32.doc

General approaches to forming the structure of local administration

The structure of the local administration of urban districts and municipal districts usually includes:

· head of Administration;

· Deputy (deputies) heads, one of whom may be the first;

· sectoral structural divisions dealing with specific sectors of the municipal economy (for example, housing and communal services, culture, etc.);

· functional structural units covering a specific function for the entire administration (economic service, financial, legal, municipal property management, etc.);

· territorial bodies created in areas of large cities or in populated areas, which together constitute an urban or rural settlement;

· the apparatus of the local administration, ensuring its activities (legal department, personnel, accounting, business production, etc.);

· support services ensuring the maintenance of the premises, drivers, cleaners, etc.

The legislator in part 8 of article 37 of Federal Law N! 131-FZ only established the legal norm that the structure of the local administration may include sectoral (functional) and territorial bodies of the local administration, and provided the opportunity for more detailed regulation of the relevant issue to the representative body of the municipality

Under formation of the local administration structure This means the formation of committees, departments, services and other structural units and the endowment of their own competence within the framework of the powers established by the charter of the municipality for the local administration as a whole. When forming the structure of local administration, it is necessary to take into account:

· specific features municipality(its size, population density, features of the organization of service provision, etc.);

· a list of issues of local importance established for the corresponding type of municipal formation, other issues established in the charter, the presence of transferred state powers, etc.;

· the degree of development of various forms of self-organization of the population capable of participating in solving issues of local importance.

When determining the structure of the local administration and the distribution of powers between its divisions, it is necessary to proceed from the following principles:

· expediency and logic, clear delineation of functional blocks; . avoiding duplication and parallelism;

Completeness of coverage 104 and avoidance of gaps in resolving issues of local importance by the local administration as a whole; . effectiveness, which provides for the possibility of assessing (measuring) the achieved work result;

· sufficiency of support, which involves providing the structural unit with a sufficient amount of material, legal, information and other types of support for the proper performance of its functional responsibilities;

· consistency and relationship with other departments, i.e. when describing the functions of a structural unit, taking into account its relationships with other structures;

· structuring (detailing), i.e. dividing the functions of a structural unit into the functions of individual specialists, who are assigned to them in the form of job responsibilities;

· efficiency, which means achieving the designated goal

And solving department problems at the lowest cost; · preventing the principle of creating structures “for people”;

· a unified approach to the formation of structures and determination of the staffing levels of local government bodies.

^ Structure of local administration for settlements of various sizes

Head and Deputy Heads of the Administration. The local administration is headed by head of local administration, who is either the head of a municipal entity or is appointed to a position under a contract (Parts 1 and 2 of Article 37 of the Federal Law). To organize the activities of the head, the local administration may provide for the position of a secretary who is responsible for office work. In large settlements, the presence of a secretariat is acceptable. In small settlements, the functions of the head’s secretary can be assigned to a specialist supervising general issues, office work and archiving. If there is a deputy head in the administration structure, it is possible to instruct the secretary of the head to perform secretarial functions for the deputy.

In larger settlements (more than 3,000 people), the position of deputy head of administration is introduced. The distribution of functions between the head of administration and his deputy can be organized in different ways. The head may be directly responsible for the most important directions- economic and financial blocks, development planning. In addition, a structure is possible in which all specialists involved in organizational and administrative issues are directly subordinate to the head. The deputy head may oversee issues of property management and the provision of municipal services, or be responsible for social issues.

In settlements with a population of over 5,000 people, two positions of deputy head of the settlement may be introduced, one of which is the first. The following distribution of responsibilities between two deputy heads is possible: the first deputy is responsible for property management and the provision of municipal services, the second - for social issues or for social and organizational issues.

In large settlements with a population of over 10 thousand inhabitants, in which the administration exercises a large amount of powers, the representative body of the settlement can establish three positions of deputy heads of administration, as a rule, overseeing development issues, issues current state and issues of ensuring activities and interaction; one of the deputies is at the same time the first deputy head of the settlement administration with the corresponding powers.

With regard to delegated state powers (if any), it seems that these issues can be supervised by the head himself or his deputy, or a special employee (in larger settlements).

The practice of creating additional positions for deputy heads should be avoided, not for the purpose of solving problems, but “for a specific person.” This leads to the growth of the administrative apparatus, duplication of functions, which results in a decrease in the efficiency of the entire administration and additional unreasonable expenditure of budget funds.

^ Structural divisions of local administrations. For structural divisions of local administrations, the most adequate name is “department” (in medium and large settlements). It seems that the terms “management”, “main directorate”, “department” are more characteristic of the bodies state power(ministries, regional governments or administrations of constituent entities of the Russian Federation) and should not be recommended for use at the municipal level.

It should be noted that in practice, in local administrations, the number of department employees is usually very small (sometimes 2-3 people), although experts believe that the number of independent departments should be at least 10 units. Therefore, for small settlements, we recommend that the administration structure include primarily specialists responsible for specific blocks of issues, and not create departments unnecessarily. Otherwise, there is an unreasonable increase in the number of management personnel. In addition, often many heads of departments actually perform the functions of specialists; in their activities there is no work on making management decisions, and this is precisely the main content of the functions of any manager.

To resolve issues of local importance settlements In the local administration there should be divisions (or relevant specialists):

· on economics, strategic development and municipal property;

For finance;

For municipal services, for social issues;

For organizational issues.

In aggregate, the areas of activity of the divisions of municipal administrations can be presented as follows.

The Economics and Strategic Development Division oversees the following blocks of issues: socio-economic development, forecasting and strategic planning, development planning, land management and control of land use, as well as relations related to the management of municipal property, business development, -creating a favorable investment climate, etc.

The finance department is one of the main participants in the budget process. His powers include the formation of a draft budget, participation in the preparation of the main documents necessary for drawing up a draft budget (registry of expenditure obligations, long-term financial plan, etc.); budget execution, budget execution control, etc.

The municipal services division is responsible for the provision of public services, the provision of social housing to the poor, transport services, road maintenance, communications, catering, trade and consumer services. In addition, the area of ​​responsibility of this unit includes issues of landscaping, landscaping, collection and removal of household waste, burial sites and funeral services.

The social affairs division oversees guardianship and trusteeship, cultural development, library services, physical education and sports, and the organization of mass recreation.

The division for organizational issues essentially organizes the functioning of all divisions of the local administration. Here legal issues are resolved, economic-organizational relations are regulated, decisions are made on personnel issues, and the local administration communicates with other local government bodies, primarily with the representative body. This unit is also responsible for public relations and media relations, information work. Record keeping and archive formation are also carried out here. In large settlements, issues of emergency situations and primary fire safety may be transferred to the competence of this unit.

The execution of transferred state powers, depending on their nature, can be organized in different ways. These functions can be taken over by the head of the administration or his deputy, a separate specialist (or several specialists) can be introduced to resolve these issues, or the implementation of state powers, taking into account their specifics, can be divided between various specialists within the local administration.

The purpose of this chapter is to study local authorities as a management link in the system of municipal government. Issues of building and improving organizational structures of executive bodies are considered local government, planning and organizing their activities based on modern technologies of municipal management, personnel and information support for municipal management, organization of control in the municipality. The criteria and methods for assessing the effectiveness of municipal government are characterized.

