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Project management in regional government bodies. Project management in public authorities based on ED Project management in public authorities example

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Target. Study of the level of maturity of modern project management in Russian authorities, analysis of the tools used in project management by public authorities. Analysis of the experience of Russian regions in the development, implementation and implementation of control measures in terms of project management.

Results and scientific novelty. The experience of federal and regional state structures, as well as state companies in the development of project management principles is analyzed. The factors preventing the displacement of the functional approach in the management of state programs and projects are given.

Keywords: state project , models for evaluating the maturity level of project management , project management in government bodies .

The Russian government admits that so far such a powerful tool for the development of innovations as project management is not being used effectively enough. In order for colossal budgetary funds not to be spent without a trace, but to work in the interests of the country's innovative development, a well-functioning and effective standard set of tools for implementing state innovation projects is needed.

Project management has been actively used in Russia for the past 10 years in various fields of activity, including (in descending order): state and international projects - 18%; innovation and R&D - 18%; information technologies - 16%; industry and transport - 13%; energy (oil, gas, electricity) - 11%; construction - 8%; social sphere - 8%; telecommunications - 5%; others (media, banks) - 3%.

There is a twofold situation in the modern management of state projects. On the one hand, within the framework of almost every area of state and municipal government, numerous programs and projects are being approved today. On the other hand, they are managed mainly on the basis of a functional approach, firmly rooted in the practice of authorities in our country. And this despite the fact that the project approach is necessary when transferring the implementation of state tasks to outsourcing. Only some regional and federal authorities at this stage introduce project management methods into their activities. Their experience requires study and analysis in order to expand the scope of the use of project management in the activities of government bodies.

The leading place in the development of project principles in the management of state projects is occupied by the Agency for Strategic Initiatives, Sberbank of Russia, RANEPA, and, of course, pilot sites, divided into 2 levels by the decision of the Council for the implementation of project management in the authorities of the Ministry of Economic Development of the Russian Federation. Pilot sites of the first level are the Ministry of Economic Development of the Russian Federation, the Ministry of Regional Development of the Russian Federation, the Ministry of Industry and Trade of the Russian Federation, the Perm Territory, the Belgorod and Yaroslavl Regions. Tomsk, Penza, Ulyanovsk and Vologda regions are classified as second-level sites. As for the numerous projects on the formation of e-government and the information society in Russia, most of them are within the competence of the Ministry of Telecom and Mass Communications and are being implemented by Rostelecom. By the way, these projects make up the bulk of innovations in public administration.

The rest of the projects are under the influence of the Ministry of Economic Development, which, without a doubt, should and actually acts as a leader among government departments in the implementation of project management, stimulating the spread of this approach in other government agencies. Deputy Minister of Economic Development, Leonid Osipov, is actively involved in the adaptation and implementation in Russian state structures of project management methods that have proven their effectiveness in countries such as France, Canada, the UK and Singapore.

Now the Ministry of Economic Development describes important areas of its own activities in the form of projects with the formulation of goals, objectives, activities and the relationship between them, which saves time and budgetary funds.

The introduction of project management is a strategically important process, which certainly requires thorough monitoring of how this approach is used in government at the present time. Based on the results of such monitoring, in the fall of 2013, Leonid Osipov presented a report on the experience of project management in executive authorities and companies with state participation. The report presents a comparative analysis of the main indicators of the implementation of project management in executive authorities at the federal and regional levels, as well as in companies with state participation.

The main results of the analysis of the level of development of project management in Russian state structures are demonstrated by the comparative diagram shown in Figure 1. But in general, the following conclusions can be drawn:

The terms of project management are used in 69.2% of federal executive authorities (FOIV), 70% of executive authorities of the constituent entities of the Russian Federation (OIV of the constituent entities of the Russian Federation) and in 100% of companies with state participation;
Methodological project management tools are used by 15.4% of the federal executive authorities, 12.5% of the executive bodies of the constituent entities of the Russian Federation and 81.5% of state-owned companies;
"Project Committee" (a collegial body for coordinating project management in executive authorities) or at least its equivalent has not been created in 76.9% of the federal executive authorities, 81.3% of the executive bodies of the constituent entities of the Russian Federation and 27.3% of state-owned companies;
A “project office” or its equivalent has not been created in 61.5% of the federal executive authorities, 68.8% of the executive bodies of the constituent entities of the Russian Federation and 0% of state-owned companies.

Most authorities and state-owned companies use a variety of information technologies for project management, but at the same time: 100% of the federal executive authorities, 87.5% of the federal executive authorities of the constituent entities of the Russian Federation resort to simple tools such as MS Word and MS Excel. And only 7.7% of the federal executive authorities and 18.8% of the federal executive authorities of the constituent entities of the Russian Federation use MS Project for scheduling. As for specialized information solutions for project management, only about 10-20% of executive authorities use them.

Thus, most of the 16 surveyed regional executive authorities demonstrate a low level of use of project principles of activity: organizational structures of project management, appropriate training and motivation of employees are not widespread. Companies with state participation are very active in developing this approach, which is a manifestation of one of the advantages of public-private partnership.

Rice. 1. Comparison of project management implementation indicators in federal executive authorities, authorities of constituent entities of the Russian Federation and in companies with state participation

Among the reasons why government agencies today do not often resort to project activities, experts unanimously note the lack of necessary skills and misunderstanding of the advantages of project methodology, as well as the well-established practice of functional interaction within ministries and the fear of losing control in project management. Indeed, in project management, the implementation of the state program involves employees from different functional departments of the body, possibly even from other departments and bodies of other levels of government, and when using outsourcing, also from executing organizations. This entails the need to build non-standard organizational structures and communication systems, the distribution of rights and responsibilities, which can become an extremely painful and confusing process for a highly formalized work of the state apparatus.

Nevertheless, the competent organization of the project office allows avoiding such difficulties and at the same time making the process of implementing the state program and an individual project more predictable. As a result, authorities can more rationally manage financial, material and human resources, and not just react to the circumstances that have arisen, solving particular functional problems without linking them to the strategy of the entire project. As noted by V.V. Dementiev, based on the analysis of the Russian experience, when switching to project management, costs are reduced by 15-20%, and the achievement of the goals set is accelerated by 15-30%.

