needs for respect. This pyramid should be considered on the principle that human needs increase over time, from level to level. However, it is worth paying attention to the fact that these needs are not strictly delimited, this is only an approximate and most general order. It happens, for example, that it is much more important for a person to satisfy the need for respect than the need for love. Also, to move to the next level of needs, it is not at all necessary to completely satisfy all the needs of the previous level.

The first and obvious conclusion that can be drawn is that the employee's salary must satisfy at least his physiological needs. Second, employees have a huge range of needs that need to be met, through which they can be manipulated and spurred into action. Third, if material incentives are not enough, then you can use, for example, promotion, social interaction or empowerment of employees. Fourth, it must be borne in mind that the longer a person works in an organization, the less effective it is for him to satisfy various levels of needs. Fifth, the need for self-expression is constantly increasing.

However, this theory has been criticized. For example, it does not take into account the individual characteristics of each employee, again, it is not necessary to fully satisfy the need to move to a higher level in the pyramid, the element of chance is not taken into account. Thus, an employee of the personnel service or the head of an organization must not only be able to determine the needs of employees, but also be able to predict them.

ERG Motivation Theory

Yale University psychologist Alderfer also developed the content theory of ERG motivation.

He believed that human needs consistently consist of the following groups: the need for existence (physiological and the need for security), the need for connections (communication, friendship, belonging, love), the need for growth (involvement, self-expression).

However, unlike the previous theory, the movement here can be both from the bottom up and from the top down. Moving up is a process of satisfying a need, and moving down is a process of frustration.

Thus, if a higher-level need is not satisfied, then the employee focuses all his attention on meeting the needs of a lower level. For the manager, here you can observe both positive and negative sides. For example, he should try not to let his employees get frustrated, but he can also "occupy" them with the satisfaction of other needs, in case it is impossible to satisfy any needs.

The theory of acquired needs

American psychologist D. McClelland, known for his research in the field of achievement motivation, developed the theory of acquired needs.

He believed that people in an organization have three types of needs: the need for power, success, and belonging. The need for power is the desire to influence other people, they are usually trained to occupy leadership positions. The need for success is not satisfied by success itself, but by the means of achieving it, by bringing the work to the end. The need for involvement is an interest in connections, communication, and mutual assistance.

What useful conclusion can be drawn here? People with a need for power (confident and with organizational skills who seek to solve problems and not satisfy their vanity) need to be promoted, interested in the goals of the company and developing the policy of the organization, and expand its powers. People with a need for success (those who seek moderate risk, are responsible and proactive) need to be involved in solving complex and important tasks, finding solutions to problems, and encouraging them to achieve results. People with a need for connections (sociable, friendly, able to capture the public and resolve various kinds of conflicts) should not be limited in social contacts, you need to have conversations with them, give them the opportunity to hold meetings and work in a team, etc.

This theory does not show how lower level needs can be met, which may be important for developing countries. It is difficult to use in practice.

Two factor theory

The social psychologist F. Gerberg, who studies the problems of labor and the activities of companies, proposed another meaningful theory of motivation.

He identified two groups of needs. The first is hygienic, they do not directly motivate to work, but they also need to be satisfied, otherwise dissatisfaction with work appears. The second group is directly motivators, they are associated with the nature and essence of the work. Hygiene factors include company policy, working conditions, earnings, interpersonal relationships, the degree of control of the work process. Motivators include success, career growth, recognition of progress in work, responsibility, development of creative and business potential.

When an employee feels a lack of hygiene factors, he becomes dissatisfied with his work. The lack of motivational factors does not lead to dissatisfaction at work, however, their presence has a positive effect on the efficiency and productivity of employees.

Thus, managers need to ensure not only the presence of hygiene factors, but also the presence of a group of motivators. To do this, it is possible to carry out “labor enrichment” programs that allow the performer to feel the importance and responsibility of the task he is performing, to feel independent and important. Such programs help eliminate Negative consequences labor, for example, overwork, decreased interest in work. The manager should also compile the most comprehensive list of hygiene and motivating factors applicable to the situation and the organization.

There are several types of "enrichment" of labor. The establishment of participatory management is a technology that allows increasing the degree of participation of ordinary employees in making managerial decisions. Creation of autonomous working groups - in this case, the members of the groups are endowed with great powers and great responsibility for the results of the team as a whole. Expansion of duties and responsibilities can help both increase the workload of staff and diversify the work performed. Rotation - contributes to a more diverse nature of activities and the acquisition of more different skills. Flexible work schedule - free choice of the start and end of the working day, which sets the total workload in hours per week. Professional movement - a situation where a person combines work in different workplaces ( internal combination), positions, departments or organizations, this again allows him to expand the range of his knowledge and skills.

Unfortunately, this theory also has drawbacks. The study was built on the subjective feelings of employees. In practice, there is no close correlation between job satisfaction and individual worker productivity. Again, the individual characteristics and needs of people are not taken into account.

Having described this group of theories, we can conclude that human needs are so diverse that they can be classified in completely different ways. This gives managers a large field of activity in relation to the development of employee motivation systems, and also allows them to identify certain patterns of action in relation to certain employees, but at the same time requires the manager to be able to apply these theories in practice, avoiding their shortcomings.

These theories do not consider the process of motivation itself. This will be discussed in the next part of this chapter.

3 Process theories of motivation

Expectancy Theory

An American researcher in the field of motivation theory, V. Vroom, developed a procedural theory of motivation called the “expectation theory”.

He described the impact of labor costs and the expectation of a certain result from labor. Expectation (in this context) is an employee's assessment of the likelihood of an event. Thus, one or another chosen model of behavior will either lead to the achievement of the desired or not. In other words, this theory describes how much a person wants to receive and how much it is possible for him.

This theory describes the chain "effort-results-reward-valence". In connection with the expectation between labor costs and performance results, we can say the following: if people do not feel a direct connection between these two “links” (due to poor preparation, incorrect goal setting, incorrect self-assessment of employees), then their motivation will weaken. With regard to expectations between results and reward, a person can expect a certain reward (remuneration, benefits, privileges) for the results he has achieved. Valence is the degree of satisfaction with something; because If the results of work performance are necessary, efforts and needs are always different, then the valency of work performance and reward for it will differ for everyone. For example, if, based on the results of the task, the employee was not promoted, but was given a regular salary, then the valency of this remuneration will be low. It was found that if the value of any of the listed parameters is low, then the entire system of employee motivation has every chance of becoming ineffective.

This theory shows that people, based on the information available to them about possible rewards (both external and internal), can make one or another choice regarding their efforts, i.e. a person focuses on the future and makes various forecasts.

This theory is very useful for management. First, there are different ways to increase the motivation of employees, you need to match the reward and the needs of the employee. Secondly, it is necessary to develop such a policy of the organization, in which the criteria for the success of the activity will be obvious, the relationship between the results achieved and the amount of remuneration of the employee, as well as the powers delegated to employees will be sufficient to perform certain work.

However, this theory does not take into account different types of personality and organization. There is also an opinion that the technical, conceptual and methodological foundations of motivation in this theory are poorly described and developed.

psychological contract

In connection with this theory, it is appropriate to mention the psychological contract of E. Schein (American psychologist, founder of Organizational Psychology), since. not only does the employee have certain expectations (rewards), but the management of the organization also has their own considerations about him (contribution to work, performance). This whole set of expectations is a psychological contract. The psychological contract does not exist explicitly, the parties may not even be aware of the existence of some of their expectations.

If this contract is perceived differently by the parties, then conflicts are inevitable, and, consequently, a decrease in employee motivation, i.e. necessary condition is the same interpretation of the contract by both the employee and the organization. It must also be remembered that the expectations of all parties change over time, so the contract itself changes.

Justice theory

Justice theory was developed in 1963 by J.S. Adams, a psychologist who studied behavior and work environments.

In his theory, he points out that a person compares his remuneration not with his own expectations, but with the remuneration of other people in similar positions in the organization. The employee evaluates the labor contribution of himself and others on the basis of subjective ideas. Moreover, the employee also compares his gender, age, education and position in the organization with other people in a similar position.

Adams described the principle of justice. If an employee receives more / less remuneration than his colleague, he has psychological satisfaction / dissatisfaction. Thus, the manager decides on the need for additional employee motivation.

This theory revealed a very important pattern. If a person is underestimated in the organization, then he begins to perform worse duties assigned to him. If he sees that he is being overestimated, there is a chance that he will continue to strive to show his worth and work more productively.

For a manager, it must be borne in mind here that an employee who is not satisfied with the remuneration will do his job worse and evade it, but at the same time, it must be remembered that the assessment of the fairness of remuneration is often subjective in nature, as people compare themselves, and do not trust this to an independent third party. An employee who considers their assessment of their performance unfair needs to be explained why there is a difference in remuneration and what needs to be done to eliminate this difference. It is also necessary to create a fair, understandable, transparent and clear system of remuneration.

There is one interesting remark about this theory. In order to prevent employees from expressing their dissatisfaction amid wage differences, it is possible to keep employees' earnings secret. However, for the topic of this study, this is not applicable, because public civil servants must declare their income without fail, so they become the property not only of all employees in the state body, but of the public as a whole.

This theory has a number of omissions. Firstly, the assessment of the fairness of remuneration is highly subjective and depends primarily on the personal ambitions of the employee. Secondly, in this theory, remuneration is of a material nature, which is not entirely relevant today, because. Today, non-material incentives play an important role.

Complex Porter-Lawler Model

In 1968, two scientists, Lyman Porter and Edward Lawler, based on two existing expectations theory and equity theory, developed their own unique model of motivation.

This complex theory includes elements of both expectation theory and equity theory. There are five key factors here: effort, perception, result, reward, satisfaction. Effort depends on the value of the reward and on the person's own perception of their efforts. The results achieved depend on three factors: the efforts, abilities of the employee and the employee's assessment of his role. Achieving certain results, a person receives internal and external rewards. If the remuneration is perceived by the employee as fair, then he receives satisfaction with his work and satisfies his needs.

Thus, the more productive the work of the worker is, the more he will receive satisfaction from the work done, the greater will be his productivity in the future. Other theories of motivation describe everything quite the opposite: the work done leads to satisfaction. This theory showed that motivation is a complex phenomenon, one of the most important functions of management and deserves great attention, because. this model combined a lot at once key points motivation process. Moreover, this theory transparently hints that wages are not the only type of remuneration, so a salary increase will only increase motivation under certain conditions.

Despite the importance of this theory, it has some drawbacks. The value of a manager's reward is very difficult to determine. And the employee in his ideas about the value and fairness of remuneration, about his abilities and the amount of effort applied is subjective and often overestimates himself.

Theory "X-Y"

American social psychologist Douglas McGregor developed the X-Y theory.

This theory implies two various types of people. Concept X describes a lazy worker: he hates work, tries to avoid it, he needs to be constantly monitored and threatened with certain sanctions, this worker avoids responsibility, he has no selfless thoughts, only the guarantee of work in the future is important for him. For this type of workers, centralized management and distribution of work, constant and total control, strict regulation of behavior, a developed system of sanctions, as well as the absence of broad powers are necessary.

The Y concept describes the opposite type of person. The employee loves to work and work, is capable of self-organization, is interested in the process of work, he is inventive, creative, for him work is a self-evident process. For such employees, a comprehensive reward system should be developed in accordance with the work performed, the authorities in the organization should be decentralized, the manager can only control the result of the activity, but not the process, subordinates should take part in management decisions.

On the one hand, this theory is useful, because showed that workers are not the same by nature and each of them needs a special approach. On the other hand, this theory oversimplifies the view of different workers, because people are by nature much more diverse.

Theory Z

Stanford Business School professor W. Ouchi diversified McGregor's approach in the 1980s.

He developed the "Z" theory. According to this concept, a person does not belong to any of the types described in the previous theory. Depending on the situation, a person can behave like the first or like the second type of worker.

The motivation of such an employee should be based on the values of the “production clan”, when the organization is viewed as one big family. These values, with the help of a system of incentives, develop employee confidence, solidarity, devotion to the organization and the team, common goals, etc. The hallmarks of this type of organization are: long-term hiring, slow promotion, strong job security, building a sense of ownership, trusting relationships between managers and staff, presence of management in the workplace, and fewer levels of management.

This theory puts at the head of collective motivation, as well as increasing the initiative of the employee. However, it again unifies all workers, rather than dividing them into different groups depending on their type.

1.4 Other theories of motivation

Recently, the latest theories of motivation have begun to appear, which take into account the country's transition to a market economy, the degree of competition, changes in the personality of a modern person, etc. Modern approaches to the definition of motivation imply that an employee should be interested in the activities of the organization, he should be involved in decision-making, etc., just then he works better. The following theories are best known: participation in the management of the organization, participation in the formation of the company's profit, participation in ownership.

For this study, only the theory of employee participation in decision-making is of interest. The remaining theories are focused on the profit of the organization, which is a purely economic incentive and cannot be used in the system of motivation in the public civil service.

In Japan in 1962, "quality circles" were invented. At the same time, a small group of workers from one department gathers after hours in an informal setting. They discuss current problems, analyze them and try to work out the best ways to solve them. Thus, participation in management decisions and interest in work increase, and as a result, the motivation of employees.

Modern theories of motivation show that the reasons that motivate a person to act are very diverse. There are also a large number of ways and ways to stimulate employees. The motivation system itself is: identifying the needs of the employee, choosing the method of motivation, implementing the chosen method of motivation, remuneration for the work done, assessing motivation, adjusting motivational incentives.