Mastering the material in the chapter will allow the reader to master the methods of forming rational models and organizational structures of local governments and practical solutions to the problems of municipal government in relation to the characteristics of a particular municipal entity

Factors influencing the organizational structure of local administration

The general structure of municipal authorities, the division of powers and the system of relationships between its three main links (representative body, head of the municipality, local administration) were considered in Chapter 1 mainly from a legal perspective. Here we are talking about practical organization and technological process municipal government. The most important role in this process is played by the local administration as the executive and administrative body of the municipality. Therefore, the presentation of issues related to the organization of municipal government begins with a consideration of the organizational structure of the local administration.

Organizational structure is the most important factor in the activities of a local government body, the form in which the process of municipal government is implemented.

The organizational structure is understood as the composition and subordination of interrelated organizational units (individual positions), units (managerial units) and steps (levels) endowed with certain rights and responsibilities for performing the corresponding target management functions.

A control link is a separate cell with strictly oriented control functions, and a control stage (level) is a set of control links located at a certain hierarchical level.

It was shown above that municipalities differ significantly in the size of their territory, the size and composition of the population, their position in the system of territorial division of labor, economic potential, the composition of the municipal economy, and the level of development of engineering and social infrastructure. The type of municipal formation predetermines the composition of the subjects of local government, which, in turn, determines the scope of tasks and functions of all municipal government bodies, including the administration.

The goals, objectives and functions of municipal government directly influence the structure of the local administration and serve as the basis for the identification of independent units in it that are responsible for achieving specific goals and solving individual problems. specific tasks. The more complex the economic complex in a particular municipality, the more important the interconnection of all its components is, comprehensive solution issues of socio-economic development and protection environment. Accordingly, to achieve these goals, appropriate structural units are organizationally allocated or strengthened within the administration.

The composition of the main factors influencing the organizational structure of the local administration is presented in Fig. 8.1.1.

Municipal entities, which differ in the composition of the tasks and management functions to be solved, and the required volume of management work, differ in the number and internal structure of executive bodies. The staff of the administration of a large urban district can number hundreds of employees and dozens of structural units, while the staff of the administration of a small rural settlement is only 5-7 employees.

Along with the listed external factors, it is necessary to highlight internal factors affecting the structure of the administration: personnel, equipment, management technology, labor organization. On the one hand, they influence the organizational structure of management, on the other, they themselves are determined by it. Thus, management personnel influence the management structure in terms of redistribution of functions between departments and individual employees. But basically it is the management structure that determines the composition of positions and requirements for personal qualities workers. The introduction of information technology affects the structure of the administration in terms of both a reduction in the number of employees in individual departments and the emergence of new departments (information services). When forming the organizational structure of the administration, it is necessary to take into account both external and internal factors.

The most important factor influencing the formation of an organizational structure is the norm of controllability (range of control).

The controllability norm is the maximum permissible number of employees whose activities can be effectively managed by one manager under certain organizational and technical conditions.

Both the number of employees in a particular unit and the number of administrative units depend on the standard of control. In turn, the controllability rate depends on a number of factors (Fig. 8.1.2).

Principles of building the organizational structure of the administration

The formation of the structure of local administration is the organizational assignment of certain functions of municipal government to individual management units and officials. The solution to this complex problem is provided based on a combination scientific methods with the subjective activity of specialists. Therefore, when designing organizational structures, it is important to follow the rules (principles) of their construction, which include: focus on achieving goals, prospects, ability to develop (adaptability), complexity, individualization, efficiency. Let's look at these principles.

The organizational structure should contribute to achieving the goals of municipal management. This is ensured by: establishing the rights and necessary fullness of responsibility of each management level for achieving the tasks assigned to it; balancing the tasks of units of one management level in relation to the tasks of a higher level; rational division and cooperation of labor between links and levels of management and their interaction.

2. Perspective.

Local governments must, while resolving operational issues, simultaneously work to determine a strategy related to the socio-economic development of the municipality. For this purpose, it is necessary to provide a block of long-term, strategic management in the organizational structure, separating it from the block of operational and current management. In practice, this is achieved by dividing powers between representative and executive bodies, as well as by creating special units in the organizational structure of the administration that deal with the development strategy of the municipality.

3. Ability to develop (adaptability).

The need to develop the organizational structure is explained by the tendency of constant changes in external conditions and emerging imbalances in the system of municipal government. Under these conditions, the organizational structure must be sufficiently elastic, capable of adapting to the perception of corrective influences. In practice, this is achieved by periodically making changes to organizational structures local government bodies, as well as through the creation of temporary targeted units (headquarters, commissions, committees).

4. Complexity.

When building the organizational structure of the local administration, it is necessary to take into account that all stages of management activities must be structurally ensured:

♦ analytical stage (problem analysis, definition possible ways solutions);

♦ task setting (identification of activity priorities);

♦ making a management decision (choosing a technology and algorithm for solving a problem, determining the final and intermediate results);

♦ execution of the decision (specific activities to implement the management decision);

♦ assessment of results (analysis of performance results, preparation for the next analytical stage and a new cycle).

The principle of complexity requires, when analyzing a structure, to proceed primarily from the integrity of a particular function. This is especially important when the execution of a function is “divided” across different structures or when the execution of a given function requires the use of several structural divisions of the administration. It is desirable that the issues assigned to the jurisdiction of one or another structural unit of the administration be as complete as possible, which is especially important for sectoral structural units.

5. Individualization.

The formation of an organizational structure should be based on taking into account the individual characteristics of a particular municipality. In this regard, all kinds of standard organizational structures can be used only as recommendations and indicative ones. As practice shows, the rejection of unified models, reliance on analysis and accounting local peculiarities give positive results.

6. Cost-effective.

The organizational structure must ensure the effective and efficient implementation of the municipal management process, the ability to obtain the necessary results in the most economical way. Cost-effectiveness can be achieved through various measures, including through the introduction of positions ( system administrator, information technology specialist, etc.), whose functions include analysis of the current organizational structure, functional and hierarchical division of powers, remuneration of municipal employees, mechanization and automation of management processes in order to improve them.

The principles for constructing organizational structures can be clarified, and the forms and methods of using these principles can change in connection with changing external conditions, goals and objectives. However, the basic principles must be respected, as they express General requirements to the organization of municipal government.

Approaches to the formation of the organizational structure of local administration

The organizational structure of the local administration as an executive and administrative body is built on the principles of unity of command and hierarchical subordination. The process of forming the organizational structure of the local administration includes the formulation of goals, objectives and functions, determination of the composition and location of departments, their resource provision (including the number of employees), and the development of appropriate regulatory procedures and documents.

This process is divided into several stages (Fig. 8.1.3).

Rice. 8.1.3. The process of forming the organizational structure of local administration

Real systems of municipal government are distinguished by a wide variety of organizational structures of administrations. But at the same time, there are general approaches to building organizational structures. The most promising is a system-targeted approach with a focus on the final results of the system. Issues of goal setting in municipal activities were discussed in Chapter 3. Determining the system of goals (“tree of goals”) and the tasks of a particular municipal entity serves as the main guideline for the formation of its organizational structure. When forming an organizational structure based on a “tree of goals,” a decomposition of the goals and objectives of municipal government to specific management functions is required.