In this regard, the question arises whether federal and regional authorities are ready for internal transformations, and civil servants for changing ideas about personal responsibility for the implementation of projects.

Experience of Russian regions

In Russian practice, there are precedents for the successful implementation of project management principles in regional authorities and state corporations, as well as experience in creating project offices. This creates a basis for the analysis and development of standard approaches to project management in public administration.

It should be noted that the pilot regions have all the necessary conditions for this, including qualified personnel for the implementation of projects and experience in implementing individual elements of project management.

Thus, in the Belgorod Region, project offices have been created not only at the level of the subject, but also in municipalities, the regulatory framework has been developed, and state programs are viewed as portfolios of projects with clear performance indicators. As for the formation of the organizational structure of projects, a management group and a project working group are usually created on the basis of the project executor. The personnel policy department of the Belgorod region is authorized to implement the project management system, and the main executor is the project management organization department (project office). At the project initiation stage, the initiator's application is registered with the Human Resources Department. After that, the decision on the future project is collectively made at the branch expert commissions. If the decision is positive, the general concept of the project implementation is adopted and the entire project is planned, which is reflected in the established forms - the project passport and the project management plan.

It is difficult to ignore the fact that it is difficult to imagine modern project management without the use of information tools for project implementation. Therefore, all projects are registered in the database of the general electronic document management system "Electronic Government of the Belgorod Region", with the help of which the entire progress of the implementation of each project is tracked by control points. All executive authorities both at the regional and municipal levels work in the database. At the moment, 1233 projects are registered in it, 622 projects are being implemented, 204 have been implemented, and the rest are at the time-consuming stage of development. Most of the projects are social, there are more than 465 units, followed by economic - 304, then technical - 238 and organizational -187.

As the experience of the Belgorod region shows, the project approach makes it possible to link the performance of civil servants with their material and moral incentives. In addition, it ensures the optimal distribution of time, human and material resources, helps to improve the quality of interdepartmental interaction in order to achieve a common and understandable result. The introduction of project management allows to reduce the time of work by 20-50% and at the same time minimizes budget overruns.

The project approach can be used as an optimal tool for the implementation of public-private partnership projects. A large-scale project, INOTomsk'2020, is being implemented in the Tomsk Region, which requires effective coordination of all participants - authorities, universities, large businesses, state corporations, based on a project approach.

In the near future, it is planned to consider the possibility of replicating the project management methodology based on an analysis of the experience of pilot regions.

Assessing the maturity level of project management

There are a number of maturity assessment models, most of which are linked to the relevant standard:

Harold Kerzner's five-level maturity model or Project Management Maturity Model (PMMM), which allows you to develop a plan for the development of project management in an organization by process areas: content, time, project risks, etc.
ORMS is a development by the PMI Project Management Institute to assess the maturity of project management based on PMBoK. The model has a high complexity of application due to the desire of the creators for universality, the results of the analysis for this model are reduced to a report on implemented and non-implemented best practices.
P3M3 (ThePortfolio, Program, andProjectManagementMaturityModel) is a maturity model for managing projects, programs and project portfolios, which was developed by the OGC Department of State Trade and allows you to assess the organization's capabilities, and then determine the appropriate development strategy for the project approach.
PRINCE2 Maturity Model (P2MM) It is derived from the P3M3 model from the same developer, but in relation to the assessment of the level of implementation of the PRINCE2 standard by an organization.

It should be noted that the analytical capabilities of maturity models as a management tool are limited, while the complexity, complexity and subjectivity of such an assessment are quite high. Perhaps this factor determines the fact that the Ministry of Economic Development did not focus too much on conducting a widespread assessment of the level of maturity of project management, but limited itself to conducting comprehensive monitoring.

However, one of the attempts of Russian researchers, Sinyavsky D.A., Morgunova N.V., Omarova T.D., is a model for assessing the level of development of tools and culture of project management in government (Figure 2).

In accordance with this model, the Russian public administration system is in a transitional state from the first level to the second. In particular, the presence of a project control system and a common project management methodology can be noted, and systematic training programs for project management training for all civil servants are also being developed.

Rice. 2. A model for assessing the level of maturity of an organization in the field of project management in government bodies (developed by the authors based on the developments of Sinyavsky D.A., Morgunova N.V., Omarova T.D.)

State-owned companies are leaders in implementation

project management methodology

The third level of maturity of project management in the implementation of innovative projects is demonstrated by the Savings Bank of Russia, which is forced to solve problems inherent in government departments. Among the features of activity common with state bodies, one can single out a large number of projects in the field of informatization (more than 350 projects in the Central Office and regions), their large budgets, low binding to ROI (Return Of Investmen), and territorial distribution. This required a restructuring of management processes from the corporation and the introduction of a new solution for project management automation based on the HP PPMC platform. The experience of Sberbank of Russia has shown that the unified automated project management system "AS Center for Project Management" provides coordinated management of the entire scope of project work and allows solving problems that are also relevant for authorities, namely:

conduct a comprehensive assessment of the impact of the totality of implemented projects on the achievement of strategic goals;
eliminate unreasonable and uncontrolled changes in goals, content and budget;
optimally allocate resources between projects;
evaluate the effectiveness of project results;
change the behavior and mentality of project managers;
increase the satisfaction of internal customers;
create a knowledge base on project management to improve the skills of project managers in the future.

State-owned companies mostly use modern technologies, including project management methodology. A new trend in 2014 is the implementation of infrastructure projects by state-owned companies together with private partners through the creation of special project companies (SPVs). The project company, on the basis of an agreement with state-owned companies, is implementing this project. The planned adoption of the law on public-private partnership also contributes to the development of this direction. This model allows, on the one hand, to bypass the restrictions on the timing of project implementation in the budget legislation, on the other hand, to exercise current control and monitoring of the progress of the project through the state customer's equity participation in the SPV.

It can be assumed that the project management experience will be adapted to the needs of the Russian authorities along the chain from foreign companies operating in Russia in accordance with international project management standards, to domestic businesses and state-owned companies, and finally to the authorities.

But, one way or another, it is necessary to institutionalize project management. In this regard, as well as in order to overcome the problems in the implementation of project management, indicated in the report of the Ministry of Economic Development, on April 14, 2014, the long-awaited Guidelines for the implementation of project management in the executive authorities were published.