Despite the fact that theories of motivation differ on different issues, they are not mutually exclusive, they complement each other. Thus, in different situations, a manager can and should be able to assess the situation in order to use one or another theory that is suitable for given circumstances.

At the end of this chapter, we can conclude that motivation is a complex and complex phenomenon, it focuses on many old and fundamental theories, as well as recently introduced new theories of motivation. The motivation system should meet the needs of any level of employees.

In general terms, we can say that an employee is motivated in several cases. He must be free to make his own decisions. He knows well what is expected of him, he understands how his work is evaluated. His contribution to the activities of the organization is encouraged. Creativity, personal development and employee training are also strongly supported. The employee feels his importance in the company, his remuneration is fair and meets his needs. Work for him is a source of positive stimulation. The presence of a positive organizational climate is also an important condition for motivation.

The main factors affecting the work were identified. Material factors include competitive wages, social benefits, bonuses for high performance, the opportunity to be a co-owner of the company (profit sharing). Training and career also affect the degree of employee interest (opportunities for development outside of working hours, advanced training and improvement of work). The work must be interesting, the workload is optimal (including flexible hours), positive workplace relationships are necessary, a sense of the value of the work, a sense of freedom and independence, the work must be a kind of "challenging" to its performer (be exciting). Comfortable working conditions (material and technical base, organizational climate, labor safety) should be provided. The organization itself must set clear goals, provide the necessary standards, have a good image, etc.

Chapter 2. Modern system of motivation of public civil servants

The work motivation of civil servants has not yet been fully studied. It has its own characteristics that distinguish it from motivation in the commercial sector. For example, the mechanism of motivation in public authorities is based primarily on administrative-command incentives, i.e. the activity of civil servants is strictly regulated and, at its core, has a complex system of socio-economic relations between civil servants. The motivation system here is the interaction of administrative and labor standards. “Like any employees, civil servants also pursue the achievement of their goals during their public service, which should be taken into account in personnel policy when motivating them. The labor sphere of the civil service has a number of specific features: in terms of its content, the labor activity of civil servants is aimed at implementing the general national interests(that is, a civil servant does not realize his own interests, but the interests of the state), for the all-round strengthening and development of the social and state system; a high degree of responsibility of officials for decisions made, their implementation, results and consequences; strict normative regulation of management and labor discipline; the use of intellectual as well as creative potential for solving managerial problems. At the same time, the level of remuneration of civil servants is significantly lower than in commercial structures (remuneration of civil servants is carried out from the budget, which imposes some restrictions on its size), and additional social guarantees do not fully compensate for the complexity and significance of their activities.” When applying for a job, a civil servant provides information about income and expenses, which does not happen in the private sector.

The civil service also has a number of features that make it difficult to motivate civil servants. For example, if little depends on an official, he is not tempted to use his powers for personal purposes (a conflict of interest), which, on the one hand, restrains the growth of corruption, and, on the other hand, restrains his interest in work, his career and personal growth, his self-realization, which negatively affects his motivation.

Thus, motivation in the civil service is a much more complex phenomenon than in a commercial firm.

Corruption is a particular problem in the civil service. It manifests itself in the form of bribery, the most dangerous manifestation corruption. All this happens because, firstly, because of the temptation to use their powers of authority. Secondly, because of the low level of material incentives for labor in the civil service. Thirdly, due to the low level professional ethics. Fourth, due to the specific socio-cultural characteristics of Russia. Therefore, the development of an effective motivation system can not only interest a civil servant in work, increase the efficiency of the state apparatus, but reduce the level of corruption.

There are some restrictions associated with public service. First, it is a restriction on receiving income from commercial sources. Civil servants are prohibited from engaging in any activity other than work in a state body, pedagogical activity and other creative activities. Secondly, a civil servant does not have the right to receive gifts from individuals and legal entities. Thirdly, there are restrictions on the use of official powers for personal purposes. Fourth, a civil servant cannot participate in strikes. Fifthly, it is a ban on the joint service of relatives. Sixth, the limitation is the presence of another citizenship. All this imposes many restrictions on the process of motivating civil servants.

It can be concluded that the motivation for the performance of a civil servant is based on official regulations and is built on several principles. Firstly, it is a social orientation, that is, the fulfillment of not personal interests and the interests of commercial persons, but the interests of society and the will of the state. Secondly, this is the fairness of wages, that is, a single system has been established for all civil servants in all state bodies. Thirdly, remuneration is the main material incentive for the activity of a civil servant. The salaries of civil servants should correlate with the level of wages in the commercial sector in a similar position. Civil servants should be provided with conditions for career growth. Sixth, it is necessary to link the amount of remuneration with performance (which is still poorly developed in Russian realities). It is also necessary to compensate for the restrictions imposed on a civil servant by developing social guarantees and benefits.

The first part of this chapter will describe the main motives for entering the civil service, and will conduct a secondary analysis of the survey conducted by the National Research University Higher School of Economics in 2007.

2.1 The main incentives to work for civil servants

motivation work civil servant

Having become acquainted with theories of motivation, it can be assumed that the main factors stimulating the work of civil servants are secondary needs (because the civil service is based on serving the highest interests of the country's population): career growth, striving for power, self-actualization, etc. It can be concluded that, ideally, the primary needs of civil servants should be satisfied at a decent level by a motivation system in order to pay attention only to the satisfaction of a group of secondary needs.

Civil servants in their activities are guided by the performance of official activities, decent wages, the conditions and nature of work. Self-actualization occupies a special place as a guideline for performance - this is a phenomenon when a person wants to feel like a kind of engine of processes in an organization, and not small cogs in a large system.

In order to understand what incentives motivate civil servants, one can refer to a survey conducted by the National Research University Higher School of Economics in 2007. This study was aimed at identifying the main motivating factors of civil servants.

A total of 1,088 employees of 5 federal ministries were surveyed. The structure of the sample can be found in Appendix 1. When studying motivating factors, special attention was paid to value orientations, assessment of the prestige of work, as well as opportunities for further promotion.

The distribution of answers to the question about the goals of working in government bodies helped to identify several features (see Appendix 1). For example, most people go to the civil service to earn a living for themselves. At the same time, however, non-monetary incentives attracted more than 60% of employees.

It was noted the persecution of "mercenary" motives when entering the civil service. It means that they go to the civil service to establish useful connections, gain valuable experience and improve their skills. Basically, this answer was given by young employees of state bodies, which indicates that recently young people have become more pragmatic in choosing a job. At the same time, it was concluded that young people do not consider their earnings sufficient and fair in comparison with wages in commercial structures, i.e. young people do not intend to stay in state structures. All this confirms the observation that the civil service today has become unattractive for potential employees, that the state apparatus is “aging”.

It was also noted that older employees came to the civil service to serve the interests of society and the state, to develop their region. Since civil servants "over 30" make up the bulk of the respondents, the majority of the answers were exactly the same. An interesting fact: this category of civil servants has a clear idea that you can gain experience by increasing the length of service, while young people do not make such an analogy.

Less than half of the respondents aim to satisfy their material needs, but they still have other "mercenary" incentives. In accordance with this, the opinion was refuted that only patriots who are interested in the development of the country always go to the civil service.

The survey data indicate the existing problems in the civil service, in particular, the low level of motivation. The problems of motivation will be described in detail a little later. The second part will describe the main components of labor motivation of civil servants in the Russian Federation and their relationship with the considered theories of motivation.

2 Elements of the system of motivation of civil servants

This study examines the motivation of state civil servants (not military or law enforcement). "State civil service - a type of public service, which is a professional service activity of citizens in the positions of the state civil service to ensure the execution of the powers of federal state bodies, state bodies of the constituent entities of the Russian Federation, persons holding public positions of the Russian Federation, and persons holding public positions of the constituent entities of the Russian Federation Federation." “A civil servant is a citizen of the Russian Federation who has assumed obligations to perform civil service. A civil servant carries out professional service activities in civil service positions in accordance with the act of appointment to a position and with a service contract and receives a financial allowance at the expense of the federal budget or the budget of a constituent entity of the Russian Federation.

Obviously, public service is different from working in a conventional firm. What are the basic principles of the state civil service? Firstly, this is the principle of legality, which implies not only the supremacy of the Constitution of the Russian Federation, federal laws and other regulatory legal acts, but the fact that civil servants in their activities must strictly follow them, and also to some extent be the law. Secondly, this is the democratism of the service, which implies that the activity is in line with the interests of citizens and the state, the general accessibility of the civil service, its publicity, etc. Thirdly, this is professionalism, here the distinguishing feature is the fact that without education one simply cannot get into civil service, managerial and leadership qualities, as well as diligence and discipline, are also required. Fourthly, this is the social and legal protection of employees, it implies the creation of special legal and social conditions for the normal performance of their work by civil servants.

The system of motivation of public civil servants with a clear definition of this concept is not described. However, one can study the Russian regulatory framework, various sociological surveys and conclude that the motivation system consists of the following components (which have a direct impact on the motivation of civil servants): state guarantees, remuneration, career opportunities, certification, rotation, training and responsibility. Competitive selection can have an indirect impact on the motivation of employees. All these elements of the motivation system come from the social and legal status and legal status of a public civil servant, which consists of rights, duties, restrictions, prohibitions, responsibilities, requirements, guarantees and economic security (in general, everything related to public service). The social and legal status of a civil servant is the measures of proper and possible behavior of a civil servant established by the state. This status (which can also be interpreted as the position held, the level of education and remuneration) not only determines the place of a civil servant in the administrative process, but can also satisfy his need for respect, recognition, etc., thus is a strong motivating factor.

The system of motivation of civil servants is complex and complex. Here you can trace the relationship with the Porter-Lawler theory: the complexity and importance of the element of motivation in the management process, as well as the fact that wages are far from the only incentive, are indicated.

State guarantees

State guarantees create normal working conditions, as well as motivate employees to perform their work effectively. They provide legal and social protection of civil servants, a stable staff. Their purpose is to make the civil service more attractive in the eyes of civil servants and potential employees, as well as ordinary citizens.

The main state guarantees include:

equal conditions for remuneration and comparability of assessments of the performance of civil servants;

the right to timely payment in full;

awareness of comfortable working conditions: provision of working space, furniture, appliances, etc.;

normal working hours: normalized working hours, the right to a lunch break, rest, weekends, annual paid leave (35 calendar days for higher and chief positions, 30 calendar days for other positions) and other holidays (vacation without pay no more than 1 year), including for length of service (the sum of days of paid leave and leave for length of service for higher and chief positions is not more than 45 calendar days, for other positions this number should not exceed 40 days), upon dismissal of a civil servant, he is paid all unused vacations;

medical insurance for civil servants and family members;

state social insurance in case of illness or disability during the period of civil service;

payments under obligatory state insurance;

reimbursement of travel expenses;

reimbursement of expenses associated with the relocation of a civil servant and his family in connection with the transfer to another place of work in the public service;

protection of a civil servant and his family from various manifestations of violence, threats, etc. in connection with the performance of their official duties;

state pension provision

housing subsidy.

There are also other state guarantees provided to civil servants in accordance with federal laws. For example, maintaining a job, remuneration during the period of professional retraining, internships and other activities, transport services, as well as a one-time subsidy for the purchase of housing once for the entire period of civil service. Work experience can also be considered a kind of guarantee, because. the higher the seniority, the higher the seniority bonus to the monetary content. There are also incentives for excellent service, compensation for unused vouchers.

Guarantees are a system of positive incentives, because they provide proper working conditions for employees. Ideally, if all conditions for work are created, then the responsibility lies with the employee: what are his skills, abilities, qualities.

This element of the motivation of civil servants corresponds to Mayo's view that non-material motivation is as important as material motivation, and Taylor's view of daily output (normal work).

Salary

The pay of a public civil servant is a more specific incentive. And it is the main means of its material support and stimulation of its activities.

The financial allowance of a civil servant consists of 3 parts: a monthly salary in accordance with the position held, a salary for a class rank and other payments. The official salary is established by Decrees of the President, for individual positions it can establish a single monetary content, which takes into account all payments (for class rank, for length of service, for special working conditions, for working with state secrets), except for bonuses and monthly cash incentives.

Additional payments include:

seniority bonus from 10% to 30% for service from 5 to 15 years;

bonus for special working conditions in the amount of up to 200% of the monthly salary;

bonus for working with state secrets, as well as for working in a body for the protection of state secrets, then he additionally receives a bonus for the length of service in such bodies (with an experience of 1-5 years, the bonus is 10 percent, 5-10 years, then 15 percent, further - 20 percent (this length of service also includes the time of work of these employees in the structural divisions of such bodies, other state authorities, local self-government bodies);

bonuses for especially important and complex tasks;

monthly promotion (from 1 official salary to 14 depending on the position);

lump-sum payment upon granting leave (in the amount of two monthly salaries) and material assistance.

district coefficient (for regions of the Far North and hard-to-reach regions);

Salaries are annually indexed in accordance with the inflation rate in the country. Sufficiently flexible remuneration has been introduced, depending on the effectiveness and efficiency of performance, and the remuneration structure itself has been improved. Now the base salary makes up an insignificant part of the remuneration, a significant share falls on additional payments based on the performance of a civil servant, which stimulates the civil servant to improve the quality of his work.