Thus, with a system-target approach, real conditions are created for individualizing the process of forming an organizational structure in relation to the characteristics of a particular municipal entity.

The system-target approach in this case is that, based on the ultimate goals of municipal management:

♦ do not lose sight of any of the management tasks, without which the implementation of goals will be incomplete;

♦ identify and link in relation to these tasks a system of functions, rights and responsibilities along the vertical management;

♦ explore and institutionalize connections and relationships along the management horizontal, i.e., to coordinate the activities of different units and organizational units in the implementation of common tasks;

♦ to ensure an organic combination of vertical and horizontal management, to find the optimal ratio of centralization and decentralization in decision making for given conditions.

When building an organizational structure based on a “tree of goals,” it is important to give a qualitative and quantitative description of goals and objectives. A qualitative characteristic serves as a justification for identifying management functions, a quantitative one - for determining the type of organizational unit (department, department, department, etc.).

The distribution of tasks between departments of the local administration can be carried out according to several criteria:

♦ by groups of management objects (branches of municipal activity) that ensure the provision of municipal services of a certain type: education, healthcare, construction, youth policy, etc.;

♦ by functional sign, determined by the nature, functions and stages of management activities and the management cycle: analysis and planning, control, property management, finance, legal support, information support, etc.;

♦ on a territorial basis (currently for municipalities in rural areas and for large cities, and after the Federal Law of 2003 came into force - only for large cities).

The practice of building organizational structures of local administrations

In modern municipal practice, typical parts of the organizational structure of local administration are:

♦ head of administration;

♦ his deputies in areas of municipal activity, among whom there may be one or two first deputies;

♦ structural units of various types, which may be subordinate to the head of the administration, one of his deputies, or subordinate to each other (for example, a department within a department);

♦ collegial advisory bodies: administration board, economic and other councils;

♦ administration apparatus.

From the point of view of the above distribution of tasks and goals of activity, the structural divisions of the administration are divided into four groups (Fig. 8.1.4).

The responsibility of sectoral structural divisions includes issues related to the management of specific sectors of municipal activity.

These divisions perform the functions of a customer for the execution of work and the provision of municipal services. Their main role is manifested at the stage of implementing the goals and objectives of life support and development of the territory.

The subjects of activity of functional (staff, general competence) structural units cover a specific function for the entire administration and its structural units. Their main characteristics are the use of advantages associated with the specialization of functions and the ability of the administration to see the entire territory within the framework of its function. According to the classification of the goals of municipal activities (see Chapter 3), functional units are classified as supporting ones. Usually they are given the right to coordinate decisions of other structural units, for example, on compliance with the law or the possibility of financing.

The creation of territorial structural divisions is associated with the need to bring local government bodies closer to the population and makes it possible to combine the centralization of the most important functions at the highest level of municipal government with increased efficiency in solving current issues. At the same time, it is important to prevent the fragmentation of the functions of municipal government bodies and the loss of advantages associated with specialization. To stimulate the initiative of territorial structural units, they may be granted autonomy within the cost estimate.

Auxiliary units (apparatus) do not have their own competence to resolve issues of local importance and perform the functions service management of the administration and its structural divisions. The apparatus plays an important role in organizing the work of the administration. As its subsystem, it plays the same role as the municipal government in relation to other subsystems of the municipality. In particular, the device provides:

♦ planning and coordination of the work of all administration structures;

♦ work with documentation (paperwork);

♦ preparation and holding of meetings, meetings, boards, and other events;

♦ communication with the media, holding press conferences;

♦ control over the execution of decisions;

♦ organizing the reception of citizens, working with complaints and suggestions;

♦ logistical, legal, personnel, information, financial support for the activities of the administration;

♦ interaction between the administration and the representative body and often its economic services.

The chief of staff is usually equal in status to the deputy head of administration.

The administration apparatus may include services such as a general department (working with documentation), a personnel service (sometimes it reports directly to the head of the administration), a reception for citizens, a legal service, an information service, economic services, a press service, its own accounting department, and a control apparatus. and so on.

The head of the administration and his deputies may have their own staff, which includes, in particular, secretaries, assistants, assistants, and advisers.

Such organizational structures are called linear-functional, since they are based on a certain system of interaction between linear (industry) and functional structural units and decision-making by linear units in agreement with functional ones.

In accordance with the volume and distribution of tasks and functions, specific organizational units are created within the administration: departments, departments, committees, departments, etc. To solve management problems, large organizational units are divided into smaller ones, forming new levels. For large cities with big apparatus management, it is advisable to delimit management functions in as much detail as possible, creating special units for their implementation. For small settlements, the most acceptable scheme is one in which the functions performed are grouped, and first of all, the functions of industry divisions should be combined. However, combining the functions of departments whose interests contradict each other within one department is undesirable.

To perform functions delegated by government bodies, it is sometimes advisable to use separate separate structural units. This is important because, in terms of the execution of delegated powers, local governments are financed and controlled by the relevant government bodies.

The board - one or another advisory body under the head of the administration - plays a special role in the work of the Administration. It makes decisions on the most important issues of municipal management, with the exception of decisions that are within the competence of the representative body. The decisions of the board, if necessary, are formalized by resolutions and orders of the head of the administration.

Program-target structures in local administrations

In the context of the implementation of economic and political reforms, linear-functional organizational management structures in a number of cases do not meet the requirements for managing the increasingly complex objects and goals of municipal government. To eliminate this discrepancy, the linear-functional structures of administrations can be supplemented with structures of a new type - program-targeted ones. They are created to solve specific target problems and can be permanent or temporary. As a result of this addition, matrix organizational structures of municipal government are formed.

Whenever new problem requiring a solution within a certain period of time, a work program is drawn up, the resources necessary to implement the program are allocated and a temporary team of workers is formed. Employees of the municipal government body, included in the temporary team for the implementation of the target program, are in double subordination during its implementation: administratively subordinate to their line manager (vertical communication) and functionally subordinate to the program manager (horizontal communication).

In the municipal government system, program-target structures are implemented in the form of commissions, headquarters, working groups, etc. The list of such units changes periodically. Some are eliminated, others appear again, many exist for years.

Commissions are created on certain period to solve any escalating problem. The purpose of creating commissions is to find a way out of the current management situation. Commissions use situational analysis methods in their work.

The creation of working groups within the administration is associated with the solution of specific management tasks and is temporary. Typically, work groups perform design tasks. For example, when reorganizing a government agency, it is effective to create a special group for the organizational design of the administration structure and the development of new work technologies.

When forming structures of program-targeted management, it is advisable to develop maps (matrices) of the distribution of rights and responsibilities between bodies of linear-functional and program-targeted structures. They record in detail and clearly general rules decision-making, division of responsibility of several bodies for different aspects of one result, the role of collegial and advisory bodies in the decision-making process.

The need to implement program-targeted functions requires the creation of a separate strategic, innovation block in the administration structure. Its activities should be aimed at identifying problem situations and posing problems, translating problems into task packages and transferring them to industry and functional units. The main tasks of the strategic block are as follows.