They were developed during 2013 by the Council for the Implementation of Project Management in the Executive Authorities under the Ministry of Economic Development based on the analysis of Russian and international experience in the implementation of project management in the authorities. The methodological recommendations, uniform for the whole country, are designed to provide departments with ready-made and flexible tools that will help not only to implement projects more efficiently, but also to interact with each other in the implementation of joint activities and cooperate with attracted contractors due to the unification of approaches. However, it is required to test and evaluate the effectiveness of the developed principles of project management in the authorities at the regional and federal levels.

Conclusion

Thus, in the modern public administration of Russia, the implementation of project management is determined by a number of factors:

goals are initially only outlined, and there is a need to adjust them as intermediate results are achieved, their quantitative and qualitative assessment is difficult;
the timing and duration of the project depend on probabilistic factors or are just outlined and subsequently subject to clarification;
project costs, as a rule, are not optimized and depend on budget allocations;
resources are allocated as needed within the limits of the possible;
there is an administrative formalism in which innovations are introduced that only look modern without a proper analysis of their effectiveness in specific conditions;
changes in legislation occur without basic reforms;
organizational culture does not provide for risk and innovation;
there is an inertia of civil servants who perceive only initiatives coming down from above.

These and other factors predetermine the list of problems, the solution of which will allow expanding the use of project management in Russian authorities and companies with state participation:

Lack of a detailed methodology for the implementation of project management and the basis for the legal regulation of project management in the executive authorities;
Project management is not used as a tool to achieve strategic goals;
The rigid organizational structure in the executive authorities does not allow the formation of teams for the implementation of projects in accordance with the tasks;
Lack of project management specialists, state civil servants are not trained in project equation methods and their low motivation;
The need for unified, flexible and accessible software to support project activities.

However, no managerial innovation will bring its effect in an unprepared environment. The introduction of innovative information and management technologies should be accompanied by a change in the very organizational culture and motivation of government employees.

Literature

On the approval of the Guidelines for the implementation of project management in the executive authorities: Order of the Ministry of Economic Development of Russia dated April 14, 2014 No. 26R-AU [electronic resource] // Reference legal system "ConsultantPlus" URL: http://www.consultant.ru/document/ cons_doc_LAW_162120/ ConsultantPlus (accessed 20.04.2014)
On the draft Federal Law "On the Fundamentals of Public-Private Partnerships in the Russian Federation": Decree of the Government of the Russian Federation No. 331-r dated March 12, 2013 [electronic resource] // ConsultantPlus Legal Reference System. URL: http://base.consultant.ru/cons/cgi/online.cgi?req=doc;base=EXP;n=551468;dst=0;ts=68307C33AA62AD0893C3BE20A238D475;rnd=0.4180825185030699 (accessed 04/20/2014)
Minutes of the meeting of the Council for the implementation of project management in federal executive authorities and public authorities of the constituent entities of the Russian Federation dated June 17, 2014 [electronic resource] // Website of the Ministry of Economic Development of the Russian Federation Access mode-URL: (accessed 20.04.2014)
Website "Rossiyskaya Gazeta" [electronic resource]. URL: http://www.rg.ru/2012/12/12/mer-site.html (accessed 20.08.2013)
Dementiev V.V. Project management in the system of strategic management // Budget 2012. No. 9. C. 32-35 [electronic resource]. URL:http://bujet.ru/article/200687.php(Date of access 20.08.2013)
Sergachev V. A. Project management in the Belgorod region // Budget. 2012. No. 7. S. 48-50.
Sinyavsky D.A., Morgunova N.V., Omarov T.D. Study of the practice of project management in public authorities and local self-government (on the example of the Vladimir region) // Economics and Management. 2012. No. 8(93). S.96-100.

Bibliography

On approval of Methodical recommendations on implementation of project management in government bodies: Order of MEDT of Russia dated April 14, 2014 No. 26P-AU // Reference legal system “ConsultantPlus” URL: http://www.consultant.ru/document/cons_doc_LAW_162120 / Consultant Plus
On the project of the Federal law “On the basics of public-private partnership in the RF”: The RF Government Order dated March 12, 2013 No. 331-r // Reference legal system “ConsultantPlus” URL: http://base.consultant. ru/cons/cgi/online.cgi?req=doc;base=EXP;n=551468;dst=0;ts=68307C33AA62AD0893C3BE20A238D475;rnd=0.4180825185030699 (date of reference 04/20/2014)
Record of the sitting of the Council on implementation of project management in federal executive power bodies and government bodies of the RF dated June 17, 2014 // Site of the RF Ministry of economic development Access mode-URL: http://www.economy .gov.ru/wps/wcm/connect/economylib4/mer/ activity/sections/councilintrprojmanag/ 2014062610 (date of reference 04/20/2014)
Site "Rossiyskaya gazeta". URL: http://www.rg.ru/2012/12/12/mer-site.html (date of reference 08/20/2013)
Dementiev V.V. Project management in the system of strategic management // Budget 2012. No. 9. P. 32-35. URL:http://bujet.ru/article/200687.php (date of reference)
Sergachev V.A. Project management in Belgorod region // Budget. 2012. No. 7. P. 48-50.
Sinyavskiy D.A., Morgunova N.V., Omarov T.D. Research of practice of project management in government bodies and local self-government (exemplified by Vladimir region) // Ekonomika i upravleniye. 2012. No. 8(93). P.96-100.

Functional characteristics of the Russian managerial system of public projects

Purpose. Research of the maturity level of modern projects management in the Russian power bodies, instrumentarium analysis applied in projects management on part of power bodies. Analysis of the Russian regions experience in development, realization and holding of controlling operations in projects management.

methods. The authors apply methods of statistical analysis, comparative analysis and expert poll of public executives from government authorities of the RF subjects.