The system of remuneration of civil servants corresponds to Taylor's view in terms of various allowances (for overfulfillment of daily output). There is also a correspondence between the theory of expectations and the theory of justice, since the remuneration system is transparent, civil servants declare their income (a civil servant knows how much his colleagues get), the employee knows what remuneration he will receive for his efforts. There is also an indirect relationship with the theory of the psychological contract.

Encouragement and awards

Incentives and rewards are an important element of the motivation of civil servants. They allow employees to be motivated to perform their work, to increase loyalty to the executive authority in which they serve. They also have an impact on office discipline. Their application is based on gratitude for an impeccably done job or impeccable performance of official duties.

Rewards and awards are of the following types:

announcement of official gratitude and payment of monetary incentives in accordance with this;

rewarding diploma and the payment of monetary incentives in accordance therewith;

other types of incentives and awards;

payment of a one-time incentive in honor of retirement;

encouragement of the Government or the President of the Russian Federation;

awarding honorary titles;

awarding badges of distinction or orders.

It is noteworthy that this element of the motivation system combines not only material methods, but also non-material ones. Non-material incentives should not be ignored in the civil service, because remuneration and payment of various incentives are made from the federal budget, and it is not rubber, it is limited. Also, people are pleased when they are valued not only from the material side, when they are tritely respected, for example.

This element of motivation of civil servants, as well as providing state guarantees, corresponds to Mayo's view that non-material motivation is just as important as material motivation.

In general, state guarantees, remuneration, incentives and rewards correspond to substantive theories of motivation, they have a strong impact on various groups of employee motives.

Competitive selection

Competitive selection has an indirect effect on motivation; it can rather guarantee that a qualified and responsible employee will come to the civil service. This is the main way to fill positions in the civil service. A competition for filling a civil service position is a selection from among the candidates that best meets the requirements of the position (competition conditions). There are the following selection principles: professionalism and competence, the principle of equal access of citizens to civil service

Competitive selection is not applicable when appointing to the categories of "leaders" and "assistants (advisors)", when concluding a fixed-term service contract, when appointing a citizen who is in the personnel reserve formed on a competitive basis to a civil service position.

Passage of the civil service and career opportunities

The passage of public service is the dynamics of the official position of a civil servant, his career growth or decline. This process is also a motive for entering and passing the civil service or for improving the performance of the employee. The main elements of the civil service are admission to the civil service, the period of adaptation, certification, transfer to another position, assignment of ranks, promotion, prosecution, termination of service. In this case, an employee is motivated to work, promotion or demotion, rewards and responsibility, as well as certification to some extent.

Career promotion is one of the most effective non-material incentives, because. as a result, material incentives increase, the need for involvement in the adoption of more important decisions is satisfied, interest in the activity increases, and hence the efficiency of the employee.

Career growth is a non-material incentive in accordance with meaningful theories of motivation, and is also one of the ways to "enrich labor".

From the point of view of motivation, the rotation increases the employee's knowledge base, in this way it is possible to increase the employee's interest in his work activities. The rotation is carried out in order to increase the efficiency of the civil service, helps in combating corruption. It is carried out within the same group of positions, taking into account the level of qualifications, education and length of service in the civil service.

Positions in the order of rotation are replaced for a period of 3 to 5 years.

A civil servant has the right to refuse to fill a position in rotation if he has a disease, according to which the proposed position is contraindicated, as well as if it is impossible to live in another place in accordance with the proposed position.

Rotation is also one of the ways to "enrich labor".

Certification

Certification is the process of determining whether an employee meets the requirements for him in accordance with his position. It allows you to increase the sense of responsibility for the work performed, as well as to get into the personnel reserve, which is a stimulating factor.

It is held every three years, maybe extraordinary. Certification is carried out earlier than the specified period for two reasons: there was a decision to reduce staff or change working conditions (for example, the transition to electronic document management).

Certification is not subject to employees of the category "leaders" and "assistants" ("adviser"), if a fixed-term service contract has been concluded with them, who have worked in their positions in the civil service for less than one year, employees who have reached the age of 60, pregnant women who are on leave for pregnancy and childbirth and on parental leave until he reaches the age of three years (their certification of these civil servants is possible no earlier than one year after leaving the leave), within a year from the date of passing the qualification exam.

Based on the results of certification, one of the decisions can be made: a person needs professional retraining, inclusion in the reserve to fill a vacant higher position, or it can simply be confirmation of compliance with the position held. A month after the certification, a regulatory legal act is issued, which may indicate which employees are demoted, which go to professional retraining, which are to be included in the personnel reserve. If a civil servant refuses to go for advanced training, then a representative of the employer's service may release him from his position and dismiss him from public service.

Another form of personnel assessment is the qualification exam. It is handed over by civil servants who indefinitely occupied positions of the category "leaders", "specialists", "providing specialists". The exam is held when the question arises of assigning a class rank to a civil servant. It is noteworthy that an extraordinary qualification exam can be held only at the initiative of an employee.

This exam is also a kind of incentive to move up the career ladder. For example, if a civil servant passes an exam, he is assigned a class rank, he starts earning more, his status rises.

Education

The process of promotion is closely related to learning. If promotion is a motivating factor, then learning is indirectly related to motivation too. Thus, the better a person is educated, the more likely they are to be promoted. Here you can also judge the satisfaction of the need for self-realization.

There are two types of training - at the place of work, outside the place of work.

Despite the great effectiveness of training in a special place, this method is associated with a large amount of time and financial costs. This type of training takes the employee away from work. But at the same time, this method most satisfies the needs of employees in personal and professional growth.

On-the-job training can take the form of job complication and rotation. Also, this method is known to be less expensive.

Training corresponds to the satisfaction of secondary needs according to various substantive theories of motivation, and can also act as one of the ways to "enrich" labor.

Responsibility

The motivation of civil servants, like any other modern system of motivation, is a system consisting of positive and negative incentives. Responsibility is just a negative incentive. This incentive is expressed in the application of various kinds of sanctions established by law for committing misconduct and committing crimes in the course of public civil service. So far, positive incentives to work have been mainly described, which can be applied, for example, to a type “y” person in McGregor's theory of motivation.

There are four types of responsibility.

Disciplinary responsibility. It is expressed in the application of a disciplinary sanction for violating the rules of civil service. This may be a remark, a reprimand, a severe reprimand, a warning about incomplete compliance, dismissal from a position and dismissal from public service. The employee may also be required to provide a written explanation, the refusal to provide which only worsens the situation. When determining sanctions, the degree of guilt and the severity of the offense are established. A disciplinary sanction is applied within a month from the date of discovery of the offense. A distinctive feature of disciplinary sanctions is that if within a year after the application of the disciplinary sanction there were no new disciplinary sanctions, then the first sanction "burns out". If, upon dismissal of a civil servant from his position due to a disciplinary sanction, he is subject to inclusion in the personnel reserve on the basis of a general competition. This type of responsibility equalizes civil servants before the law, on the one hand, and also takes into account the specifics of their activities, on the other. To date, due to the decline in the motivation of civil servants (work through the sleeves, delays in the execution of instructions), to disciplinary responsibility resorted to more often, however, despite the application of penalties, the rules continue to be violated (corruption and abuse flourish). All this does not contribute to the creation of a positive image of the state apparatus.

Administrative responsibility. Its civil servant bears on a general basis with compliance with the Code of Administrative Offenses of the Russian Federation. This type of liability occurs in connection with administrative offenses. Administrative responsibility can be established by all authorities, and not only by the body where the civil servant is registered. The imposition of this responsibility is carried out by special bodies, incl. courts. Its onset does not depend on the degree of harm, but only on the very fact of the violation, it is more formal. It can be applied to entire organizations, not just to an individual. There are the following measures of administrative coercion: administrative preventive, administrative suppression and administrative penalty. The Code of Administrative Offenses regulates in detail the process of administrative responsibility, the rights of the injured party and the rights of the violator.

Material liability. Comes for causing material damage to the state or legal entity. Along with material compensation for damage, in the event of liability of this kind, a disciplinary sanction is also imposed on a civil servant. It comes in an administrative order, or by a court decision. Unfortunately, no rules have been developed for the application of such responsibility specifically to civil servants, so it is regulated by labor legislation.

Criminal liability for civil servants occurs on a general basis.

As can be seen, the system of negative incentives in the form of various types of responsibility is highly developed. It is an educational and preventive element of the behavior of civil servants.

The system of negative incentives corresponds to the sanctioning of the type "x" person in McGregor's theory. But there are no clear types of people "x" and "y", so in real life, positive incentives are used along with negative ones.

Having considered the main aspects of the system of labor motivation of civil servants, it is possible to analyze them and identify the problems of motivation of civil servants. They will be described in the next part of this chapter.

3 Main problems of motivation of public civil servants

Today, there are many problems in the field of labor regulation of civil servants. All of them not only reduce the motivation for the work of civil servants, who already often work poorly and in violation of deadlines, but also reduce the attractiveness of the civil service for potential candidates. As a result, the effectiveness of the state apparatus decreases, the effectiveness of existing and introduced political measures in the country decreases. And Russia itself does not look presentable against this background. Obviously, if urgent measures are not taken, then the motivation of personnel in the public service will remain unpromising foundations.

Firstly, today the motives of individuals have become much more complicated due to the development of new personnel technologies and society as a whole, and the motivation of the work of civil servants has remained at a rather low level, because simple rigid and non-reflexive regulations and job descriptions are no longer enough.

Secondly, the level of remuneration in the civil service is not high enough compared to the commercial sector. Especially such a picture is observed after conducting various surveys. Many civil servants believe they can find higher paying jobs in the commercial sector. There is an outflow of highly qualified personnel aged 30-50 to the commercial sector, and young people do not want to go to the civil service. People of the “old school” remain in the public service, while a portion of fresh views on modern problems of public administration is needed. In parallel, there is a decrease in the level of professionalism, in other words, there has been a washout of qualifications in the civil service. All this also does not make the civil service attractive, especially for young qualified specialists who have recently become more amenable to monetary incentives and go to commercial firms that are more active in motivating their staff.

Thirdly, almost the entire system of incentives (remuneration) is based on length of service. It is necessary to implement payment in big share incentive payments (payment based on performance), which affect the results achieved by civil servants. These elements of the monetary content will significantly improve the system of labor motivation of civil servants.

Fourthly, such a seemingly powerful system of state guarantees in the public service is not provided to everyone. Only civil servants occupying high positions, who are very few, safely use all these guarantees: they are provided with vehicles, housing, and various types of insurance provided by law.

Fifth, there are no specific mechanisms for the implementation of equal access of citizens to this process for the competitive filling of civil service positions, the procedure itself is not clearly spelled out.

Sixth, the theoretical basis for improving the motivations of civil servants in Russia is very poor: there are no comprehensive studies, all aspects of this topic are poorly studied through the prism of public service. It is necessary to conduct "field" research, establish various patterns, as well as appeal to foreign experience. All this will enrich the theoretical understanding of motivation in the civil service. It is also necessary to test the principles of the personnel policy of commercial organizations in state bodies.

Seventhly, the civil service of the Russian Federation has already undergone many changes, which for the most part were of an unsystematic nature, and now there is a need for a large, comprehensive change for many years, which will solve all of the above problems, because the civil service system is already " tired” of endless small changes, when they are introduced often inconsistently. Moreover, the Russian apparatus is not "accustomed" to serve the state and civil interests.

Eighth, complicating the process of improving motivation is the fact that the legislative framework in Russia is quite cumbersome, it needs to be lightened, it is necessary to “sort out” the powers of various state structures. Emphasis should be placed on the description of procedural rules

One can give a description of a Russian official given by N. L. Zakharov. They write that today’s civil servant has the following behavioral qualities: “lack of rational goal-setting, low technological discipline, ... impulsiveness, low initiative, which is a consequence of the influence of professional requirements - following the rules, rationally emotional motivation, syncretism ethics of persuasion and ethics of responsibility...

Having realized the problems of motivation, it is necessary to emphasize the importance of the priority of professional qualities (the main principle) in the civil service, the principle of compensable restrictions imposed by law on civil servants, it is important to create such a system of remuneration so that direct cash payments absolutely dominate over “shadow” payments, benefits and privileges, it is necessary to develop the loyalty of civil servants (both existing and potential) to the state apparatus and ethics in the performance of official activities.

Solving motivational problems in the civil service will allow understanding the characteristics of the motivation of civil servants, applying the experience of the commercial sector and focusing on the experience of foreign countries that have succeeded in improving motivation in the civil service. Ways to improve the motivation of civil servants will be discussed in the next chapter.

Chapter 3. Ways to improve the motivation of civil servants

This chapter will describe various ways to increase the motivation of employees.

The first part will consider some measures to increase the motivation of civil servants from the foreign experience of developed and developing countries. All of them are quite interesting and can be applied in the personnel department of the public service of the Russian Federation.

As you know, now the Ministry of Labor and Social Protection of the Russian Federation is developing a lot of measures and methods that in one way or another affect the motivation of civil servants. These methods are in the process of being developed and improved, but in the next few years it has every chance of becoming part of the state civil service. These measures will be described in the second part of this chapter.

1 Analysis of foreign experience

This part will present successful ways to stimulate civil servants in different countries, which would be useful to use in Russian practice to improve the system of motivation of civil servants.