1. Constant monitoring of the existing state, established norms and relations in various areas local life: analysis of the situation, recording of discrepancies and conflicts, organization of research.

2. Development of programs to prevent crisis situations, as well as projects to reorganize and change the situation in various spheres of life, ensuring that its main parameters are brought to a level corresponding to objective ideas about the settlement. This work includes development technical assignments for programs and projects, their analytical and legal support, examination of strategic decisions submitted for approval to the head of the administration, development of plans and schedules for the implementation of subprograms and projects, their budgeting, development of business plans, etc., as well as internal management audit.

Improving the organizational structures of municipal government

The main disadvantages of existing linear-functional structures of municipal government are associated not only with their organizational building, but also with the most established ideology of municipal government. These shortcomings boil down to the following.

1. An established approach to the municipality and, accordingly, to its management as a production or social-production system.

The main emphasis is on improving the performance of the structural divisions of the administration themselves (housing and communal services, transport, healthcare, etc.), and not on the degree and quality of meeting the needs of the population for a particular municipal service. In other words, the criterion for the effectiveness of a service is its own indicators, and not the final result of its activities.

2. Focus on solving current problems related to the life support of the municipality, and the lack of a strategic approach to management.

The variety of current private tasks and goals of municipal government inevitably gives rise to contradictions between them, due primarily to the limited material and financial resources. Each structural unit is aimed at solving its task and strives to obtain maximum resources for this. In this case, the entire control system often works ineffectively.

3. The vagueness of the system of functional connections between individual structural divisions, duplication of functions, uneven workload of workers, lack of clear organizational procedures through which divisions interact with each other.

As a result, the bulk of the work falls on the shoulders of the head of the administration, who has to resolve many coordination issues.

4. Mixing of management functions and direct economic activities. Many structural divisions of administrations, being legal entities, provide various paid services and earn money for their existence, i.e., in essence, they are engaged in commercial activities. This business is risk-free because it is conducted on the basis of municipal property, for effective use which lacks proper supervision. For this reason, some structural divisions of the administration began to transform from municipal government bodies into financial and industrial groups by type of activity.

Due to the above, the reorganization of municipal government structures is a complex and complex task.

Like any other organization, local administration is a social system. Social organization (unlike professional organization) is not development-oriented; its main criteria are stability and immutability. Any attempts to change the state of a social organization are perceived by it as an existential threat and, if possible, are rejected. Innovations cause a certain shift in equilibrium in social systems and consequences that are not always foreseeable. Therefore, it is required special methods activation of innovation processes.

In addition to the contradictions between traditional and innovative activities, in practice, even more important are the contradictions within the innovative activities themselves - between radical and improving types. It is impossible to radically reorganize any structure from the inside, since this requires, figuratively speaking, to rise above the problem and look at it “from above.”

If we talk about the actual organizational structures of local administrations, then the main directions of their reorganization may be as follows.

1. Exclusion from the framework of the administration of structures engaged in economic activities and therefore having the status of a legal entity, giving them the form of municipal institutions. The 2003 Federal Law provides that local government bodies granted the status of a legal entity are municipal institutions intended to perform management functions and are subject to state registration as legal entities.

2. Creation of large organizational and administrative blocks in the structure of the administration, whose leaders bear full responsibility for the implementation of municipal policy in relevant areas and for achieving its ultimate goals. Such blocks can be an economics and finance block, a municipal real estate management block, a municipal services block, a social policy block, a public safety block, etc. These issues were partially touched upon in previous chapters. The creation of large blocks makes it possible to significantly reduce the burden on the head of administration in resolving current issues, allowing him to devote the bulk of his time and effort to strategic management tasks.

3. Creation, along with classical linear-functional organizational structures, of structures of a program-target or program-functional type, as mentioned above.

The need to combine different types of organizational structures and methods for achieving goals determines the complexity of the task of developing and implementing an effective system of municipal management and reorganizing the organizational structure of the administration. It is required to develop a model and organizational project for reorganization, a package of regulatory requirements for individual structures and areas of their activity. It is also necessary (and this is the most important thing) to convince administration employees of the necessity and advisability of the reorganization, and to retrain some specialists. At the same time, the reorganization of municipal government structures should unfold simultaneously along several parallel lines:

♦ development of a model and organizational project for reorganization;

♦ development legal framework activities of local government;

♦ development of a package of regulatory requirements for various areas of municipal activity;

♦ development of regulations on the main organizational and administrative blocks;

♦ description of organizational procedures and functional connections of the entire space of interaction between various management structures, main jobs and preparation job descriptions;

♦ retraining and advanced training of administration employees;

♦ preparation of a personnel reserve for municipal administration.

Questions for self-control

1. What factors influence the formation of the organizational structure of the local administration?

2. How are tasks and functions distributed between the structural divisions of the local administration?

3. What types of organizational structures are used in municipal government?

4. What are the basic principles for building the organizational structure of the local administration?

5. What stages does the process of forming the organizational structure of the local administration include?

6. What are the main types of structural units of the local administration?

7. What are the main directions for improving the organizational structures of local administration?

Local self-government involves the independent resolution of issues of local importance by the population of a given territory and its representatives. Local administration is a key element in municipal government; The level and quality of life in the municipality largely depends on the effectiveness of its work. In turn, the effectiveness of the administration largely depends on its organizational structure. This article will discuss the use of outsourcing to improve the organizational structure of the administration, reduce costs and create additional sources of income for the local budget.

A municipal administration suppose independent resolving of local problems by the people and their representatives, local administration is a key part of municipal management; its effectiveness influences the level and quality of life in the municipality greatly. In its turn, the effectiveness of local municipal administration depends on its organizational structure. Perfection of municipal organizational structures is important and necessary. This article describes using organizational outsourcing for improvement of structures, reducing expenses and creating new sources of income for local budget.

Local administration is one of the key links in the management of a municipality; the quality of life in the managed territory largely depends on the effectiveness of its activities. At the same time, the effectiveness of the administration itself depends not only on the efficiency of its departments, decisions made and adherence to the letter of the law, but also on the organizational structure.

Organizational structure is an ordered set of interrelated elements that ensure the functioning and development of the organization as a single whole. . In essence, the organizational structure represents the divisions of the organization and the subordination between them. There are different types of organizational structures, some of them appeared earlier: linear, functional, linear-functional, line-staff; others - in the mid-late 20th century: matrix, divisional.

According to research conducted by R. Babun, E. Starchenko , D. Ptakhin , the most common structure in municipal government is linear-functional. This structure has both advantages and disadvantages. The advantages include the insignificant workload of the chief line manager (head of the municipality), a clear system of mutual connections, functions and divisions. Disadvantages: insufficiently clear responsibility of departments for decisions made, conflicts are possible over resources (usually financial), in addition, this type of organizational structure is not flexible enough and cannot quickly adapt to changing conditions external environment.