Results and scientific novelty. The author analyzes the experience of federal and regional public structures and government companies in the development of project principles of management.

key words:

Keywords

PROJECT / PROCESS / PROJECT MANAGEMENT / PROJECT MANAGEMENT SYSTEM / STATE AUTHORITY/ PROJECT OFFICE / PROJECT COMMITTEE / GUIDELINES / PROJECT MANAGEMENT STANDARDS/ PROJECT / PROCESS / PROJECT MANAGEMENT / PUBLIC AUTHORITIES / PROJECT OFFICE / PROJECT COMMITTEE / METHODIC GUIDELINES / PROJECT MANAGEMENT STANDARDS

annotation scientific article on economics and business, author of scientific work - Vasiliev Artem Igorevich, Prokofiev Stanislav Evgenievich

The article discusses the aspects of implementation project management systems in state authorities. Relevance project management due to new challenges to the public administration system in Russia. In modern conditions, the ability of the executive apparatus to implement the planned projects and tasks and achieve the goals set on time and within the established budgets becomes critical. Methods project management designed to mobilize and structure the resources of the organization to achieve the goals of the projects. Project management based on the project approach has a number of advantages, also noted in the article. object project management is a project as a specially organized set of works aimed at solving a specific problem or achieving a specific goal, the implementation of which is limited in time, and is also associated with the consumption of specific financial, material and labor resources. Therefore, it is necessary to distinguish project activities from the overall activities of the organization. To do this, the article analyzes the theoretical foundations of design and process activities, identifies their main features and differences. For proper construction project management principles of system organization are formulated project management and the areas in which design methods are most common are given. In conclusion, the main advantages of implementing the project approach are noted.

The text of the scientific work on the topic "Organization of project management in public authorities"

UDC 338.2 JEL M38

Organization of project management in public authorities

VASILIEV ARTEM IGOREVICH,

PhD student, Department of State and Municipal Administration, Financial University, Moscow, Russia [email protected]

PROKOFIEV STANISLAV EVGENIEVICH,

Doctor of Economic Sciences, Professor, Head of the Department of State and Municipal

Management, Financial University, Moscow, Russia

[email protected]

ANNOTATION

The article considers aspects of the implementation of the project management system in state authorities. The relevance of project management is due to new challenges to the public administration system in Russia. In modern conditions, the ability of the executive apparatus to implement the planned projects and tasks and achieve the goals set on time and within the established budgets becomes critical. Project management methods are designed to mobilize and structure the organization's resources to achieve project goals. Project management based on the project approach has a number of advantages, also noted in the article. The object of project management is a project as a specially organized set of works aimed at solving a specific problem or achieving a specific goal, the implementation of which is limited in time, and is also associated with the consumption of specific financial, material and labor resources. Therefore, it is necessary to distinguish project activities from the total activities of the organization. To do this, the article analyzes the theoretical foundations of design and process activities, identifies their main features and differences. For the competent construction of project management, the principles of organizing project management systems are formulated and the areas in which project methods are most common are given. In conclusion, the main advantages of implementing the project approach are noted.

Keywords: project; process; project management; project management system; state body; project office; project committee; Ministry of Economic Development; guidelines; project management standards.

Project Management Organization in Public Authorities

Second year Master Student, Department of Public Administration and Financial Control,

[email protected]

Doctor of Economics, Professor, Head, Department of Public Administration and Financial Control,

Financial University, Moscow, Russia

[email protected]

The aspects of implementing the system of project management into public authorities are considered in the article. The project management topicality is stipulated by new challenges in the system of Russia public administration. Executive bodies" ability to implement the planned projects and tasks and reach the set goals in time and within the established budget is becoming crucially important under the modern conditions. The project management methods are intended to mobilize and structure the organization"s resources in reaching the projects targets. The project management on the basis of project approach possesses a number of merits which are mentioned in the article as well. The project management object is a project as a specially organized complex of works aimed at solving the definite task or reaching the definite goal which fulfillment is not limited in time but is also connected with consumption of concrete financial, material and labor resources. consequently it is important to distinguish the project activity from the aggregate organization"s activity. For that purpose the article analyzes the theoretical bases of project and process activity, defines their main peculiarities and differences. For the correct building of project management the organization systems principles are formulated and the most spreading spheres for management methods are mentioned.

Keywords: project; process; project management; public authorities; project office; project committee; the Ministry of Economic Development; methodological guidelines; project management standards.

At the present stage, the Government of the Russian Federation is actively implementing and using the program-target approach in public administration. Its essence is that now the country's development strategy is supported by target indicators, which, in turn, are transformed into a list of executable state programs covering all aspects of the life of society and the state as a whole. Each state program contains an interconnected list of major activities - projects. In order to achieve the goals set and in modern conditions to spend budget funds more efficiently, it is necessary to introduce and use new management tools.

One such tool is project management. All over the world, project management methods have shown their relevance and effectiveness. The Government of the Russian Federation, having formed the budget process according to the program principle, thereby created the prerequisites for the development of the practice of project planning.

management in Russian state bodies. After all, the state program is the system of projects. At this stage, there is a need to improve the activities of public authorities in an appropriate way by introducing effective project management technologies.

Moreover, the use of project management methods as a key tool for improving the efficiency of the Government of the Russian Federation and federal executive bodies is reflected in the Main Activities of the Government of the Russian Federation for the period up to 20181. In his Address to the Federal Assembly2 President of the Russian Federation V.V. Putin singled out Project management as one of the key tools for effective management in government bodies. And following the results of the St. Petersburg International Economic Forum, the President instructed3 to create project offices in the regions as well.

In a state body (as in any other organization), two

1 The main activities of the Government of the Russian Federation for the period up to 2018 (new edition) were approved by the Chairman of the Government of the Russian Federation D. Medvedev on May 14, 2015 http://government.ru/media/files/OTqv2SI 5qYEuu2zOHkOAwguydbKD9Ckf.pdf.

2 Annual Address of the President of the Russian Federation to the Federal Assembly (for 2016) http://kremlin.ru/events/president/news/50864.

3 Order of the President of the Russian Federation dated July 14, 2015 No. Pr-13661 http://www.kremlin.ru/acts/assignments/o^ge/50024.

types of activities that differ significantly from each other: process (operational) and project. Process activity has a cyclical, repetitive nature. Most often, an organization is created to carry out specific processes. A process is a regularly repeated sequence of operations that consumes resources and creates some result that is valuable to the consumer. And, on the contrary, for the development, modernization, improvement of certain indicators, qualitatively new transformations are required, which are carried out through the implementation of projects. A project is a one-time set of activities, limited in time, creating a final unique result when many projects are combined, programs of projects are formed, including state programs.

In order to competently manage the project activities of the organization, it is necessary to be able to distinguish between the concepts of process and project. In table. 1 presents a comparative description of these two categories.