France uses some interesting ways to incentivize civil servants. For example, there is an annual appraisal interview between subordinates and the manager, at this interview the performance of civil servants is assessed in a more informal setting. There is also a comprehensive assessment of the activities of a civil servant (similar to the one that is being developed in the pilot project for a comprehensive assessment) with scoring based on the results of its implementation. Moreover, in this country there is a practice of the presence of a collegiate body - the jury - at the competitive selection for filling positions in the civil service, which makes this process more efficient. Also, in government bodies, especially in senior government positions, informal interaction is very developed, which also makes it possible to increase the motivation of employees.

In Germany, to stimulate talented specialists, the system of “two directions in a career” is used: either job growth or work in the same position with a gradual increase in wages. Also, for a variety of work activities in Germany, you can combine work in a government body and political activity. Moreover, in Germany, a civil servant is guaranteed a lifetime job in the civil service, the same situation is observed in Turkey. A distinctive feature of the German civil service is very large probationary periods replacement of positions, which allows attracting highly qualified and interested personnel. The areas of responsibility of a civil servant in Germany are quite high. For example, if during non-working hours the activity of a civil servant denigrates the department in which he works, liability still arises.

The UK has a remuneration system based on the division of civil servants into three separate groups. These are the least effective, effective and very effective. This method involves the constant evaluation of the work of civil servants.

The United States presents another model for motivating civil service employees. The country has a practice of providing highly paid positions (sometimes even higher paid than their work in the state apparatus) in the private sector when a high-ranking civil servant retires. Also in the United States, an ethical code of conduct for civil servants has been worked out in detail, which needs to be done in Russia, as mentioned above.

In the public service in the UK and the US, any form of collective interaction is highly valued and encouraged in solving any problems in the public civil service. It is believed that this contributes to more involvement in the work and strengthening of ties in the organization.

In China, certification of civil servants is complex (it covers a large number of disciplines) and has serious consequences. If, at the end of the attestation, he showed himself to be inappropriate for his position, then a penalty may be applied to him. In the country, all procedures for passing the state civil service are clearly regulated. Also, the ethics of civil servants has recently been increasing in the country: a ban on the influence of family ties, a ban on entrepreneurial activity, etc.

In Japan, the civil service is very elitist. It is considered very prestigious in the country to work in a state body; only very highly qualified personnel aspire to the civil service, because. there is a strict selection. The same situation is observed in China, India and Singapore. In Japan, due to this, a high efficiency of the state apparatus has been achieved, and the number of civil servants is very small.

Many countries in Europe, North and South America use the model distance learning through the exchange of educational resources, which implies the accelerated development of knowledge, training on the basis of one university, as well as the cooperation of several educational institutions. This method of education is cheaper, and also allows employees not to be distracted from the performance of their direct duties.

The Scandinavian countries use such a method of motivation as the interaction of civil society institutions with authorities, the formation of a control function, and the involvement of citizens in the management of administrative processes. This method helps to increase the prestige of the civil service and the attractiveness of the state apparatus.

In European countries, to increase the motivation of civil servants, market mechanisms are being introduced into public administration, which, as you know, are more capable of satisfying the needs of employees. These mechanisms are flexible, decentralized and independent. Moreover, these countries place great emphasis on improving organizational culture.

Much attention is paid to the development of "electronic government". This type of electronic interaction speeds up document flow, simplifies many government processes and makes the work process more efficient. All this leads to greater efficiency of the state apparatus, improvement of public services, satisfaction of citizens, development of an updated model of the civil service, simplification and facilitation of the work of civil servants (creation of comfortable working conditions), so civil servants do not spend much time on performing procedures such as sending correspondence . Moreover, the quality of management decisions and the speed of their implementation are improving. For example, in Japan there is an electronic registration of the population, which greatly simplifies the life of the state apparatus. In European countries, there is a system of secure electronic exchange of documents constituting state secrets.

It can be easily seen that there are many ways to develop a motivation system in the civil service.

It can be added that holding personal conversations with employees who stand out from the rest, either in a positive or negative way. Unfortunately, at the present moment in the Russian public administration this element is poorly developed. The ineffective use of this tool as a means of feedback is due to its formality, the principle of "call on the carpet" and the search for the guilty, instead of focusing on improving performance indicators and communicating corporate goals and priorities.

It is necessary to change the attitude towards personal conversations. If they take place in a calm and relaxing environment, then their effectiveness can be very high. First, they improve communication, both forward and backward, between the employee and management. Often, these conversations can solve a lot of problems. The employee will feel that she is not indifferent to the management, his motivation will increase.

2 Measures taken to improve the system of motivation in the civil service

To date, the Ministry of Labor and Social Protection of the Russian Federation, in terms of reforming the civil service, is developing pilot projects aimed at testing and introducing modern personnel technologies into the work of personnel services of federal state bodies (some of them are described in the previous part). The basis for these pilot projects is Decree of the President of the Russian Federation dated May 7, 2012 No. 601 “On the main directions for improving the public administration system”.

In total, 4 pilot projects are being developed aimed at:

acceptance in electronic form of documents for participation in the competition for filling a vacant position in the civil service and conducting an initial qualification selection of candidates in a remote format with identification of the identity of the citizen who submitted the documents and completed the qualification test (hereinafter referred to as the pilot project on the portal);

formation of a mentoring institution that promotes the career growth of civil servants (hereinafter referred to as the pilot project on mentoring);

establishing qualification requirements for the profile of education, knowledge and skills (hereinafter referred to as the pilot project on qualification requirements);

introduction of a system of comprehensive assessment of the activities of civil servants, including public assessment of individual positions of the civil service (hereinafter referred to as the pilot project for a comprehensive assessment).

As a result of the development of new personnel technologies, the personnel departments of federal state bodies will receive flexible and objective personnel selection tools, develop a qualification guide on the necessary skills to replace the state civil service, will be able to more timely rotate, encourage and develop civil servants, and will also increase their influence on the quality the work of the body as a whole.

Portal pilot project

The pilot project on the portal is "testing the technology and developing proposals for organizing and implementing the acceptance by personnel services of federal state bodies in electronic form of documents and conducting the primary qualification selection of candidates in a remote format using the functional and technological capabilities of the federal state information system"Federal portal of managerial personnel" with the identification of the identity of the citizen who submitted the documents and completed the test.

All this will take place on the website of the Federal portal of managerial personnel in the "personal account". This portal will ensure the formation of a full-fledged information resource on the civil service, a complete database of vacancies and personnel monitoring will be formed on our website, and will ensure quick interaction between the personnel service and a potential employee. On this portal, there will be free access to test tests to test knowledge about the civil service, it will be used for primary qualification selection. In other words, the portal will become a full-fledged tool for automating many personnel procedures.

What is this selection? The candidate is asked questions on knowledge of the basics of civil service legislation and special questions related to the activities of a particular public authority. If the test is passed successfully, the candidate is invited for an interview.

However, this pilot project has a serious drawback: the impossibility of monitoring the passage of testing by the candidate himself, without the help of outsiders.

This pilot project has an indirect impact on employee motivation. It will help simplify the personnel selection procedure and make it closer to the commercial sector. The image of the civil service will improve and its attractiveness will increase, since the candidate will not have to spend a lot of time on the initial selection procedure.

Pilot mentoring project

This pilot project is aimed at developing proposals for the development of a mentoring institution in the civil service, which will contribute to the career development of civil servants.

Mentoring is a form of ensuring the professional formation and development of civil servants of the Russian Federation, as well as citizens included in the personnel reserve, aimed at the professional performance of their duties.

Thus, mentoring can help solve the following tasks: optimizing the process of formation and development of professional knowledge, skills, abilities of civil servants, accelerating the process of professional formation and development, assisting in adapting to the conditions of performance of official activities, providing moral and psychological support to civil servants in overcoming professional difficulties, promoting the development of behavioral skills of civil servants corresponding to professional and ethical norms and rules, requirements established by law, the formation of an active civil and life position of civil servants, the development of civil servants, as well as citizens included in the personnel reserve, of interest in official activities, their placement in the civil service. Mentors are authoritative employees from the structural unit where the employee is mentored, or from units of related profiles, or from among persons who were dismissed from the civil service upon reaching the age limit for being in the civil service; they must be experienced, highly qualified, they must have developed educational skills and have worked in the civil service for at least 5 years. Mentoring is carried out from 3 months to 1 year without taking into account the time of professional training or retraining of a civil servant.

Upon completion of mentorship, a decision will be made on the suitability/incompatibility of the position to be filled or on the possibility/impossibility of a recommendation for appointment, etc.

In the process of improving motivation, this project can be of great help. The newcomer will feel comfortable, his interest in the job will increase, his need for communication will be satisfied, and he will also be motivated to work and study better and harder, and as a result of this, expand his knowledge base. For a mentor, this is a chance to change activities, increase their interest in work, feel needed and respected, this is their chance to increase their pay as a mentor (allowances and bonuses).

It is noteworthy that this pilot project is associated with the "enrichment of work", because the mentors' responsibilities are expanding, the work becomes more interesting.

Pilot project on qualification requirements

The pilot project is aimed at developing a system of qualification requirements for civil service positions, taking into account the areas of professional activity of civil servants, as well as its approbation, including when assessing the conformity of professional knowledge and skills of candidates for filling a vacant position in the civil service and civil servants in the course of certification. Today's qualification requirements for civil servants are of a formal nature, they do not have specialization in areas of activity, etc.

During the implementation of the pilot project, it is planned to develop proposals for improving the qualification requirements for civil servants. It is planned to introduce a three-level system of qualification requirements (basic requirements necessary to fill civil service positions, functional requirements that take into account the specifics of specific areas of activity of the federal state body, and special requirements that take into account the specifics of a particular position).

Based on the results of the pilot project, guidelines for federal state bodies and a directory of qualification requirements for the main areas of activity of the federal authorities participating in the pilot project, as well as to develop proposals for changing the legislation on the civil service of the Russian Federation, aimed at regulating the system of qualification requirements.

The introduction of a system of qualification requirements will help simplify the work of personnel departments when formulating qualification requirements for civil service positions, determine specific qualification requirements for civil service positions, which will increase the efficiency of selection and evaluation of specialists; effectively implement the rotation of civil servants and manage the professional development of personnel; to form a personnel reserve in specific areas of activity of state bodies, which will greatly simplify the search for specialists with the necessary knowledge and skills; it is better to differentiate the remuneration of civil servants depending on the complexity of the activities carried out.

All this will help motivate staff to learn and study their profession, will increase interest in work, and will also make the criteria for assessing personnel understandable, which, in turn, will increase both job satisfaction and the degree of its comfort.

Pilot project on integrated assessment

There are many problems with the current certification system. Civil servants evaluate themselves, there is no external evaluation, there is no relationship between the results of certification and career growth and material motivation, there are no clear requirements for the profile of education, knowledge and skills, there are no performance criteria.

Using foreign experience, it is possible to develop a system for a comprehensive assessment of personnel, which will include an internal assessment and an external assessment. The in-house assessment will include a competency assessment once every 3 years (with the help of a pilot project on qualifications), an assessment of performance (personal qualities that affect work) once a year, and a performance assessment also once a year. The external evaluation will consist of a regular public evaluation of the civil servant (questionnaires in written and electronic form) (the most important element), as well as evaluations of the agency by other authorities. This assessment can be either scheduled or unscheduled.

Personnel assessment in this case is a procedure for determining the effectiveness of employees in the implementation of the organization's tasks. Personnel certification (assessment of compliance with the position held) is a formalized procedure for systematic assessment of compliance with the specified criteria for the activities and qualifications of a particular employee.

Based on the results of the assessment, an individual development plan for the employee will be drawn up, positive or negative incentive measures will be applied to him (depending on the result), a decision will be made on his rotation and career development. And all this is a motivational factor that influences the public civil servant.

There are also certain obstacles to the introduction of a comprehensive assessment system. For example, incorrect use of personnel assessment methodology, resistance to innovations, rejection by inefficient employees, use of the assessment system not everywhere, but pointwise, etc. etc.

To remove such barriers, it is necessary to provide training for personnel services, use top-down task planning, link evaluation to pay, and so on.

Thus, it can be noted that the statement that the motivation of the work of civil servants has unpromising foundations is not entirely correct, since there are actually ways of motivation, and there are not so few of them.

Studying and evaluating four pilot projects, it is impossible not to conclude that the use of personnel technologies from the commercial sector can have a positive effect on the state of the labor motivation system for civil servants.

Remuneration of labor Proposals are currently being prepared to amend the Federal Law "On the State Civil Service in the Russian Federation" in terms of remuneration.

The composition of the salary of a civil servant is changing. It will not consist of the official salary, salary for the rank and other payments, but from the permanent part (which includes the official salary, salary for the class rank, salary for seniority, salary for access to classified information) and from the variable part (this is incentive payments). The permanent part will be more than 60% of the employee's salary. Incentive payments are bonuses, performance-based payments, and other payments.

The minimum amount of the salary is set in accordance with the employee of the commercial sector.

In this regard, it is appropriate to mention the composition and ratio of incentive payments in Russia and abroad. In foreign countries, the most stimulating (variable) payments are incremental payments, bonuses, performance-based incentives, and pay for the risk of performing work with increased obligations.

In foreign countries, the concept of a conditionally variable part of the monetary content of a civil servant is also actively used. These are various allowances that do not depend on performance, but depend on other parameters. The average values of the conditionally variable part of the remuneration of civil servants in different countries are 10-19% of the amount of wages. At the same time, the effective part of the monetary content varies within 4-72% and, as can be seen, is very heterogeneous.