The use of more modern types of organizational structures (matrix, divisional) in municipal government is limited or impossible for a number of reasons:

Municipal governance is carried out in a specific territory, limited by the administrative boundaries of the territorial entity, due to which regional governance is impossible;

A product-oriented management system is also not suitable due to the fact that the municipality, firstly, does not produce products, and secondly, municipal services are non-commercial in nature; their main task is to provide decent living conditions in the territory of a given municipality, to contribute to its economic, cultural and social development;

The organizational structure of the municipal administration should contribute to effective management in conditions of limited resources, and the costs of maintaining this structure should not exceed income (income here can be considered the efficiency of using resources, budget funds, receiving non-tax revenues, etc.) from its activities.

Therefore, it is necessary to consider various options improving the management structures used.

The main purpose of this article is to consider the use of outsourcing to improve the structure of local administration with new point vision - through the creation of municipal outsourcing enterprises, to identify the advantages and disadvantages of this method, to consider its application using a specific example.

However, before we talk about improving the organizational structure, it is necessary to analyze it, which will allow us to determine its effectiveness and identify bottlenecks, overloaded or underloaded areas.

Methods for analyzing organizational structure can be different: both general scientific (analogy, comparison, analysis, etc.) and special ones used in the field of management (script method, Delphi, brainstorming, commissions, etc. ).

Improving the organizational structure can be implemented in several ways: downsizing, merging departments, creating new departments, developing municipal-private partnership programs and transferring some municipal services to third-party organizations; use of outsourcing.

Let us consider in more detail the analysis and improvement of the organizational structure of the administration using the example of the Kovdorsky district municipality of the Murmansk region.

Kovdorsky district is a small municipality with a population of 23.2 thousand people.

Kovdor city, Murmansk region

The organizational structure of the local administration is presented in Figure 1.

Figure 1. Organizational structure of the administration of the Kovdorsky district municipality

The main purpose of analyzing any organizational structure of an administration is to analyze the economic and managerial effectiveness of this structure.

Main goals:

Determine the type of organizational structure, its advantages and disadvantages for a given municipality;

Analyze the distribution of functions between departments;

Analyze the compliance of powers with the functions performed;

Analyze the goals of the municipality and its divisions, draw up a tree of goals.

As a result, it is expected to obtain a complete picture reflecting the organizational structure, functions and goals of each department, to identify possible problems and develop ways to solve them.

The analysis consists of several stages:

Stage 1. Determining the type of organizational structure.

Stage 2. Direct analysis of the organizational structure.

Stage 3. Identification of existing problems.

Administration of the municipal formation Kovdorsky district, Murmansk region

Stage 1. At this stage, it is necessary to determine the type of organizational structure - as can be seen from the diagram in Figure 3, the organizational structure of the administration of the Kovdor district belongs to the linear-functional type. In this regard, we can say that, on the one hand, the load is distributed evenly and is insignificant for the head of the municipality, divisions perform specific functions in their field of activity, but on the other hand, responsibility for decisions made is not always clearly defined, conflicts between divisions are possible for the use of budget funds. It is also worth noting that only a small part of the departments participates in the formation of the revenue side of the budget (KUMI), while the rest can be considered only cost centers.

Stage 2. At this stage, it is necessary to consider each department separately, analyze its functions from the point of view of the functional approach and the powers available for their execution. Speaking about this example, it can be noted that:

The divisions perform a wide range of functions within their competence;

Units have the necessary powers to perform their functions;

Each department bears responsibility within its competence;

The number of employees varies greatly from department to department - some departments need additional staff, while others may need to reduce the number of personnel.

Let's consider the goals facing the municipality and its subdivisions, draw up a tree of goals, it is presented in Figure 2.

Figure 2. Tree of objectives of the Kovdorsky district municipality
(click on the picture to enlarge)

Based on the analysis, the following conclusions can be drawn:

The main goal facing the head of the municipality can be divided into three main areas: economic development, socio-cultural development of the municipality and the effective functioning of the administration;

Within each direction there are specialized units;

Each department has specific goals, groups of goals and subgoals;

Each department has sufficient authority to achieve its goals.

Let us schematically present the organizational structure, functions and goals - Figure 3.

Figure 3. Organizational structure, functions and goals of the administration of the Kovdorsky district municipality
(click on the picture to enlarge)

This figure shows that not all departments are located in accordance with the tasks they face. Moreover, there is no unit responsible for health development.

Some divisions of the administration are separated into separate legal entities and have a significant staff of employees compared to other departments. Let's look at these divisions in more detail.

The Education Department also includes the Economic Department of the District Education Department - a total of 10 employees. The organizational structure of this department is shown in Figure 4.

Figure 4. Organizational structure of the District Education Department - Kovdorsky district municipality

The cultural department also has quite complex structure, presented in Figure 5.

Figure 5. Organizational structure of the cultural department - Kovdorsky district municipality

The structure of the municipal property management committee is presented in Figure 6.

Figure 6. Organizational structure of the municipal property management committee (KUMI) - Kovdorsky district municipality

The structure of the Finance Department is shown in Figure 7.

Figure 7. Organizational structure of the Finance Department - Kovdorsky district

Structure The Housing and Communal Services Administration is presented in Figure 8.

Figure 8. Organizational structure of the Department of Housing and Communal Services (UZHKH) - Kovdorsky district municipality

These divisions are separated into separate legal entities with one purpose - to be able to independently represent their interests, however, as legal entities, they need an accountant. In addition, each such unit (except KUMI) has an IT specialist on staff, which is not necessary, since the administration structure has an Information Technology Department, whose responsibilities include servicing workstations and software.

Let us consider the structure of the administration of the Kovdor district from the point of view of “cost-profit”. Let us identify divisions that are capable of generating income to the municipal budget, and divisions that only spend budget funds. If you look closely at the structure of the administration of the municipal formation of Kovdorsky district, you can see that only KUMI can bring revenue to the municipal budget, because This unit is engaged in the management of municipal property, i.e. leasing, privatization, sale, etc. The remaining divisions, due to the specifics of their activities, cannot contribute to the generation of budget revenues (Department of Culture, Department of Education, etc.), or are engaged in the redistribution of budget funds (Department of Finance).

Stage 3. The main problems identified as a result of the analysis of the organizational structure of the Kovdorsky district municipality can be summarized as follows:

The organizational structure is irrational, some departments are not located in their area of ​​activity: The IT department is located in the area economic development, although it should be attributed to the sphere of effective functioning of the administration; Department for physical culture, Sports and Youth Affairs and the Commission on Minors in the area of ​​effective functioning of the administration, while they should be classified in the area of ​​socio-cultural development;

There is no unit responsible for healthcare development;

Only one department within the administration can contribute to increasing budget revenues;

Units with legal entity status have a complex structure that needs to be reviewed.

Stage 4. In order to resolve the above problems, the following recommendations can be applied:

The structure of the administration should be transformed in such a way that each division is located in its own area of ​​​​responsibility - this facilitates the work of the deputy head of the Ministry of Defense and does not overload him with unnecessary tasks;

It is necessary to create a unit responsible for healthcare development;

It is necessary to review the structure of divisions that have been separated into separate legal entities;

The transformation of the administration structure should help reduce costs and increase budget revenues, i.e. the organizational structure must be transformed in the most efficient way possible.

To improve the organizational structure of the administration of the municipal formation of Kovdorsky district, methods for structuring goals and the method of organizational modeling were used, in particular, graphic models of the organizational structure.