However, the implementation of any business process is a project. For example, if an enterprise had no experience in conducting tenders, then the organization of this process (competitive bidding for the supply of goods or the provision of services) will be a project for it. At the same time, the project consists of interrelated sequential processes, for example:

Project initiation;

Project planning;

Project execution;

Monitoring and coordination;

Completion of the project.

For government bodies, whose scope of activity includes a large variety of functions, goals and objectives, it is extremely important to determine where the boundary between project and process activities lies. Today, one of the urgent problems is still insufficiently high efficiency of the authorities. Often the work of employees of the authority is to perform an endless stream of various assignments and tasks. It is difficult to understand and understand in this stream what purpose this or that order belongs to. The main profit from the introduction of project management is an increase in the likelihood of achieving the set goals.

goals and minimization of risks, clear structuring of activities and budgetary effect, because the project approach helps to plan financial costs more accurately.

Let's highlight the features of project management inherent in the public sector:

1) carrying out activities within a strict legal framework;

2) accountability to higher authorities;

3) financing of projects at the expense of budgetary resources;

4) public reporting and public control;

5) ambitious project goals;

6) versatility, archival importance and scale of state projects;

7) focus on the social effect, and not on obtaining benefits from investing financial resources.

Project management as a concept includes a set of methods, tools and techniques aimed at achieving the goal of the project while balancing between the amount of work, resources (money, labor, time, materials), quality and risks. In order to introduce a unified methodology for the implementation of project activities in companies, various standards are applied. For example, there are:

International standards for project management (management):

ISO 10006:2003, Quality management systems - Guidelines for quality management in projects; adopted in Russia as GOST R ISO 10006-2005 “Quality management systems. Guidelines for Quality Management in Design”;

ISO 21500:2012, Guidance on project management (accepted in Russia as GOST R ISO 215002014 "Guidance on project management");

National standards with extended geography of application:

ANSI PMI PMBOK 5th Edition - A Guide to the Project Management Body of Knowledge (PMBOK Guide);

PRINCE2(PRojects IN a ControlledEnvironment);

ISEB Project Management Syllabus;

Oracle Application Implementation Method (AM);

National Project Management Standards (Russia):

Table 1

Comparative characteristics of the process (business process) and the project

Comparison Options Process Project

Cyclic Cyclic Unique

What regulates performance? Business process regulations, guidelines Project charter, project plan

Control of current execution Based on results, in some cases - on deviations in time at intermediate steps of the process On time, budget, resources

Execution manager Process manager (owner) Project manager

Risk intensity Low Significant

Optimization of execution Yes, if there are violations of the process No, but adjustments are possible in the course of execution

Continuous coordination of actions of performers No Yes

Methodical basis for management Process approach to management, TOM, ISO 9000, etc. Project management, PMBOK, etc.

Source: .

GOST R 54869-2011 “Project management. Requirements for project management;

GOST R 54870-2011 “Project management. Requirements for project portfolio management”;

GOST R 54871-2011 “Project management. Program management requirements.

In 2013, in order to introduce and develop project management in public authorities, the Council for the Implementation of Project Management in Federal Executive Authorities and Public Authorities of the Subjects of the Russian Federation was established. The Council includes representatives of state authorities of the Russian Federation, commercial organizations, scientific and educational institutions. For state bodies, the Council for the Implementation of Project Management in Executive Authorities developed Methodological Recommendations for the Implementation of Project Management in Executive Authorities (Methodological Recommendations) (see Order of the Ministry of Economic Development of Russia No. 26R-AU dated April 14, 2014

According to experts of the Ministry of Economic Development of Russia, the application of the approaches laid down in the Methodological Recommendations will ensure the achievement of goals while minimizing the time frame, increase the efficiency of the resources used, and ensure transparency, validity and timeliness of decisions made. In addition, the toolkit of the Methodological Recommendations will help departments to interact more effectively in the implementation of joint activities and cooperate with contracting organizations involved.

The Methodological Recommendations contain approaches, principles, the procedure for implementing project management, and standard templates for regulatory methodological documents for their implementation in executive authorities; in addition, management processes are formalized that need to be implemented or modified during the transition to a project-oriented management system.

The value of the Guidelines is also in the fact that they have passed all the checks and approvals of a legal nature, and this is extremely important for government agencies. The public authority can safely apply the provisions of the document without fear of questions from the legal departments.

The figure shows a model of a project-oriented system proposed by the Ministry of Economic Development. As follows from the figure, the methodological recommendations prescribe to distinguish between the main and auxiliary processes. The main processes include:

1. Strategic management.

2. Tactical management.

3. Project management (process management and operational management are not core within the framework of project management, therefore they are not considered in the Guidelines).

1. Motivation management of project participants.

2. Competence management of participants in project activities.

3. Organizational support for project activities.

4. Technological support for project activities.

An auxiliary process is, in fact, a block of sub-operations within a certain direction that fill each stage of the implementation of project management.

Organizational support of project activities is responsible for the administrative support of the functioning of project management by creating project roles, specialized structural units and collegiate bodies within the organizational structure of the executive authority - Project Committee, Project Office.

The Project Committee is an advisory body that makes managerial strategic and tactical decisions in terms of planning and monitoring the implementation of projects, achieving milestones and indicators of the executive authority.

The project office is a structural unit responsible for the methodological and

organizational support of project management in the organization, tactical and operational planning and control of the project portfolio, implementation and development of an information system for planning and monitoring projects, formation of consolidated reporting on programs / projects.

The purpose of managing the motivation of project participants is to improve the quality of project implementation by increasing the efficiency of project participants. As part of this process, key performance indicators (KPIs) are determined for the project as a whole, a block of activities, a specific participant, their evaluation, determination of bonus coefficients, calculation of bonuses and organization of payment.

The competencies of participants in project activities are managed to form the necessary skills and knowledge among the staff, as well as to develop a project culture in the organization.

The main task of technological support for project activities is the creation and maintenance of a project management information system - an automated system created to minimize costs, increase the speed of work and centralized accounting and storage of information.

At each stage of organizing a project management system in a state body, within the framework of each auxiliary process, a set of activities is implemented that are interconnected and necessary for the further development of the system. In the Guidelines, the procedure for implementing project management is described in the third section, however, these operations are not formally grouped by stages.