The following trend is observed in the development of the system of remuneration of civil servants: decentralization of the criteria for assessing the salary of a civil servant, there are more and more effective criteria, the evaluation of the work of a civil servant is becoming less centralized.

Research shows that stimulating parts of the cash allowance have a high motivating effect.

Unfortunately, in Russia so far most of the payments are permanent, so the wage system is a rather weak motivator in the management of civil servants. Also noteworthy is the fact that in Russia the share of incentive payments is one of the lowest among many foreign countries.

Returning to the draft Federal Law, we can say that its implementation will show positive results in terms of motivating civil servants, but the draft Federal Law still "has something to strive for."

Conclusion

In this work, the student showed the relevance of considering the problems of labor motivation of civil servants, as well as ways to improve it.

The system of labor motivation of state civil servants is considered, its specificity is determined. The description of the motivation system for civil servants is supported in the work by the theoretical base described in the first chapter. The definition of terms related to motivation is given, early theories of motivation are considered (the "carrot and stick" method, the views of Taylor and Mayo), content (need pyramid, two-factor theory, ERG theory, acquired needs theory), process (expectation theory, equity theory, complex theory, the theory of "x-y-z") of the theory of motivation, the topic of the latest theories of motivation is touched upon.

The author points out that the motivation system is a complex element of the management of the civil service, which has not yet been fully studied. It consists of the following elements: state guarantees, remuneration, career opportunities, certification, training rotation and responsibility. It has been determined that competitive selection can have an indirect impact on the motivation of employees. All these elements of the motivation system come from the social and legal status and legal status of a public civil servant, which consists of rights, obligations, restrictions, prohibitions, responsibilities, requirements, guarantees and economic security.

An important statement is given that a developed system of motivation in a state body makes it possible to increase the efficiency of the work of civil servants, and hence the efficiency of the activities of state authorities and public administration as a whole.

The importance of the priority of professional qualities (the main principle) in the civil service, the principle of compensable restrictions imposed by law on civil servants, it is important to create such a remuneration system so that direct cash payments absolutely dominate over “shadow” payments, benefits and privileges, it is necessary to develop the loyalty of civil servants ( both existing and potential) to the state apparatus and ethics in the performance of official activities.

The paper provided an analysis of the entire motivation system, identified its main problems: today, people's motives have become much more complicated, the level of remuneration in the civil service is extremely low compared to the commercial sector, almost the entire incentive (remuneration) system is built on seniority, the system of attractive state far from everyone is provided with guarantees in the civil service, the theoretical basis for improving the motivations of civil servants in Russia is poor, work in state bodies has become unprestigious, there is an outflow of highly qualified personnel, the civil service of the Russian Federation has already undergone many changes, which for the most part were of an unsystematic nature, the Russian the apparatus is not "accustomed" to serve the state and civil interests, there is an urgent need to create an ethical code of civil servants, the legislative framework in Russia is rather cumbersome.

The third chapter notes that the solution of motivational problems in the public service at the moment has a positive direction. In accordance with the Decree of the President of the Russian Federation dated May 7, 2012 No. 601, pilot projects are being developed aimed at testing and introducing modern personnel technologies into the work of personnel services of federal state bodies, which indicate the application of the experience of the commercial sector and focus on the experience of foreign countries. There is a change in the legislation on the state civil service on remuneration. Russia can also use the experience of developed foreign countries in the process of improving the system of motivation in the civil service.

It is concluded that, contrary to the opinion of many scientists, the motivation of civil servants does not have too unpromising foundations, it just needs to be carefully thought out.

To study this topic, an analysis of the literature on this topic was carried out, an analysis of the legal framework of the Russian Federation on the regulation of the state civil service, as well as a secondary analysis of a sociological study already conducted by the National Research University Higher School of Economics on the topic.

List of used literature

.Federal Law "On the State Civil Service in the Russian Federation" dated July 27, 2004 No. 79-FZ;

.the federal law On the system of public service of the Russian Federation of May 27, 2003 N 58-FZ;

.Decree of the President of the Russian Federation "On the certification of state civil servants of the Russian Federation" dated February 1, 2005 No. 110;

.Decree of the President of the Russian Federation of May 7, 2012 No. 601 “On the main directions for improving the public administration system”;

.Draft Federal Law "On the State Civil Service in the Russian Federation" dated July 27, 2004 No. 79-FZ (with amendments regarding wages);

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Appendix

Table 1. Sample structure by positions

Groups of civil service positions Number of respondents Higher67Main130Leader220Senior358Younger313

Table 2. Sample structure by age and sex

Groups of civil service positions GenderAgeMaleFemaleup to 30 years30-39 years40-49 years50 and olderHigher224213141918Main499430324239Leader7414145486359Senior122231747910397Younger10920465719186Total: 42727194

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"HR officer. Labor law for a personnel officer", 2012, N N 11, 12

LABOR RELATIONS OF PUBLIC EMPLOYEES IN FOREIGN COUNTRIES

The article presents foreign experience in regulating the labor relations of civil servants, including: determining the status of a civil servant, the system of wages of civil servants, systems for assessing the efficiency of work of employees of the state apparatus and labor productivity of various services included in the system of the state apparatus, protection of the socio-economic rights of civil servants.

The civil service is a necessary part of the management system of the national economy and social development. Without an effective civil service, it would be simply impossible to develop, implement, evaluate the results of a national development policy, ensure national interests, determined by the totality of the main interests of the individual, society and the state.

Appointment to the public service

Officials are appointed by state bodies - federal, regional, municipal. They are given a letter of appointment, containing the following wording: "accepted for public service." The contract concluded with them differs from that provided for in private enterprises. He has a higher status. Appointment is based on the recognition of qualifications, professionalism, inclinations. In Germany, officials are required to take an oath of allegiance to the Constitution of the country when they enter the civil service. This means that in case of violation of the oath of allegiance by civil servants, appropriate measures are applied to him, up to dismissal from the civil service, even if he is not subject to judicial liability under general law.

The rational number of civil service employees and the amount of work are determined by labor rationing. In order to establish the amount of work of each employee per unit of time, the composition of his duties and functions for this work is determined, the relative importance of each function, expressed as a percentage of the total work of this employee, and average value working hours for each function. When norms for various jobs are determined, the need for personnel of a given ministry is determined by dividing the volume of work by function by labor norms. This makes it possible to determine in which departments, for which jobs there is a surplus of personnel and where there is a shortage of them.

For my staffing and the number of employees is the responsibility of the relevant government agency. However, in a number of countries (for example, in the USA) there are special central personnel agencies that play an important role in ensuring the unity of the personnel policy of state bodies. It is also considered expedient to involve employees or their representatives in this work. They have more detailed information about their work or about those details of it that an analyst or an employee of the human resources department may miss. Subjective judgments often cause conflicts between employees and managers. It is very important that employees know how labor standards and the level of staffing of a government agency or its division are calculated. Employees perceive personnel decisions better if they themselves participate in their development.

Labor standards are periodically reviewed, especially when work is associated with the introduction of new technology, working conditions, and working methods.

Salary and status

The salary of public sector employees is based on the following principles: its level should be sufficient to attract the necessary number of specialists with the necessary professions and qualifications to the public sector, capable of performing the functions assigned to them. The performance of these functions should be provided with funds not exceeding the capabilities of the state in the current general economic and financial situation and social policy of the state.

A characteristic feature of the organization of wages in the state apparatus in a number of market economy countries is a single tariff system. The point is not only that the civil service is a large sector of the economy, the tariff system is needed for effective personnel management. Without it, each government agency would have its own pay structure, which would lead to thousands of structures to manage, and many discussions about pay for work in various organizations (divisions) of the civil service.

The rank of a civil servant determines his status, his social position. The structure of jobs in the public service consists of a hierarchy of grades that cover all jobs with the same characteristics.

There are two basic approaches to determining the number of jobs in the civil service. This is the definition of bit depth for individual posts - rank-in-man and for a group of posts (positions) - rank-in-post. In the first case, the employee is not hired for a position, but is included in a group of persons called service appointees (service of cadre). This is a group of senior officials who shape the policy of the state and manage ministries and departments.

These senior officials have a rank that determines their status. The same principle applies to them that operates in the army: a general in the army is always a general, regardless of where he serves: in a unit or at headquarters, and a minister is always a minister, regardless of which ministry he leads. Positions are not analyzed by their content and are not described in detail when classifying by ranks (ranks). They are characterized in general terms. Worker movements are not uncommon; on the contrary, they are considered part of a normal development career.

If this position is reduced, the employee has the right to expect to be provided with another position of the same category, regardless of the specific job to which he will be transferred. If it is impossible to give an employee a similar job and he is forced to transfer to a lower job, he retains his previous rank, since the rank refers to the employee, and not to the position.

In contrast to the above, the appointment of employees to a specific position on the basis of the rank-in-post principle is carried out in accordance with the analysis of the requirements imposed by this job on the employee, which are determined by the analytical evaluation of the work. The functions and tasks for this work are identified: what and how the employee should do, working conditions, employee responsibility, knowledge, abilities, qualifications are determined. Job descriptions provide information. The various civil service jobs are then compared to each other to determine their relative position in relation to each other in the job hierarchy. Comparison is carried out according to the content of the works for which the analysis is carried out. Works with a similar level of complexity, responsibility and requirements are combined into one category. For each professional qualification group, depending on the complexity, the analytical evaluation of the work establishes a hierarchy of categories.

Analytical evaluation of works and their billing

There are four main methods for the analytical evaluation of works: ranking, classification, scoring and comparison by factors. The last two methods are quantitative methods.

Ranking is the simplest method, consisting in the fact that a list of all the jobs in the organization is compiled and then they are grouped into categories.

Classification is the reverse process. First, the category structure is developed, and then the work is distributed by category. Works are analyzed, described, reduced by professional and qualification criteria into groups. Then the rating factors for each group of works are selected. The next stage - the most difficult - is the description of the factors by which the categories and their number are determined. Then the works are classified by comparing the description of the work with the criteria for assigning works to a particular category and distributed by category.

The scoring method provides for giving each evaluation factor a numerical value. Summing up the scores, they receive an appropriate assessment of the work in points and, by quantitative assessment, correlate the work with one or another category.

The method of comparison by factors is the most complex method. are chosen key works- from 15 to 25. They are ranked by factors, each of which has a quantitative score. Then, each work is compared with the key work by factors and their quantitative assessment and, in accordance with comparability, is distributed into categories.

Classification is the most preferred option for governments that apply analytical evaluation of work in civil service institutions. In the US, the classification for federal employees was used for more than 60 years before it was replaced by a points method. In 1976, a survey showed that 89% of 46 state governments and 94% of municipal governments used non-quantitative primary classification methods. In Canada, for civil servants, both the classification method for some categories of employees and the point method for other categories are used. In South Asia and the Philippines, the classification method is also used for civil servants.

There are differing opinions as to whether establishing a job hierarchy is the final or penultimate step before determining the "price" of a job in a job hierarchy, that is, setting the wage level for a particular job - the basis for setting the wage structure. Trade unions believe that the analytical evaluation of work should end with the definition of the structure of work, and not the structure of wages. The job hierarchy is seen by unions as one of the stages in determining the wage structure, which only tells how the ranking of wages should be according to the categories of work or the degree of increase in wages in accordance with the ranking. Trade unions object to the fact that the analytical evaluation of work leads to wage fixing, which, according to trade unions, should be determined in collective agreements. The International Federation of Clerical, Professional and Technical Employees (FLET), for example, has included these provisions in the foundational recommendations for analytical job evaluation for its members. Analytical assessment of work and wage negotiations, according to trade unions, should be carried out separately.

There will then be no conflict between setting wage grades determined by job evaluation and negotiating grade wage levels in accordance with union wage policy. Levels and differentiation of wages, bonuses for seniority, incentive systems and bonus systems - all this is established through collective bargaining, and the analytical evaluation of work has nothing to do with these procedures.

Tariffication of works in accordance with the analytical assessment is the basis for the development of tariff scales in state institutions of market economy countries. Some countries establish a single pay scale for all civil service occupational groups, others have a single pay scale for most occupational groups, but some occupational groups have their own pay scales or some other wage system. In the US, for example, federal civil servants are paid on an 18-bit grid, in Germany officials are paid on a 16-bit grid, and other civil servants are paid on a 10-bit grid with sub-grades.

A characteristic feature of the tariff scales of civil servants is that each category contains several wage rates (the so-called flexible tariff).

In the United States, in order to stimulate the improvement of the quality of work, the grade grid provides for 10 wage rates in each grade. The difference between the initial and final rates within the ranks is 30%.

In categories from 1st to 15th there are 10 wage rates, in the 16th category - 9 rates, in the 17th - 5 rates and in the 18th category - 1 rate.

In Germany, salaries are differentiated depending on the marital status of employees: single and family with children. The difference ranges from 4-5% in the higher ranks to 13 - 30% in the lower ranks. The range of salaries between the lowest and highest categories is 2.4 times for singles, and 2.2 times for families. Each category also provides for a range of salaries. The difference between them is 15% for singles in the lowest category, 14% for families, 66% for singles in the highest category, and 62% for families.

In the United States, the transfer of a civil servant from rank to rank in the first three ranks occurs every 52 weeks, that is, every year; from the 4th to the 6th category - after 104 weeks, that is, after two years; in the 7th - 9th categories - after 156 weeks, that is, after three years. High performers are more likely to be promoted to higher pay. However, an employee can only receive one promotion per year. When transferring from one rate to another from the 13th to the 15th category, special attention is paid to the quality of work of employees. An important role in material incentives when transferring workers to higher wage rates or to a higher category is played by systems for assessing the merit of workers, that is, the quality of their work. These systems are inherently similar in many respects to the systems of performance appraisal.