The main means of improving the organizational structure in this example is the use of outsourcing. Let's look at this concept in more detail. Outsourcing is:

• a form of contractual relations in which the source or root cause of processes carried out in an organization is externalized. In other words, outsourcing means using an external source to provide missing resources ;
• transfer by a company of its activities (process) or part of it to other persons or third-party organizations (subcontractor) ;
• This is a decision made directly by the head of the enterprise and directly related to organizational issues on the transfer of any business functions or parts of the enterprise’s business process to a third-party contractor. Outsourcing consists of dispersing the main functions performed by the company. The latter takes responsibility for the functions that it performs better than others and at the lowest cost, and distributes the rest among other entities .

The main purposes of using outsourcing:

Cost reduction;

Freeing up your own resources;
- improving the quality of processes performed.

Outsourcing relationships are characterized by the following main features:

Outsourcing relationships are built on the basis of a contract - outsourcing is defined as the practice of planning, managing and implementing certain types of work by a third party in accordance with the terms of the contract;

Outsourcing is a constant cooperation based on contractual relationships;

The transfer of certain types of work to a third party is carried out for a long period of time;

Outsourcing occurs only in cases where we are talking about transferring to an external contractor those types of work that could be carried out within the organization itself.

Today, accounting and IT outsourcing is common, i.e. organizations do not have accountants and IT specialists on staff, but resort to the services of specialized organizations; cooperation is carried out on an ongoing basis.

It is possible to transform the organizational structure of the administration in such a way as to reduce costs and increase the revenue side of the budget, without allowing cuts, with the help of outsourcing - use standard scheme, in which some of the non-core functions are transferred to a third party, is not suitable, because it does not contribute to increasing budget revenues and involves laying off employees. To achieve this goal, it is necessary to create municipal enterprises specializing in a certain type of services (IT services, accounting), which will provide these services to both the administration and other city organizations on the basis of a contract. As a result, employees of both specialized departments and those employed by individual legal entities (Department of Culture, Education, etc.) will be transferred to newly created municipal enterprises, which will allow the administration to save on wages and payments to state extra-budgetary funds; At the same time, part of the enterprises' profits will be transferred to the municipal budget. Figure 9 illustrates this model.

Figure 9. Improving the organizational structure of the administration of the Kovdorsky district municipality with the help of municipal unitary enterprises
(click on the picture to enlarge)

Advantages:

Reducing the number of divisions, which simplifies the organizational structure;

Reducing the cost of wages and payments to pension, medical and social insurance funds;

New municipal enterprises are being created that can generate income to the budget;

This method does not increase the unemployment rate, because employees of liquidated departments will be employed in newly created enterprises;

Some specialists in the field of economics and accounting and IT specialists will be transferred to newly created enterprises, which will significantly simplify the structure of these departments.

Disadvantages: quite difficult to implement.

Let's consider a model of an organizational structure improved with the help of our own municipal enterprises, collaborating with the administration on the basis of outsourcing.

It should be noted that the number of administration employees as a result of the transformations decreased by 24 people. Data on the number, wages and payments to extra-budgetary pension, social and health insurance funds are given in Table 1. Transformation of the organizational structure of the administration allows saving almost 8 million rubles per year.

Table 1. Calculation of costs for payments there and payments to state extra-budgetary funds in the administration of the Kovdorsky district municipality

Savings on wages amount to: 5,004,000 rubles.

Savings on payments to state extra-budgetary funds are: 2,717,482 rubles.

Total: 7,721,482 rubles.

This table displays only savings on wages and payments to state extra-budgetary funds. Of course, modernizing the organizational structure of the municipal administration will require some expenses, but it should also be taken into account that municipal outsourcing enterprises will receive a profit, the main part of which will go to the budget of the municipality as the founder of this enterprise. At the same time, payment costs wages employees of these enterprises and contributions to state extra-budgetary funds will fall on the shoulders of the enterprises themselves, and not the municipality.

Next, we will consider a simplified model of business processes in a municipality that has transferred some of its functions to third-party organizations on an outsourcing basis. The model of interaction between the administration and the municipal unitary enterprise providing accounting services is presented in Figure 10.

Figure 10. Model of business processes in the administration of the Kovdorsky district municipality

The model of interaction between the administration and the municipal unitary enterprise providing IT services is presented in Figure 11.

Figure 11. Model of interaction between the administration of the Kovdorsky district municipality and the municipal unitary enterprise providing IT services

These figures show that business processes that are not core to the municipal administration can be quite successfully carried out by third-party organizations, as a result of which the administration’s activities are concentrated on resolving issues that are directly within its competence.

This example clearly shows the benefits of using municipal outsourcing enterprises to improve the organizational structure of the local administration: cost reduction and the opportunity to receive additional income from the activities of newly created municipal enterprises.

Literature

1. http://www.kovadm.ru - website of the Administration of the Kovdorsky district
2. Anikin B.A., Rudaya I.L. Outsourcing and outstaffing: high tech management / 2nd ed., revised. and additional - M.: Infra-M, 2009 – 320 p.
3. Babun, R. Organizational structures of city administrations: problems of optimization / R. Babun, E. Starchenko // [Electronic resource] http://emsu.ru/babun/view.asp?c=1422&p=1
4. Ignatieva A.V. Research of control systems: Textbook. manual for universities./ A.V. Ignatiev, M.M. Maksimtsov. - M.: UNITY-DANA, 2000. - 157 p.
5. Ptakhin, D.I. Improving organizational structures for managing municipal socio-economic systems: Dis. Ph.D. econ. Sciences: 08.00.05 / D.I. Ptakhin.: St. Petersburg, 2010
6. Efimova S., Peshkova T., Konik N., Rytik S. Outsourcing / “Personnel Management”, Scientific Book, 2006
7. Semibratov A.Yu. Outsourcing is the road to the future! / Register-Consulting [Electronic resource] http://www.regcon.ru/jo/images/stories/ct_cemibratov_autcorcing.pdf
8. Sparrow E. Successful IT outsourcing / Trans. from English – M.: KUDITS-OBRAZ, 2004. P. 9.
9. Sheremetov P.V., Petukhova S.V. Organization theory: textbook / P.V. Sheremetov, S.V. Petukhova. – 3rd ed., erased. – M.: Omega-L, 2008.
10. Shestoperov A.M. Outsourcing as a way to optimize administrative and management processes in government bodies (using the example of FAS Russia) / National Institute for Research on Entrepreneurship Problems, Moscow, 2007

23. Organizational structure of local administration

Organizational structure is the most important factor in the activities of a local government body, the form in which the process of municipal government is implemented.

The organizational structure is understood as the composition and subordination of interrelated organizational units (individual positions), units (managerial units) and steps (levels) endowed with certain rights and responsibilities for performing the corresponding target management functions.

The structure, staffing and number of local administrations are determined by the head of the local administration and approved by the head of the municipal formation, and sometimes by the representative body of the municipal formation. The structure of the administration includes various departments, divisions, sectors, committees and other structural units of a sectoral, functional, territorial nature, including units for managing municipal property, local finance, housing and communal services, etc. In large municipalities, departments of health care, education, transport and communications, etc. are created. The local administration has its own service apparatus (administration, accounting, personnel department, legal service, etc.). The composition of each structural unit of the executive body of local self-government is headed by a director (head of department, head of department, etc.).