At its core, the Guidelines are a comprehensive methodology for organizing a project management system in public authorities. For the entire public administration sector, this is undoubtedly the most important step towards the development of project management in government.

It is worth noting that the project management system (SPM) as a higher and more complex form

Model of a project-oriented management system (according to the Methodological recommendations of the Ministry of Economic Development)

organization of project management allows you to centralize project management processes, structure them, mark best practices and replicate them.

For the competent construction of project management, the entire process of organizing its system in executive authorities should rely on the following principles.

The introduction of SPU is a project. Accordingly, like any other project, the SPM should be developed using design techniques.

Subsequence. The project management system is being implemented in stages, with allocated achievable deadlines.

Focus on clear results. The results of activities for the creation of SPM should have a dedicated utility and practical applicability: Project Committee, Project Office, Project Management Information System (PMIS), trained personnel, scorecard, motivation, document templates, regulations, etc.

Certain directions (for auxiliary processes).

The developed solutions should be supported in all blocks of work: organization - motivation - training - 1T.

Gradual complication. At the initial stage, it is necessary to create and practice simple techniques, gradually complicating the system, adding new elements and connections to it.

Iteration. Approbation of developments, identification of errors, their correction and fixing the result.

Integrity. Solutions are interconnected and have a synergistic effect.

Simplicity. Orientation towards unification, typification of solutions without loss of efficiency.

Flexibility. Elements of the system can be adapted to changing organizational, technological, and external conditions.

Utility. The implemented project management system should increase the efficiency

and performance of the public authority.

In conclusion, it should be noted that although project management is recognized as a highly effective tool for implementing large-scale, unique tasks, it is worth approaching its implementation very carefully, since project management

more expensive than usual, requires additional labor, time, special skills and knowledge. It is extremely important to first determine where the project approach will be effective, and where, on the contrary, it will become an extra load and burden. It is not necessary to transform every small task into a whole project, to engage in project

table 2

Stages of implementing a project management system in a government agency

(generalized view)

1. PREPARATORY STAGE

Appointment of a person responsible for the implementation of a project management system in a state body Determination of the purpose of creating an SPM Directions of work Drawing up a roadmap: stages of work, results, responsible, terms (advanced planning) Project launch

2. ORGANIZATION OF THE PROJECT MANAGEMENT SYSTEM

(1T)

Organization of the work of the Project Committee, Project Office and their integration into the organizational structure of the state body. Development of regulatory documents (orders, procedures). Register of projects maintained by the state body. Selection of pilot projects, start of development of processes Development of a set of key performance indicators (KPIs). Drafting of normative documents Training of civil servants involved in the implementation of the SPM on the pilot circuit Development of functional requirements for the Project Management Information System (PMIS). Organization of the procurement of services for the implementation of ISPU (selection of the contractor according to Federal Law-44). Creating a prototype layout

3. WORKING THE STC ON THE PILOT

Organizational support Participant motivation management Competence management Technological support

Support for pilot projects. Development and approval of the methodology on pilot projects. Development of the Project Committee and Project Office Development of the SPU motivation block. Approbation on pilot projects and their teams Organization of training of managers and teams of project pilots Development and implementation of the first version of ISPU. Gather feedback and fix bugs

4. REPUBLICATION

Organizational support Participant motivation management Competence management Technological support

Connection of new projects. Development of project office services: detailed scheduling, risks, analytical reporting Clarification and approval of the regulatory SPM Training of project teams, assessment (control cut) and development of competencies in the PI Support from the ISPM within the 2nd and subsequent stages of implementation. Transfer of ISPU to commercial operation

management for the sake of project management itself.

Many internal development projects to improve the efficiency of the organization are more successfully implemented using project management methods. Thus, the main advantages of the project approach are:

Improving the quality and efficiency of the work of employees through productive project management methods and the effectiveness of personnel control;

Predictability of the timing and results of work, since the project has a plan and schedule for its implementation;

The ability to quickly adjust the goals, objectives and, accordingly, if necessary, the tactics of the project;

The ability to quickly connect newcomers and partners to the project;

Optimization of the timing of problem solving;

Improving the efficiency of interaction between project participants.

The advantages of the project approach to project management have made it one of the most popular methods of management. Thus, project management methods can and should be applied in the project activities of state bodies.

LITERATURE

1. Prokofiev S.E., Murar V.I., Rashkeeva I.V., Elesina M.V. Project financing: essence and meaning // Internet journal "NAUKOVEDENIE". 2014. No. 6. [Electronic resource] URL: http://naukovedenie.ru/PDF/02EVN614.pdf.

2. Gagarsky V. A. Process and project management // Portal "Professional project management". [Electronic resource] URL: http://www.pmprofy.ru/content/rus/219/2197-article.asp.

3. Nikolaev A.A., Dunaeva A.I., Udachin N.O. Improving the processes of project management in the Russian Federation // Internet journal "NAUKOVEDENIE". 2014. No. 3..

4. Morgunova N.V., Filimonova N.M. Methodological Approaches to Evaluation of the Best Practices of Application of Project Management Methods by Public Authorities // Russian Journal of Entrepreneurship. 2013. No. 23 (245). C. 10-19.

5. Shestopalov P.L. Right the first time // Budget. 2015. No. 8. S. 74-77.

6. Efremov V. S. Project management: models and methods of decision making // Management in Russia and abroad. 2001. No. 6.

7. Materials of the official website of the Ministry of Economic Development. [Electronic resource] URL: http://economy.gov.ru.

8. Guidelines for the application of project management in solving the problems of improving the investment climate in the constituent entities of the Russian Federation, developed by the autonomous non-profit organization Agency for Strategic Initiatives to Promote New Projects. [Electronic resource] URL: http://asi.ru/upload/iblock/238/MetodicheskieRecomendazii_all.pdf.

9. Krasnov A. S. Birth of project culture // Budget. 2015. No. 8. C. 32-35.

10. Moiseev I.V. Project management of the implementation of strategies // Byudzhet. 2015. No. 12. P. 54. [Electronic resource] URL: http://old.creativeconomy.ru/articles/30872.

1. Prokofyev S.E., Murar V.I., Rashkeeva I.V., Elesina M.V. .ru/PDF/02EVN614.pdf (in Russian).

2. Gagarsky V. A. Processnoe i proektnoe upravlenie. Portal "Professional upravlenija proektami" - Portal "Project Management Professional", 2010. Available at: http://www.pmprofy.ru/content/rus/219/2197-article.asp (in Russian).