Business assessment and certification of personnel

Certification of personnel, better known in market economy countries as a system for assessing the personal qualities (merits) of employees, is used as a general concept for systems that evaluate either the personality of an employee, or personal elements and / or production success of an employee.

In accordance with the subject of assessment, there are systems for assessing the personality of an employee and systems for assessing labor productivity, and, if their combination is meant, mixed systems.

Certification of personnel can have various purposes: differentiation of wages, determination of the need for training and advanced training, personnel decisions (promotion, moving to another position of equal or lower level, dismissal).

To ensure the objectivity of employee assessments during certification, Western experts recommend adhering to the following principles:

Unity of conditions for all certified;

Objectivity (for example, the assessment may be affected by the social status of the employee: an employee holding a higher position may receive a higher rating than an employee with a lower rank);

Reliability, that is, the constancy with which different independent experts come to the same result (here it is important that the experts undergo certain training and familiarize themselves with concrete work, its requirements for certified persons);

Efficiency, that is, the impact of certification on improving the qualitative characteristics and quantitative indicators in the work of an employee who has passed certification.

The choice of indicators (criteria) for certification depends on the goals of personnel assessment and on the requirements that are set before certification. The criteria may be different, but the main ones are the following: the amount of work; quality of work; personal behavior towards other employees; compliance with regulations and requirements, discipline, possession of the abilities and skills necessary for this work post; initiative, the desire to take on greater responsibility, the possession of abilities and skills that go beyond the scope of the current position.

Various methods are used to assess the personal qualities of employees. One of them is called "polarity profile". In accordance with this method, the examiner must find the assessment of the person being certified in four degrees between the polar definitions, marking his opinion with a cross in the corresponding square. If the checker's crosses are connected with one line, then a "polarity profile" is obtained that determines the person's personality. Based on this, cadres can select people for a certain job according to their personal qualities.

The pairwise comparison method involves comparing each employee on the basis of the assessment subject to another assessed employee. The inspector must conclude which of the two workers is recognized as the best.

Row ranking method. With its help, the relative position of the certified in the ordinal scale is determined in comparison with other certified by any criterion or by their combination. The task of the inspector is to place the person being certified in the row that, in his opinion, the person being certified deserves in accordance with the criteria that are evaluated during this certification. A general ranking of those being certified is built. In this case, employees occupy the corresponding hierarchical place between the 1st and nth rows. In large groups of testees, the method of percentage distribution by groups is used, followed by a qualitative assessment of the upper and lower percentage groups, which are approximately 25% in each (upper or lower) group. Then, from these groups, 10% or 20% of employees with the best or worst performance are singled out. Appropriate personnel decisions are made in relation to them. The bulk of the certified remains undifferentiated (table).

Evaluation of certification results

Performance appraisal can elevate an employee's individual contribution to common work even if there is no financial reward for it. Evaluation helps to explain to the employee his role in the organization, the relationship of his work with the achievement of the goals set for the organization, stimulates the achievement of the goal by the employee, demonstrates the interaction between the goals of the organization and the goals of the personal work of a civil servant. The assessment provides information for making appropriate decisions, including the promotion of an employee, encouraging him by other methods, and the application, if necessary, of disciplinary sanctions. It helps the staff to determine their prospects in the service, the need to improve the professional and qualification level, to realize the relationship of their interests with the goals of the organization.

How to evaluate the results of work? One of the most common methods in developed market economies is goal setting. The manager and the employee together set goals that the employee must achieve by the end of the year. At the end of the year, it is determined whether the employee has achieved the goal or not. Other criteria are used to measure the results achieved by an employee: quality (how well the work is done), quantity (how much is done), time factor (how quickly the work was done, was there any deadlines (deadlines met)), manner of doing it (personal style and method work), method (procedures), cost of work (in monetary terms), acceptability of work (for consumers). During the year, it is checked how the work is going in order to correct it in time.

The experience of countries with developed market economies shows that it is necessary to carefully approach the issue of moving an employee up the career ladder, based on the high efficiency of his work in this workplace. Some workers may show high results in work, but they have reached the limit of their capabilities. Others may show outstanding achievements in their work, but are not ready for promotion, for example due to lack of experience. In order to promote employees, it is important to determine the content of the work of a higher status and the knowledge, capabilities and qualifications of the employee required for this, as well as his personal qualities that are necessary for working in a higher position. Thus, the criteria for assessing the quality of current work and determining the employee's opportunities for advancement are different processes.

The acceptability of performance appraisal systems by staff depends heavily on their perception of objectivity and the accuracy with which their performance is assessed. Involving front-line workers in defining work objectives and regular communication and information about their work are very important factors in building their trust in the system, which contributes to overall improvement in their productivity. As the experience of developed countries shows, performance evaluation is most successful where managers themselves report on the work in their departments. A carefully designed system of interrelationships brings together ranks, wage rates, allowances, incentives and promotions. Performance appraisal allows management to identify the most outstanding employees and really raise the level of their achievements, influence on the performance of other employees, transferring them to higher positions, which, in turn, stimulates employees, both financially and morally, to work more efficiently .

Promotion of distinguished employees to higher positions helps the civil service fill vacancies with employees who have already shown their ability, while keeping in mind that the employee can cope with the new job (in this case, a tariff system can be used).

The information of employees based on the results of the assessment of their work makes it possible to familiarize the employee with the assessment of the quality of his work, with the strengths and weaknesses of his activities, as well as suggest him directions and opportunities for improving professional qualities.

However, there is another point in the evaluation of personnel. Negligent employees are subject to disciplinary action. And performance appraisal plays an important role here.

Disciplinary Requirements

Particularly strict disciplinary requirements apply to civil servants. In Germany, for example, discipline is regulated by the Federal Disciplinary Code and the disciplinary codes of the Länder. They are aimed at maintaining a high level of public confidence in officials (cadre administrative workers) by maintaining their discipline, and in case of inconsistency of an official with his workplace, dismissing him from his position. Even in the case when the behavior of an official is not related to his work (within certain limits), he can be punished if his misconduct threatens the public's confidence in public service. For federal officials, these cases are handled by the Federal Disciplinary Court. The Länder have disciplinary tribunals, or disciplinary committees.

Germany has the following system of disciplinary measures for civil servants:

1) remark;

2) a fine in the amount of one month's salary;

3) reduction of salary by 1/5 for a period of up to 5 years;

4) transfer to another position with a lower salary, which means the loss of the previous category;

5) dismissal from the civil service with the loss of all privileges and rights.

If the misconduct of an official is criminal in nature and falls under the Criminal Code, hearings on such a case are held in parallel. Decisions of the courts in criminal matters are made jointly with the disciplinary courts.

Labor productivity in the public sector

The efficiency of the state apparatus is determined not only by the performance of individual employees, which is of great importance in market economy countries, but also by the assessment of the productivity of the entire state apparatus.

Measuring performance (efficiency) in the federal government provides executives with data that can be useful in making decisions about staffing, budgeting, investment, and management techniques. The difficulty lies in the fact that public authorities do not produce physical products, as private sector. Enough to name the defense, foreign policy etc. Nevertheless, a criterion is needed, a method for measuring efficiency, by which it would be possible to evaluate the effectiveness of labor in all state institutions.

Most effective method measurements - animated (multifactorial), including all resources - personnel, finance, materials and equipment.

What is productivity? It includes such concepts as the speed (efficiency) with which services are produced (rendered), efficiency, that is, the achievement of the goals of the service provided, the quality of the product or service provided, and the satisfaction of the needs of society and consumers.

Public sector productivity is a non-quantitative concept. Audits, evaluations, judgments and other approaches to its measurement may not always be quantitative. Moreover, judgments about the quality of the activities of a state body or its subdivision may be more significant than its quantitative assessments.

Since 1967, the United States has been measuring the productivity of civil servants. Performance measurement - part general program improving the efficiency of the state apparatus, which includes professional training and retraining of personnel, improving management, financial incentives, and investments. The Bureau of Labor Statistics of the US Department of Labor collects data for every public service with 200 or more employees. The federal authorities must provide the BLS with data on costs, performance, number of employees, and their wages. In 1994, productivity was measured across 255 government organizations in 60 federal agencies. The total coverage of employees of the state apparatus is 2 million civil servants, or 69% of their total number.

The calculation of productivity is carried out for 24 functions of the state apparatus using three indicators that can be quantified. It comes from the fact that every public institution in varying proportions, there are corresponding services that perform functions against which performance can be calculated. For example, the effectiveness of the audit service is calculated by the number of completed audits, the amount (pricing proposal audits), the number of operations in the audit process (internal operations). The personnel training and retraining service is evaluated by the number of student days, the number of those who have undergone training and retraining, and the number of teaching days. The work of libraries is evaluated by the number of new books received, the processing of periodicals, and the number of references and consultations. For 24 functions of the state apparatus, productivity ranged from 11.8% to financial services up to 5.6% in personnel management services. In general, labor productivity has increased in 14 functions over the period under study.

General productivity growth in the public sector for the period 1967 - 1994. amounted to 134.3%, the average annual increase in labor productivity - 1.1%. For comparison: in the private sector, the average annual increase in labor productivity was 1.4%. At the same time, in 1967 - 1982. the average annual growth in the public and private sectors was the same - 1.5%, and in 1982 - 1994. in the public sector, compared to the private sector, it dropped sharply, amounting to 0.6 and 1.3%, respectively.

In the United States, the Civil Service Reform Act was passed in 1978, aimed, as stated in § 1 of the Act, to ensure that "the people of the United States have a competent, honest and productive civil service." For these purposes, the Law pays special attention to assessing the quality of work of civil servants on the basis of uniform principles for the operation of systems for assessing the personal qualities of employees and labor productivity in all parts of the state apparatus in the center and in the field.

Downsizing of civil servants

Methods of reducing the cadres of civil servants always cause political difficulties of various levels. In developing countries, first of all, when laying off, we are talking about "dead souls" who exist only in payrolls and whose salaries are received by unscrupulous officials. To "cleanse" the "dead souls", special qualifications, statistical surveys are carried out, which are designed to identify these "dead souls". The next step is to reduce vacancies. This is the most painless procedure. Reducing temporary workers while transferring the most qualified of them to permanent workers is another method used in the civil service. This should also include the automatic transfer to retirement of people who have reached retirement age - a very difficult task, given the financial situation and motivation of older people. The procedure for "freezing" hiring appears to be controversial. This means the inability to hire skilled workers from outside when moving existing workers to higher positions and the emergence of vacancies in lower positions. Some states (Central African Republic) resorted to such methods: one employee is hired - three are fired. This has become the most common practice in other countries: one highly skilled worker is hired, three less qualified are fired, or one dollar goes to hire, and three dollars savings on staff.

Voluntary resignations do not create large political costs, but they reduce general level qualifications of civil service workers: the most qualified employees leave and the less qualified ones remain.

The selective reduction of cadre workers is the most difficult thing from a political standpoint, especially if favoritism, corruption, and bribes are involved. The ILO recommends that such a reduction should be carried out with the participation of representative organizations of workers, and above all trade unions, where they exist.

Ensuring unity of governance

and evaluation of the effectiveness of the public service

The issues of ensuring the unity of management and evaluating the effectiveness of the civil service are dealt with by the central state bodies.

The United States provides the most representative example in this respect. Under the Civil Service Reform Act, the reorganization created two organizations: the Office of Personnel Management (OPM) and the Merit System Protection Board (NSPB). The Federal Labor Relations Authority (FLRA) was also created.

The Human Resources Service develops personnel development programs to improve public administration and increase its efficiency and is under the control of the President of the United States. It gives broad powers to relevant organizations in the field to develop their own systems for assessing the personal qualities of employees, ensuring unity in the approaches and principles of this assessment. Each state organization must develop its own plan, which is submitted for approval to the federal personnel management service. The Human Resources Department consults with regional and local government authorities on issues of remuneration of employees based on the results of their performance evaluation, information to employees on how personal qualities assessment systems work, etc.

The personnel management service collects, analyzes, documents and publishes materials that contribute to the development of effective systems to improve the level of work of the civil service, and develops relevant projects.

In 1979, Human Resources created a new division, the Workforce Effectiveness and Development Group (WED), to help federal agencies improve their productivity and efficiency. This group consists of three services:

1) Service on performance programs. Its goal is to provide knowledge and understanding of the problems of productivity improvement and its measurement;

2) Professional training and advanced training service. Its task is to train federal employees in methods to improve the efficiency of their work. This service trains up to 170,000 employees a year;

3) Service of advisory services. Provides advice and technical assistance to state bodies in order to improve the efficiency of their work.

These all-federal specialized services ensure the unity of policy and management of the state apparatus and its divisions, as well as the unity of personnel management and increase its efficiency.

Public organizations of civil servants

Public service employees, as provided for by the relevant laws in market economy countries, may have their own public organizations to represent their interests in negotiations with employers represented by state bodies.

In the United States, the Committee on Labor Relations of Public Employees oversees the creation of representative organizations in the public sector, oversees elections in them, determines the set of issues to be discussed in negotiations, and receives complaints of unfair treatment of employees.

It is also the authority for resolving labor disputes in the public sector.