The goals, objectives and functions of municipal government directly affect the structure of the local administration and are the basis for the identification of independent units in its structure that are responsible for achieving specific goals and solving certain specific tasks.

In modern municipal practice, typical parts of the organizational structure of local administration are:

Head of Administration;

His deputies in areas of municipal activity, among whom there may be one or two first deputies;

Structural units of various types, which may be subordinate to the head of the administration, one of his deputies, or subordinate (for example, a department within a department);

Collegial advisory bodies: administration board, economic and other councils;

Administration apparatus.

From the point of view of the above distribution of tasks and goals of activity, the structural divisions of the administration are divided into four groups: sectoral, functional, territorial and auxiliary.

The responsibility of sectoral structural divisions includes issues related to the management of specific sectors (areas) of municipal activity. They perform the functions of a customer for the execution of work and the provision of municipal services. Their main role is manifested at the stage of implementing the goals and objectives of life support and development of the territory.

The subjects of activity of functional (staff, general competence) structural units cover a specific function for the entire administration and its structural units. Their main feature is the use of advantages associated with the specialization of functions, and the ability of the administration to consider the entire territory within the framework of its function. According to the classification of the goals of municipal activities (see Chapter 3), functional units are classified as supporting ones. Usually they are given the right to coordinate decisions of other structural units, for example, on compliance with the law or the possibility of financing.

Creation of territorial structural divisions (district in major cities etc.) is associated with the need to bring local government bodies closer to the population and makes it possible to combine the centralization of the most important functions at the highest level of municipal government with increased efficiency in solving current issues. At the same time, it is important to prevent the fragmentation of the functions of municipal government bodies and the loss of advantages associated with specialization. To stimulate the initiative of territorial structural units, they may be granted autonomy within the cost estimate.

Auxiliary units (apparatus) do not have their own competence to resolve issues of local importance and perform the functions of supporting the activities of the management of the administration and its structural units. The apparatus plays an important role in organizing the work of the administration. Being its subsystem, it plays the same role as the municipal government in relation to other subsystems of the municipality.

The head of the administration and his deputies may have their own staff, which includes, in particular, secretaries, assistants, assistants, and advisers.

Such organizational structures are called linear-functional, since they are based on a certain system of interaction between linear (industry) and functional structural units and decision-making by linear units in agreement with functional ones.

In accordance with the volume and distribution of tasks and functions, specific organizational units are created within the administration - departments, divisions, committees, departments, etc. To solve management problems, large organizational units are divided into smaller ones, forming new levels. For large cities that have a powerful management apparatus, it is advisable to delimit management functions in as much detail as possible, creating special divisions for their implementation. For small settlements, the most acceptable scheme is one in which the functions performed are grouped, and first of all, the functions of industry divisions should be combined. However, combining the functions of departments whose interests contradict each other within one department is undesirable.

In the context of economic and political reforms, linear-functional organizational management structures in a number of cases do not meet the requirements for managing the increasingly complex objects and goals of municipal government. To eliminate this discrepancy, the linear-functional structures of administrations can be supplemented with structures of a new type - program-targeted ones. They are created to solve specific target problems and can be permanent or temporary. As a result of this addition, matrix organizational structures of municipal government are formed.

In the municipal government system, program-target structures are implemented in the form of commissions, headquarters, working groups, etc. The list of such units changes periodically. Some are eliminated, others appear again, many exist for years.

The structure of local government bodies is made up of the representative body of the municipality, the head of the municipality, the local administration (the executive and administrative body of the municipality), the control body of the municipality, and other local government bodies provided for by the charter of the municipality and having their own powers to resolve issues of local importance.

The presence in the structure of local government bodies of a representative body of the municipality, the head of the municipality, the local administration (the executive and administrative body of the municipality) is mandatory, except for the cases provided for by this Federal Law.

The procedure for formation, powers, term of office, accountability, control of local government bodies, as well as other issues of the organization and activities of these bodies are determined by the charter of the municipality.

The structure of local government bodies in the event of the formation of a newly formed municipal entity in intersettlement territories or in the case of transformation of an existing municipal entity is determined by the population at a local referendum (in a municipal entity with a population of less than 100 people - at a citizens’ meeting) or by the representative body of the municipal entity and is enshrined in the charter municipality.

Changing the structure of local government bodies is carried out only by introducing amendments to the charter of the municipality. The decision of the representative body of a municipal formation to change the structure of local government bodies comes into force no earlier than after the expiration of the term of office of the representative body of the municipal formation that made the specified decision.

Financing of expenses for the maintenance of local government bodies is carried out exclusively from the own revenues of the budgets of the relevant municipalities.

Principles and approaches to the formation of the organizational structure of local government bodies

The organizational structure of the local administration is based on the principles of unity of command and hierarchical subordination. The process of forming an organizational structure includes the formulation of goals, objectives and functions, determination of the composition and location of departments, their resource provision (including the number of employees), and the development of appropriate regulatory procedures and documents. This process is divided into several stages (see Appendix 1).

Real systems of municipal government are distinguished by a wide variety of organizational structures of administrations. But at the same time, there are general approaches to building organizational structures. The most promising is a system-targeted approach with a focus on the final results of the system. Determining the system of goals (“tree of goals”) and the tasks of a particular municipality serves as the main guideline for the formation of its organizational structure. When forming an organizational structure based on a “tree of goals,” a decomposition of the goals and objectives of municipal government to specific management functions is required.

Thus, with a system-target approach, real conditions are created for individualizing the process of forming an organizational structure in relation to the characteristics of a particular municipal entity.

When building an organizational structure based on a “tree of goals,” it is important to give a qualitative and quantitative description of goals and objectives. Qualitative characteristics serves as a justification for identifying management functions, quantitative - for determining the type of organizational unit (department, department, department, etc.).

The distribution of tasks between departments of local administration can be carried out according to several criteria. System of municipal government: Textbook for universities. Edited by V.B. Zotova, St. Petersburg: Leader, 2005 - p. 305. :

1. by groups of management objects (branches of municipal activity) ensuring the provision of municipal services of a certain type: education, healthcare, construction, youth policy, etc.;

2. on a functional basis, determined by the nature, functions and stages of management activities and the management cycle: analysis and planning, control, property management, finance, legal support, information support, etc.;

3. by territorial basis (only for large cities).

In modern municipal practice, typical links in the organizational structure of the local administration are Wikipedia - the free encyclopedia http: //ru. wikipedia.org/:

· head of Administration;

· his deputies in areas of municipal activity, among whom there may be one or two first deputies;

· structural units of various types, which may be subordinate to the head of the administration, one of his deputies, or subordinate to each other;

· collegial advisory bodies: administration board, economic and other councils;

· administration apparatus.

From the point of view of the above distribution of tasks and goals of activity, the structural divisions of the administration are divided into four groups, which are presented in Table 1 Municipal management system: Textbook for universities. Edited by V.B. Zotova, St. Petersburg: Leader, 2005 - p. 310.