3. Nikolaev A.A., Dunayev A.I., Udachin N. O. Sovershenstvovanie processov proektnogo upravlenija v Rossijskoj Federacii . Internet-zhurnal "NAUKOVEDENIE" - Internet magazine "Science of science", 2014, no. 3..

4. Morgunova N.V., Filimonova N.M. Rossijskoe predprinimatel "stvo - Russian Entrepreneurship, 2013, no. 23 (245), pp. 10-19. Available at: http://old.creativeconomy.ru/articles/30872 (in Russian).

5. Shestopalov P.L. S pervogo raza pravil "no . Bjudzhet - Budget, 2015, no. 8, pp. 74-77 (in Russian).

6. Efremov V.S. Proektnoe upravlenie: modeli i metody prinjatija reshenij. Management v Russia i za rubezhom - Management in Russia and abroad, 2001, no. 6 (in Russian).

7. Materialy oficial "nogo sajta Ministerstva jekonomicheskogo razvitija. Available at: http://economy.gov.ru (in Russian).

8. Metodicheskie rekomendacii po primeneniju proektnogo upravlenija pri reshenii zadach uluchshenija investicionnogo klimata v sub#ektah Rossijskoj Federacii, razrabotannye avtonomnoj nekommercheskoj organizaciej “Agentstvo strategicheskih iniciativ po prodvizheniju novyh proektov” . Available at: http://asi. ru/upload/iblock/238/MetodicheskieRecomendazii_all.pdf (in Russian).

9. Krasnov A.S. Rozhdenie proektnoj kul "tury. Bjudzhet - Budget, 2015, no. 8, pp. 32-35 (in Russian).

10. Moiseev I. V. Proektnoe upravlenie realizaciej strategij. Bjujet - Budget, 2015, no. 12, pp. 54 (in Russian).

From process management to project management

Previously, the activities of the authorities were more process-oriented. The main task of project management is to move away from the process and come to the result. The introduction of project management () should increase the efficiency of the use of resources and the interaction of authorities with other organizations, as well as increase the transparency, validity and timeliness of decisions, i.e. ensure the achievement of planned results.

To this end, on April 14, 2014, the Ministry of Economic Development of the Russian Federation prepared Decree No. 26R-AU, which approved methodological recommendations for the implementation of project management in executive authorities. In the format of recommendations, it is difficult to take into account the specifics of different organizations, projects and programs. Moreover, the current version of the recommendations is focused on the implementation of project management within one organization, although, according to our experience of interaction with government agencies, we should be talking about organizing the work of all EPOs in the region. But to get started, these recommendations are enough. Let's go directly to them.

There are four levels in the management system of the executive authority: strategic, tactical, operational and operational. Each level is characterized by its own planning horizon and control frequency. A more detailed model of a project-oriented management system is presented in Appendix No. 2 of the recommendations.

When moving to a project-oriented system, the following processes must be implemented or modified:

project management;
managing the motivation of project participants;
management of the competencies of participants in project activities;
organizational support for project activities;
technological support for project activities.

The main project management tools are:

Project passport (reflects key information on the project - goals, objectives, results, success criteria, implementation period, risks, etc.).
Project schedule (includes activities, milestones for the project, links between them, responsible executors, timing of the implementation of activities and achievement of milestones - Gantt chart).
Reports on the project (examples of reports are presented in the Appendix to the Guidelines).

A tool for technological support of project activities is a project management information system.

About the implementation of project management

It is worth paying attention to the matrix for the implementation of the project management information system modules by queue (Appendix No. 9 of the recommendations). It shows the functionality of a particular module and the sequence of its implementation. The distribution of functionality in queues is carried out according to the principle “from simple to complex”. The division of work into queues allows not only to highlight the results that are significant for the RIA, but also to correct them during implementation.

In general, the proposed timeframe for the implementation of project management is one year, and another year is allotted for the development of the solution.

EDMS capabilities for project management

How can the experience gained by them and the already implemented document management systems (EDMS) help government agencies?

Methodological recommendations in conjunction with the existing experience in the implementation of the EDMS should give a synergistic effect in the transition of OIV to project management, while ready-made solutions can be used as a tool for implementing such management. And although no solution most likely has all the functionality listed in the recommendations, you can choose the most suitable one and build a project management system in your region on its basis.

To assess the applicability of a particular system, the "Matrix for the implementation of PMIS modules by queue" will help. You just need to add columns for each solution to it and note the presence or absence of modules from the list proposed in the recommendations in them.

Similarly, we can compare two solutions on the DIRECTUM platform (shown in the table). The necessary functionality is partially provided by the basic system capabilities (a module for storing project documents and maintaining a knowledge base for projects, an administration module, etc.).

An example of comparing two technical solutions in accordance with the matrix for the implementation of PMIS modules by queue

Modules	Submodules	Queue	Contents of the module	DIRECTUM. Project document flow»	Akelon Projects
1. Project certification module	Certification of projects	1	TS Projects (30 details + 2 tabular parts with 4 columns)	+	+
2. Timing management module	By control events	1	TS Project Schedule Report “Milestone Plan” TM Project initiation TM Approval of project documents	±	+
2. Timing management module	Calendar-network planning	2	Project Schedule Report - Integration with Project	—	+
3. Performance management module	Entering indicators, accounting for planned values	1	TS Project results	—	—
3. Performance management module	Tracking the actual values of indicators	1		—	—
4. Personnel management module	Maintaining registers of users, departments, project roles and their comparison (access matrix). Contacts of project participants	1	TC Project roles	+	+

Solution «DIRECTUM. Project workflow ", in our opinion, is suitable as a basis for finalizing the system" for itself. In this solution, the cards are not overloaded with information, and the stages and roles follow the recommendations.

The advantage of the Akelon Projects solution is the functionality of calendar and network planning.

Summarize

The choice of how to achieve the objectives of the RIA and the type of management system remains with the organization and users.

Government bodies have been using information systems for a long time and set themselves the task of considering options for implementing project management within the framework of the current system. In some regions, there are successful practices for introducing project management mechanisms, and it is necessary to correctly use this experience in others.