In Germany, officials are united in the German Federation of Officials (Deutscher Beamtenbund - DBB). It has over 1 million members. Officials do not have the right to strike. The federal constitutional court denies them the right to strike.

In Spain, the Law on the Representation of Civil Servants of 12.06.1987 provides civil servants with the right to collective representation. Representative organizations are created in all state bodies if the number of employees is more than 50 people.

In Italy, the Law on the regulation of labor relations in the public sector of 03/29/1983 aimed to ensure uniformity in the rules regarding partners, the content and procedures for concluding collective agreements in various areas of the public service.

Previously, labor relations in the public sector were controlled only by the relevant state authorities. The 1983 law introduced the concept of "employment agreement" in contrast to collective agreements in the private sector.

The difference between them is that collective agreements come into effect immediately after signing by the parties. Agreements on labor relations concluded in ministries (departments of public administration) do not enter into force until they are adopted and put into effect by decree of the President of the Republic after discussion in the Cabinet of Ministers.

In other market economy countries, collective agreements are concluded between the employer-state, represented by representatives of state bodies, and civil servants, represented by representatives of trade unions. Their task is to ensure compliance in wage levels and the size of its increase between the public and private sectors, as well as the determination of various allowances and additional payments to wages in accordance with working conditions, social payments, pensions and benefits to civil servants.

Bibliographic list

1. Public service in the countries of the main legal systems of the world: Anthology / Ed. A. Demina. M.: Knigodel, 2010.

2. Commentary on the Federal Law "On the State Civil Service of the Russian Federation" / Ed. V. A. Kozbanenko. St. Petersburg: Piter-Press LLC, 2008.

3. Litvintseva E. A. Management of civil service personnel in foreign countries: Proc. allowance. M.: Publishing House of the RAGS, 2010.

4. Obolonsky A. V. The crisis of the bureaucratic state: civil service reforms: international experience and Russian realities. Moscow: Liberal Mission Foundation, 2011.

5. Pronkin S. V. State administration of foreign countries: Proc. allowance / S. V. Pronkin, O. E. Petrunina. 3rd ed., add. and reworked. M.: KDU, 2007.

A. Nikiforova

Professor,

Chief Researcher

A. Zubkova

Professor,

Chief Researcher

Research Institute of Labor and Social Insurance

A. Sushkina

Professor

Moscow City

Psychological and Pedagogical University

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INTRODUCTION

The main task of civil service personnel management is to orient employees towards achieving the goals of the organization and getting the most out of them. The reasons why a person gives maximum effort to work are varied. Motivation determines the incentive choice by civil servants of various types of behavior and becomes one of the most important elements of management. If we take into account what motivates a person to take action, what he aspires to, it is possible to build the management of a civil servant's labor activity in such a way that he will perform his duties most effectively and in the best possible way.

Recently, the content of managerial work has become more complicated: a highly intelligent worker is controlled by more and more complex motives. The organization of labor of such employees is impossible only with the help of labor rationing, job descriptions and control. We need other, more modern approaches to personnel management, new forms of motivation that lead to high results.

During the period of modern Russian reforms and the accompanying crisis phenomena in the economy and society, the attitude of many people to work has changed. Labor has lost its meaning-forming function, it has been alienated from the well-being of the worker, since its importance in the formation of a person's income is underestimated, and moral rewards for conscientious work often cease to play an important role.

These problems also affected the civil service. The motivations of employees, including state civil servants, have significantly deformed. In addition, the problem of labor motivation has become topical for the civil service in the light of the outflow of qualified personnel aged 30 to 50 years to the non-state sector of the economy (in 2008 their number was 38.0%), which is facilitated by a decrease in the prestige of the civil service, frequent transformations, unsystematic structural reorganizations, unmotivated personnel changes, but, most importantly, non-transparent differentiation of wages and social guarantees for different categories of civil servants.

In modern Russian studies, the topic of increasing the efficiency of professional activity and strengthening the motivation of employees of state bodies is not sufficiently disclosed, not all issues of the functioning of the public service are affected, not all factors that contribute to increasing the effectiveness of labor activity are identified.

The foregoing indicates the need for a scientific study of the system of labor motivation of civil servants in order to scientifically substantiate proposals for its improvement. Until now, its theoretical aspects have not been sufficiently developed in this issue, there remains a significant need for generalization and systematization of information, clarification of the specifics of the work of employees of federal executive bodies.

The lack of comprehensive research in this area, as well as the importance of managerial skills in improving motivation systems and approaches, determined the relevance of this work, its theoretical and practical significance.

Analysis of the degree of knowledge of the topic. The problems of motivating and stimulating the labor of managerial personnel, including civil servants, were dealt with by many domestic and foreign scientists, whose works reflected various aspects of labor motivation, which differ due to its specificity in a significant variety of scientific views, concepts, schools on micro- and macroeconomics. level.

Studies that study the theoretical foundations of labor motivation, the methodological substantiation of the category "motivation" and its essence, the problems of material incentives are reflected in the works of O.S. Vikhansky, N.I. Zakharova, A.Ya. Kibanova, M.I. Mirskoy, Yu.G. Odegova, A.N. Onoprienko, P.S. Osipenkov, K.S. Mikulsky, S.G. Strumilina, E.A. Utkin, as well as in the works of Western scientists: S. Adams, M. Weber, V. Vroom, R. Likert, E. Lawler, E. Locke, D. MacGregor, A. Maslow, E. Mayo, F. Taylor , A. Fayol, and others.

The study of domestic and foreign experience in the formation of a system of social protection of civil servants and the possibilities of its use in Russian conditions was carried out in the works of K.O. Magomedova, M.D. Neupokoeva, A.I. Turchinov and others.

At the same time, a number of issues remain insufficiently studied, in particular, there are no studies of the motivation of the work of civil servants as an economic category; it is also necessary to analyze the elements of the labor motivation mechanism and specific tools for improving the mechanism of its payment and incentives in order to increase the efficiency of the activities of public civil servants.

Insufficient theoretical, methodological and applied development of these problems led to the choice of topic, purpose, main directions and objectives of this study.

The research problem of this work lies in the contradiction between the need to improve the system of labor motivation of civil servants, on the one hand, and the need to develop evidence-based theoretical and practical recommendations for its improvement.

The object of the study is the socio-economic relations that develop in the process of motivating the work of civil servants.

The subject of the research is the system of labor motivation of civil servants.

The purpose of the work is a comprehensive study of the system of labor motivation of civil servants.

Research objectives:

identify the features of labor motivation in the system of public civil service;

to analyze the motivation of employees of the modern civil service;

develop ways to improve methods of motivating civil servants.

The theoretical and methodological basis of the study was determined by the economic approach used in this work and the multidimensional nature of the problem under study.

The following methods were used as the main research methods: analysis of the scientific fundamental literature of domestic and foreign authors on the problems of motivation and stimulation of labor; situational and systemic approaches; general economic and specific laws of labor economics; logical, comparative, structural and functional analysis; methods of statistical and sociological research, expert assessments.

The empirical basis for this study was the legislative and regulations federal authorities, decrees of the President of the Russian Federation, decrees of the Government of the Russian Federation, data from Rosstat, scientific developments of the RAGS under the President of the Russian Federation, Research Institute of Labor and Social Insurance, electronic resources of the Internet.

Researchers of motivation define the concepts of motive and incentive in different ways. For example, according to O.S. Vikhansky, the motive is inside a person and has a personal character; a modern dictionary of foreign words defines a motive as “an incentive, a reason for some action” (Modern Dictionary of Foreign Words, M. 2007). In the practice of personnel management, it is generally accepted that a motive is a person's motivation for fruitful activity, caused from the inside by his own needs, emotions.

H.A. Volgin considers a motive as “an impulse to act, the reason for which is interest (remuneration, promotion, etc.), an administrative decision (order, instruction, etc.), or another personal reason - a sense of duty, fear, responsibility , nobility and so on.

Stimulus - an external motivation for action, the reason for which is interest (material, moral, personal, collective or public), as a form of needs realization.

The incentive acts as a promise of compensation to the worker for the physical and intellectual efforts spent in the process of producing material goods. Stimulation is carried out in all phases of reproduction.

On the basis of the considered definitions, it can be concluded that the common thing in motive and stimulus is an incentive to act. The difference is that the concept of "motive" is broader than the concept of "stimulus". The motive includes in its structure a stimulus as the main component (an incentive to action, the cause of which is interest), as well as an administrative decision.

Motivation is one of the basic concepts used to explain the driving forces behind human behavior and activities. The term "motivation" is derived from the word "motive", which in turn comes from the Latin verb movere, that is, to move. Therefore, under the motivation of a person, in the most general form, they understand the whole complex of factors that stimulate and direct human behavior.

Researchers of motivation interpret this concept in different ways. According to M. Meskon, motivation is the process of encouraging oneself and others to work in order to achieve personal and organizational goals.

Some scholars define motivation:

as a process of a person's conscious choice of one or another type of behavior, determined by the complex influence of external and internal factors; as an internal process of a person's social choice of a particular behavior, determined by the complex influence of external (stimuli) and internal (motives) factors.

Zakharov N.I. states that “the process of motivation is based on the functions and properties (elements) of consciousness and psyche and includes the perception and

assessing the situation, setting goals, making decisions, waiting for the results of actions and their conscious adjustment.

For each person, the motivational structure is individual and is determined by many factors: the level of well-being, social status, qualifications, position, etc.

The economic approach to labor motivation lies in the fact that economic entities predict the consequences of their professional activities, make a constant situational choice between the costs of upcoming actions and income from the results of these actions; their needs and desires are rational; material incentives dominate the motivational structure of most individuals.

Understanding the essence of motivational processes is based on the study of the relationship between the two main components of the economy: production and consumption. It is possible to find out what motivates a person to work only by considering the relationship: need - motive - interest - incentive.

CHAPTER 1 . PECULIARITIES OF LABOR MOTIVATION OF CIVIL SERVANTS

Features of labor motivation of civil servants are associated with the specifics of their work and the imperativeness of the civil service institution. The mechanism of motivation in government agencies is mainly based on administrative and command incentives associated with a clear regulation of the work of civil servants, and is a complex system of socio-economic relations between civil servants.

Frederick W. Taylor formulated the concept of the "school of scientific management": the introduction of modern methods of work, the selection of employees based on scientific criteria, their professional selection and vocational training, cooperation between the management of the enterprise and workers in the practical implementation of the scientific organization of labor, a fair distribution of duties and responsibilities between workers and managers.

Taylor's followers developed his concept. G. Gant proposed a system of planned schedules that made it possible to control planned work and draw up calendar plans for future periods, a wage system with elements of time and piecework forms of payment. G. Emerson formulated the basic principles of management that ensure the growth of labor productivity: discipline, clear regulation of people's activities, labor rationing; accounting, control, fair treatment of personnel, timely encouragement.

A special merit in the development of Taylorism belongs to G. Ford, who put forward the idea that the wages of a worker depend on his production, that is, he proceeded from the position that the worker effectively responds only to material incentives.

The "classical school", whose founder is A. Fayol, believes that the ultimate goals of any organization are to maximize profits, profitability, capital investments, total capital turnover with minimal cost resources. This concept of management did not sufficiently take into account the human factor, therefore, in the 30-50s of the 20th century, the neoclassical school became widespread in the West.

The methods of the school of scientific management formed the basis of the NOT developed in Russia by such scientists as A.K. Gastev, A.F. Zhuravsky and others.

Currently, there are more than 50 different theories of labor motivation. Let us consider those of them that are most often used in management practice, from the point of view of their impact on the behavior of economic agents in the context of regulating social and labor relations.

There is no single classification of motivation theories. In foreign literature, a two-stage classification (content and process theories) is more often adopted, but even M. Meskon recognized the validity of the original theories: “Although today everyone understands that the basic premises of the early theories of motivation were incorrect, they should still be known ... The main such technique was the motivation of the carrot and the stick," but he goes on to write that he "divides theories of motivation into two categories: substantive and procedural." Domestic researchers distinguish the following groups of theories of motivation: initial, content, procedural, and modern.

In the original theories (“Carrot and stick”, theories “X”, “U”, “Z”), attempts were made to build a universal model of motivation and apply it to any employee at any time on the basis of simple coercive incentives, material and moral incentives. According to the theory "X" (D. McGregor), only biological needs prevail in human motives, a person does not like to work, prefers strict control to independent work, the quality of work is low. Theory Y is the antipode of Theory X, the motives of employees are dominated by social needs and the desire to work well. W. Ouchi in the theory of "Z" (1984) describes the employee, the incentives for which are: material and moral incentives, self-affirmation, coercion. Such a theory can be applied in the practice of civil service personnel management, as it corresponds to the motives of a civil servant.

Content theories “are based on the identification of internal factors, that is, the needs that make people act in one way or another. They are represented by the works of Abraham Maslow, David McClelland and Frederick Herzberg." In addition, among the meaningful theories, we note the importance of the theory of K. Alderfer. These theories consider the needs of the employee, individual goals and aspirations of people, explain the motives of behavior, determine the degree of their importance, and, in accordance with this, the application of appropriate internal and external rewards.

Abraham Maslow recognized that people have many different needs and concluded that they can be divided into five main categories: physiological, security, belonging to a social group, recognition and respect, self-expression, self-actualization. Satisfaction of physiological needs he gave paramount importance.