Table 1

Types of structural units of local administration

The subjects of activity of functional (staff, general competence) structural units cover a specific function for the entire administration and its structural units. Their main characteristic is the use of advantages associated with the specialization of functions, and the ability of the administration to see the entire territory within the framework of its function. According to the classification of the goals of municipal activities, functional units are classified as supporting ones. Usually they are given the right to coordinate decisions of other structural units, for example, on compliance with the law or the possibility of financing.

The responsibility of sectoral structural divisions includes issues related to the management of specific sectors (areas) of municipal activity. These divisions perform the functions of customers for the execution of work and the provision of municipal services. Their main role is manifested at the stage of implementing the goals and objectives of life support and development of the territory.

The creation of territorial structural divisions (district in large cities, etc.) is associated with the need to bring local government bodies closer to the population and makes it possible to combine the centralization of the most important functions at the highest level of municipal government with increased efficiency in solving current issues. At the same time, it is important to prevent the fragmentation of the functions of municipal government bodies and the loss of advantages associated with specialization. To stimulate the initiative of territorial structural units, they may be granted autonomy within the cost estimate.

Auxiliary units (apparatus) do not have their own competence to resolve issues of local importance and perform the functions of supporting the activities of the management of the administration and its structural units. The apparatus plays an important role in organizing the work of the administration. As its subsystem, it plays the same role as the municipal government in relation to other subsystems of the municipality. In particular, the device provides:

· planning and coordination of the work of all administration structures;

· work with documentation (paperwork);

· preparation and holding of meetings, sessions, boards, and other events;

· communication with the media, holding press conferences;

· control over the execution of decisions;

· organizing the reception of citizens, working with complaints and suggestions;

· logistical, legal, personnel, information, financial support for the activities of the administration;

· interaction between the administration and the representative body is often its economic services.

The chief of staff is usually equal in status to the deputy head of administration.

The administration may include such services as: a general department (working with documentation), a personnel service (sometimes it reports directly to the head of the administration), a reception of citizens, a legal service, an information service, economic services, press services, its own accounting department, and a control apparatus. and so on.

The head of the administration and his deputies may have their own apparatus, which includes, in particular, secretaries, assistants, assistants, and advisers.

Such organizational structures are called linear-functional, since they are based on a certain system of interaction between linear (industry) and functional structural units and decision-making by linear units in agreement with functional ones.

In accordance with the volume and distribution of tasks and functions, specific organizational units are created within the administration - departments, divisions, committees, departments, etc. To solve management problems, large organizational units are divided into smaller ones, forming new levels. For large cities with a large management apparatus, it is advisable to delimit management functions in as much detail as possible, creating special units to carry them out. For small settlements, the most acceptable scheme is one in which the functions performed are grouped, and first of all, the functions of industry divisions should be combined. However, unification within one division, whose interests contradict each other, is undesirable.

To perform functions delegated by authorities government controlled, sometimes it is advisable to use separate separate structural units. This is important because, in terms of the execution of the delegation of powers, local governments are financed and controlled by the relevant government bodies.

The board, an advisory body under the head of the administration, plays a special role in the work of the administration. It makes decisions on the most important issues of municipal management, with the exception of decisions that are within the competence of the representative body. The decision of the board, if necessary, is formalized by resolutions and orders of the head of the administration Wikipedia - the free encyclopedia http: //ru. wikipedia.org/.

In the context of the implementation of economic and political reforms, linear-functional organizational management structures in a number of cases do not meet the requirements for managing the increasingly complex objects and goals of municipal government. To eliminate this discrepancy, the linear-functional structures of the administration can be supplemented with structures of a new type - program-targeted ones. They are created to solve specific target problems and can be permanent or temporary. As a result of this addition, matrix organizational structures of municipal government are formed.

When a new problem arises that requires a solution within a certain period of time, a work program is drawn up, the resources necessary to implement the program are allocated, and a temporary team of workers is formed. Employees of the municipal government body, included in the temporary team for the implementation of the target program, are in double subordination for the duration of its decision: in the administration, subordination to their line manager (vertical communication) and functional subordination to the program manager (horizontal communication).

In the municipal government system, program-target structures are implemented in the form of commissions, headquarters, working groups, etc. The list of such units changes periodically. Some are eliminated, others appear again, many exist for years.

Commissions are created for a certain period to solve any aggravated problem. The purpose of creating commissions is to find a way out of the current management situation. Commissions use situational analysis methods in their work.

The creation of working groups within the administration is associated with the solution of specific management tasks and is temporary. Typically, work groups perform design tasks. For example, when reorganizing a government agency, it is effective to create a special group for the organizational design of the administration structure and the development of new work technologies.

When forming structures of program-targeted management, it is advisable to develop maps (matrices) of the distribution of rights and responsibilities between bodies of linear-functional and program-targeted structures. They detail and clearly record the general rules of decision-making, the division of responsibility of several bodies for different aspects of one result, the role of collegial and advisory bodies in the decision-making process.

The need to implement program-targeted functions requires the creation of a separate strategic innovation unit within the administration structure. Its activities should be aimed at identifying problem situations and posing problems, translating problems into task packages and transferring them to industry functional units. Let us list the main tasks of the strategic block.

Constant monitoring of the existing state, established norms and relations in various areas of local life: analysis of the situation, recording of discrepancies and conflicts, organization of research.

Development of programs to prevent crisis situations, as well as projects to reorganize and change the situation in various spheres of life, ensuring that its main parameters are brought to a level corresponding to objective ideas about the settlement. This work includes the development of technical specifications for programs and projects, their analytical and legal support, examination of strategic decisions submitted for approval by the head of the administration, development of schedules for the implementation of subprograms and projects, their budgeting, development of business plans, etc., and also internal management audit.

The main disadvantages of linear-functional structures of municipal government are associated not only with their organizational structure, but also with the very established ideology of municipal government. These disadvantages boil down to the following:

1. An accelerated approach to the municipality and, accordingly, to its management as a production or social-production system.

The main emphasis is on improving the performance of the structural divisions of the administration themselves (housing and communal services, transport, healthcare, etc.), and not on the degree and quality of meeting the needs of the population for a particular municipal service. In other words, the criterion for the effectiveness of a service is its own indicators, and not final result activities.

2. Focus on solving current problems related to the life support of the municipality, and the lack of a strategic approach to management.

The variety of current private tasks and goals of municipal government inevitably gives rise to contradictions between them, due primarily to the limited material and financial resources. Each department is aimed at solving its problem and strives to obtain maximum resources for this. In this case, the entire control system often works ineffectively.

3. The vagueness of the system of functional connections between individual structural divisions, duplication of functions, uneven workload of workers, lack of clear organizational procedures through which divisions interact with each other.

As a result, the bulk of the work falls on the shoulders of the head of the administration, who has to resolve many coordination issues.

4. Mixing of management functions and direct economic activities. Many structural divisions of the administration, being legal entities, provide various paid services and earn money for their existence, i.e. are engaged in commercial activities. This business is risk-free because it is conducted on the basis of municipal property, the effective use of which is not properly supervised. For this reason, some administrations began to transform from municipal government bodies into financial and industrial groups by type of activity.

Unfortunately, these types of flaws are very difficult to correct. However, the work must be carried out continuously in each individual local government, as well as at a higher level.