The result will be positively affected by the involvement of specialists with successful experience at the initial stages. In particular, companies implementing EDMS are initially focused on project work, and already during the implementation of the system there will be an opportunity to try project management. At the same time, one should not forget about the risks associated with legal restrictions and the policy of import substitution. In the future, external specialists complete the work, transfer competencies and a working solution to OIV specialists.

Despite all the fundamental differences in the basics of activity between business and government bodies, project management as a form of work organization can be applied in the work of government bodies. Understanding the benefits of project management exists at the highest level, therefore, in the Main Activities of the Government of the Russian Federation for the period up to 2018, a partial transition to project management in public authorities is envisaged.

The relevance of the implementation of project management in the authorities

Global practice shows that business companies always respond more quickly and flexibly to innovation processes taking place in the country and the world, since their competitiveness and profit often depend on this. State bodies that do not have external pressure from competitors treat changes with distrust. However, in modern conditions it is necessary to increase the efficiency of the activities of state bodies in terms of setting goals and their timely implementation.

To promote this process, in 2013 the Russian Ministry of Economic Development created a Council for the implementation of PE in government bodies, which also included representatives of business, education and science. The methodological recommendations developed by him determine the following goals for the implementation of PU:

achievement of planned results in a shorter time;
more efficient use of resources, incl. state and local budgets;
validity, timeliness and transparency of decision-making;
improvement of vertical and horizontal intra- and interdepartmental communications.

The absence within the framework of state and local targeted programs and subprograms of such an element as a project with a specific final product, clear deadlines and envisaged financing blurs the essence of these programs, often reducing them to the implementation of so-called "activities", the expediency of which is not obvious. In addition, interdepartmental complex projects often "slip" due to the lack of proper interaction, working groups are generally ineffective, so the connecting role of the project manager, endowed with full power, will be important.

No less relevant is the issue of introducing project management in local governments, where the real result of the work is evaluated not only by higher authorities and regulatory authorities, but also directly by residents of the territories.

Features of the application of the principles of PP in state bodies

The introduction of project management in governments across the country is in itself a large-scale project. Therefore, its implementation must also be divided into successive stages:

organizational (system formation, distribution of functions);
methodological (development of provisions, regulations and other documentation);
technological (creation of an information system common for all EOI);
training (assessment and approval of competencies, training of specialists).

All projects in the authorities (state or municipal) are divided into three types:

priority - key initiatives controlled personally by the head of the body;
internal - implemented by the divisions of the OIV;
external - implemented by external organizations under the control of the authority.

When implementing PU, National Standards GOST R 54869-71-2011 are applied, as well as proven specialized planning tools are used - computer programs MS Project, Spider Project, Primavera and others.

To organize work at different levels, TsOIV and regions are created (basic, managerial or strategic). They include curators interacting with each other from the teams of the customer and the contractor and, accordingly, industry and project managers. Offices perform the following functions:

participate in the formation of goals and indicators of the implementation of the plan;
prepare documentation and schedule;
provide management of project portfolios, coordinate the efforts of different performers, resolve problematic issues;
identify and assess risks, promptly respond to them;
control the implementation of processes at all stages and compliance with their standards;
provide contract activities, accept the results of activities;
Responsible for document management and reporting.

It should be noted the features of project management that are characteristic of public authorities and distinguish them from the implementation of initiatives by business structures:

the need to operate in a highly restricted legal environment, especially in terms of procurement and compliance with tender procedures;
attracting financial resources from the state and local budgets;
accountability to higher levels of government;
public control and public reporting;
scale, importance and versatility of ideas;
the focus is not on financial profit, but on the social effect.

The use of a new, more modern type of management activity can give a noticeable economic effect in the form of improving the quality and efficiency of work, increasing the investment attractiveness of the state as a whole and its regions, creating jobs, and increasing GDP. Another positive side of this is the increase in the efficiency and openness of the authorities, the formation of a favorable administrative environment.

Problems in the process of implementing the principles of project management and ways to overcome them

Difficulties in introducing project management principles into the activities of public authorities and local governments most often arise due to insufficient flexibility and overregulation of structures, the lack of properly trained specialists and resistance to any changes on the part of employees at all levels.

At the present stage, the main challenges to innovation are:

bureaucracy and focus on compliance with all the necessary formal processes, and not on achieving the final result;
misunderstanding and unwillingness of changes initiated by the use of PU;
inability to predict and work proactively, problems begin to be solved only after they arise;
concentration of powers, leading to a predominantly authoritarian leadership style, which suppresses the initiative of employees;
insufficient competence of personnel to work according to plans and their negative motivation (additional workload often without material incentives).

In order to overcome the inertia of the managers of the old formation and modernize the structures of the public sector and local self-government, it is necessary to pay special attention to the following areas of activity:

continuous training of employees, both managerial and rank-and-file, in the direction of increasing specific competencies to solve certain professional tasks;
certify personnel according to modern management standards;
increase the motivation of employees (material and moral) based on the results of personal effectiveness and the overall success of the undertaking, organize feedback from performers with managers;
when implementing PM principles in an organization, move from simple initiatives to complex multi-component undertakings;
record the results of each stage, determine its disadvantages and benefits, make the necessary changes to the passport and record again;
maintain the integrity of the initiative across all areas of work (from initiation to acceptance and final report);
clearly distribute roles and responsibilities between employees in order to avoid poor performance of assigned functions.

In order to prevent the failure of deadlines and poor performance of work, it is advisable at first to involve experienced managers with experience in successfully implementing projects on outsourcing terms to manage government initiatives.

At the same time, the team should include specialists from executive authorities to acquire the necessary skills. It is best to start with the implementation of pilot projects and then extend the experience gained to other designs.

Project management in regional government bodies. Project management in public authorities based on ED Project management in public authorities example

Literature

Bibliography

Functional characteristics of the Russian managerial system of public projects

annotation scientific article on economics and business, author of scientific work - Vasiliev Artem Igorevich, Prokofiev Stanislav Evgenievich

Related Topics scientific papers on economics and business, the author of scientific work - Vasiliev Artem Igorevich, Prokofiev Stanislav Evgenievich

The text of the scientific work on the topic "Organization of project management in public authorities"

The relevance of the implementation of project management in the authorities

Features of the application of the principles of PP in state bodies

Problems in the process of implementing the principles of project management and ways to overcome them