Despite the fact that the change in the system of economic relations in society leads to the formation of a completely new mechanism of labor motivation, in which the motives of the highest level become dominant, the salary of a civil servant should be such as to satisfy his physiological needs.

K. Alderfer identified three groups of needs: the needs of existence, the needs of communication and the needs of growth. If it is impossible to satisfy the needs of the upper level, it is possible to switch from one specific need to another. This will cause a process of regression from the upper level of needs to the lower one, but the motivational effect will be achieved to a certain extent. The theory of D. McClelland is associated with the study and description of the influence on human behavior of "needs for power, success and involvement"1. They do not have a clear structure, do not exclude each other and are not arranged hierarchically, their combination depends on the personality of a person (on personal qualities, his culture, experience and specific situation). F. Herzberg established the difference between external incentives and internal incentives to work and singled out “factors of working conditions” and “motivators” into separate groups.

The factors of working conditions are related to the environment, they are not motivating, but only help to avoid job dissatisfaction. Motivators are factors of the second group, related to the nature and essence of the work itself, their presence fully causes satisfaction and motivates employees to improve performance. In the practice of motivating civil servants, special attention should be paid to this group of motives.

A characteristic feature of all substantive theories is that they study the needs and give their classification, allowing to draw conclusions about the mechanism of employee motivation, but do not pay attention to the process of motivation.

Process theories are based on the behavior of a person in a group in accordance with his perception of reality, experience and external behavior, they "do not dispute the existence of needs, but argue that people's behavior is determined not only by them."

The most famous among them are: W. Vroom's expectancy theory, S. Adams' theory of justice, Porter-Lawler's theory (goal setting theory).

V. Vroom's theory is based on the fact that the chosen type of human behavior will actually lead to the satisfaction or acquisition of what is desired. It emphasizes the importance of the following factors: labor costs lead to expected results, results to remuneration, which turns out to be valent or adequate to satisfaction with remuneration. Since different people have different reward needs, the specific reward offered in response to the results achieved may not be of any value to them. If the valency is low, that is, the value of the reward received for a person is not too high, then the theory of expectations predicts that the motivation for work activity will weaken in this case. For example, most civil servants have low motivation for additional training due to the fact that there are no changes in wages and career growth.

According to the theory of justice by S. Adams, an individual compares the effort expended with the reward received and then correlates it with the reward of other people doing similar work. For civil servants, the principle of justice is very important, many industrial conflicts arise as a result of its violation: if the size of employees' earnings is kept secret, then the stimulating effect of wages associated with labor productivity is lost.

Lyman Porter and Edward Lawler developed a complex process theory of motivation, including elements of the theory of expectations and the theory of justice, according to which the results achieved depend on the efforts made by the employee, his abilities and character, as well as his awareness of his role. The level of effort expended will be determined by the value of the reward and the degree of confidence that the effort expended will in fact entail a well-defined level of reward. At the same time, a relationship is established between reward and results, that is, a person satisfies his needs through rewards for the results achieved.

Interest in the problems of motivation in the late 90s. 20th century psychologists, and economists, and sociologists. H.A. Volgin and O.N. Volgina conducted a study on the subject and classification of dissertations on the problems of motivation. General theoretical questions of motivation in the market model of management are considered in the works of Kiyko Zh.N., Kozhaev Yu.P., Druzhinin A.I., Korol S.P. Mikhailov O.V. was engaged in material remuneration of the personnel. and Akopyan G.A. The influence of labor motivation on performance was studied in the works of Mirzaev I.K., Kichedzhi V.N., Smolkov D.P. Based on the analysis of scientific literature, we see that the change in the motivation of employees is influenced by both the form of ownership and industry specifics.

Western firms were the first to use the latest theories of motivation in personnel management in the Russian market, showing the results of new standards for working with personnel: employees in foreign firms worked with greater efficiency.

The latest theories of motivation take into account such circumstances of modern life as the transition to a market economy, a socially oriented market economy, increased competition, a change in the value structure of the personality of most workers, which requires employers to change their attitude towards employees.

Modern approaches to labor motivation are based on the fact that an employee works more efficiently and efficiently if he is interested in the activities of the organization, is involved in making managerial decisions, and receives satisfaction from his work.

Currently, three complex newest theories of motivation are known. These include: participation of working people in the management of organizations; participation of employees in the profit of the organization; ownership of the organization. In the civil service, the latest theories of motivation can be applied to a limited extent, only in terms of the use of non-economic incentives, which is associated not only with a limited amount of material incentives, but also with strict regulation of the work of civil servants.

The only one of the newest theories that can be applied to motivate civil servants, in my opinion, is the theory of participation in the management of an organization. Employees of federal executive bodies can be involved in solving various kinds of tactical tasks: drawing up plans for departments for the current period, monitoring labor and performance discipline, determining labor participation rates, distributing bonuses based on work results, introducing innovative projects and proposals, compiling lists of the personnel reserve.

The formation of a new generation of civil servants, adapted to the conditions of a regulated market economy, combining a strategic approach with high professionalism, able to act effectively in crisis situations, is impossible without an effective system of labor motives and incentives that increase the effectiveness of their activities.

SECTION 2. ANALYSIS OF MOTIVATION OF EMPLOYEES OF MODERN CIVIL SERVICE

To understand the incentives for the work of civil servants, to understand the motivating motives that can positively affect their productivity and enhance their sense of responsibility, to identify the hierarchy of favorable social, moral, psychological and material factors that play a role in the process of motivating their work - all this is an integral part of the study aimed at developing tools to motivate the work of civil servants. Without a detailed study of this issue, all other developments and recommendations lose all meaning and have absolutely no practical application.

Public service is a specific area of public relations where the norms of administrative and labor law interact. The legal model of the public service system of the Russian Federation is enshrined in Article 28 of the Labor Code of the Russian Federation. The work of state civil servants is carried out in accordance with the regulations, which contain the requirements for a civil servant who replaces the corresponding position of the civil service. The work of a civil servant can be characterized as the totality of all relations in the civil service, as well as their occurrence, termination and change when civil servants exercise official powers.

The regulation of the activities of public civil servants is one of the main directions for increasing the effectiveness of their work, as a result of which it is possible to abandon the bureaucratic system of public service personnel management to determine the requirements for the performance of official duties.

An employee of the department "State and municipal management" of the IPK of the civil service, Ph.D. n. Gorshkova E.V. in 2006-2009 a survey of public civil servants was conducted, which involved 827 respondents from various federal executive authorities (such as the Ministry of Emergency Situations of Russia, the Ministry of Economic Development of the Russian Federation, the Ministry of Internal Affairs of the Russian Federation, the Ministry of Health and Social Development of the Russian Federation, the Ministry of Information Technologies and Communications of the Russian Federation, the Ministry culture and mass communications of the Russian Federation, the Federal Antimonopoly Service, Rosregistration, Rosnedvizhimost) of the leading, senior and junior groups of positions. The survey results are shown in Table 1.

Table 1 - The structure of the motives of civil servants

Answer options	in % of the number of respondents
	leading group	senior group	junior group
Striving for material well-being
Permanent Job Guarantee
Stability
The prestige of the profession, motives for serving the state, altruism
State pension provision
Health insurance
The need for social connections, communication, acquiring the right contacts
good psychological
microclimate in the team, work among intelligent people
Evaluation of others, relatives of the prestige of the profession
Obtaining free education, advanced training
Career
Continuity
Good working conditions, workplace equipment
There were no other offers
Random selection

An analysis of the survey results showed that the motivation of civil servants is differentiated depending on the position held and, as a result, on age. The main motives are material, they ranged from 52.0% for the junior group of positions to 82.0% for senior group. The guarantee of a permanent job (62.0%), stability of position (44.0), state pension (96.5) attract only employees of the leading group, social contacts (28.3%) and good working conditions are also important for them (47, eight%). Employees of the senior group are attracted by the guarantee of a permanent job (55.1%), career growth (34.7%), the prestige of the profession (4.4%), and free education (12.0%) are less important for them. For employees of the junior group of positions (their age is mostly up to 30 years), in addition to material motives, the motives of career growth (46.0%), free education, advanced training, and professional development (75.0%) are important. Health insurance is differentiated depending on the position held and the specific government agency, but recently there has been a deterioration in departmental medical care, so the motives of this group are insignificant (5.2%; 4.8%; 3.2%).

It is noteworthy that very few of the civil servants surveyed named the desire to benefit society and the state, altruism (5.6-2.8%), continuity in the choice of profession (1.8-4.8%) as the motives for their activities in the public service. It is alarming that 15.0% of respondents indicated the absence of other offers as the reason for choosing a job. According to the structure of motives, it can be concluded that the public service is most often a means to achieve its own goals, which have little to do with caring for the interests of the state as a whole.

To ensure job satisfaction for civil servants, more attention needs to be paid to the needs that matter most to them. At the moment, these are material needs, including a state pension (for employees of pre-retirement age). But, since the motivation of civil servants due to the labor crisis is somewhat distorted - there are no motives for disinterested service to the state, society - in order to form effective labor motivation, it is gradually advisable to introduce non-material forms of motivation (in particular, motivation by the goals of the organization, the importance of work), which are used non-systemically, and their application often depends entirely on the leader.

Labor motives are formed before the start of labor activity, in the process of socialization of the individual, therefore, managing the motivation of an adult causes certain difficulties. In this regard, it is very important to find out what are the motives of a person who comes to work in a public authority. The main task of personnel services is to select an employee who is ready to work in this organization in a certain position. In addition, to become a state official, one desire is not enough - professionalism, competence, and compliance with the position held are necessary.

To increase the motivation of civil servants, it is possible to offer differentiation of incentives for different age and gender groups.

The number of state civil servants of the federal executive authorities (federal level) in 2008 amounted to 28,066 people, including 11,321 men and 16,745 women (40.3% and 59.7%, respectively).

N.L. Zakharov notes that for the majority of civil servants, the main motives are career growth, high salaries that stimulate their professional activities, the desire to take a worthy place in society and realize themselves in management. In addition to material incentives, moral stimulation is no less important.

In the dissertation research E.E. Grishina analyzed the motivation of state and municipal employees on the basis of data from a survey of state civil and municipal employees conducted in 2005 by the Institute for Urban Economics Foundation and the Institute for Comparative Studies of Labor Relations in a number of regions. As a result of the analysis, it was revealed that the factors of social guarantees, security (75.7%), regularity of remuneration (56%), and stability of employment (47%) occupy the leading place among the incentives attracting people to the public service.

Thus, based on the study of scientific sources and empirical analysis carried out by employees of the department "State and municipal management" of the IPK of the civil service in 2006-2009, regularities in the motivation of the work of civil servants were identified, which are determined by categories and groups of positions, gender and age differences: the most important are material motives, career growth, social guarantees, employment stability.

Recently special place in the system of motivation of civil servants, it takes the opportunity to have a flexible work schedule, additional days off and holidays, especially for women with children of preschool age.

The Russian labor market has recently begun to more and more resemble the labor markets of developed industrial countries, while retaining its own specifics. Countries with a developed market economy have long been accustomed to the phenomenon of a labor crisis, in which labor is alienated, its meaning-forming function is lost, labor values are devalued, and the motivations of economic agents change. The experience of overcoming such crises, which is available in foreign economies, has shown that the tools for resolving labor contradictions are the relationship between the position held and wages with work experience in the organization, and increasing wages for effective and efficient activities. World practice has accumulated a sufficient base of tools in the field of labor relations management and labor organization. These tools are more or less effective in different ways and in different situations, they capture changes in the organization of wages, in the organization of labor itself, in labor management, in changes in the qualifications of workers. This practice can also be used in the process of reforming the civil service of Russia, carried out to ensure high rates of socio-economic development of the country.

From the point of view of the economic approach to motivation, motivational relations implemented in the system of industrial relations determine the development of economic agents, their labor abilities, production skills, professional skills and experience. The main economic meaning of motivational relations is the management through motivation of economic agents (civil servants) and labor processes.

The key factors aimed at improving the performance of civil servants are:

setting individual goals and objectives for civil servants related to the goals and objectives of government bodies, as well as choosing the means to achieve goals, coordinating general, private and individual goals;

creation of favorable conditions for the development of the initiative, innovative approaches to the fulfillment of the task, delegation of authority to make managerial decisions to a lower level of management;

introduction of a system for evaluating the performance of civil servants and paying for results, covering a significant number of civil servants (including, without fail, senior and middle managers);

CHAPTER3 . IMPROVING METHODS FOR MOTIVATION OF PUBLIC SERVANTS

The study of the influence of the strength of the motive on the level of human activity was carried out back in the 20th century by M. Winterbottom, J. Atkinon, E. French, F. Thomas, X. Heckhausen.

Russian physiologist N.E. Vvedensky formulated the law of optimum-pessimum, the observance of which is necessary for the performance of mental labor. Unfavorable conditions for the productivity of managerial work are impulsiveness, a sudden acceleration of the pace of work, in which a person gets tired faster. The optimum is strictly individual, each person has his own rhythm and pace of work. Experimental studies carried out by E.P. Ilyin, V.V. Skryabin and M.I. Semenov, confirmed the existence of an optimum of motivation and the strength of the motive.

The strength of the motive depends on many factors, it can be influenced by various incentives, both material and non-material.

The close connection of the remuneration that an employee receives with the effectiveness of his activities brings income to both the employee and the organization.

At the Department of "State and Municipal Administration" IPKgossluzhby in 2006-2009. survey was conducted