On the concept of a new model of the civil service of the Republic of Kazakhstan
Decree of the President of the Republic of Kazakhstan dated July 21, 2011 No. 119.
To be published in the Collection
acts of the President and the Government
Republic of Kazakhstan
and the republican press
In order to implement the Decree of the President of the Republic of Kazakhstan dated February 1, 2010 No. 922 "On the Strategic Development Plan of the Republic of Kazakhstan until 2020"
I DECREE:
1. To approve the attached Concept of the new model of the civil service of the Republic of Kazakhstan.
2. Control over the implementation of this Decree is entrusted to the Administration of the President of the Republic of Kazakhstan.
3. This Decree shall enter into force from the date of signing.
President
Republic of Kazakhstan
N. Nazarbayev
Approved by Decree of the President of the Republic of Kazakhstan on July 21, 2011 No. 119
The concept of a new model of public service in the Republic of Kazakhstanreferences
Section 1. Vision of the development of the civil service system of the Republic of Kazakhstan
Section 2. Basic principles and general approaches to the development of the civil service system of the Republic of Kazakhstan
Section 3. Tools for implementing the concept
Section 1. Vision of the development of the public service system of the Republic of Kazakhstaneducation
Professionalization of the public service system, based on the principles of meritocracy, efficiency, efficiency, transparency and accountability to society, is an essential factor in ensuring the competitiveness of the public administration system and the quality provision of public services to the public.
This Concept presents an analysis of the current situation in the civil service system, identifies the main directions for the formation of a new model of the civil service of the Republic of Kazakhstan and the key mechanisms for its implementation.
This Concept will become the basis for the development of legislative and other regulatory legal acts aimed at the design of a new model and further professionalization of the civil service of the Republic of Kazakhstan.
1.1. Analysis of the current situation
The development of the civil service system of the Republic of Kazakhstan is closely related to the processes of transformation of the role of the state in the years of independence, the formation of the political system, economy, public relations, and optimization of the public administration system.
To achieve the goals and priorities of the independent Republic of Kazakhstan, it was necessary to create an effective system for the selection and promotion of personnel, to ensure professionalism and transparency of the activities of the state apparatus.
The beginning of the institutionalization of the modern civil service system of independent Kazakhstan was the Decree of the President of the Republic of Kazakhstan, which has the force of Law, dated December 26, 1995, No. 2730 "On Civil Service", which made it possible to preserve the personnel core of the public administration system and laid the foundations for the development of the civil service as an important institution of the state.
The adoption of the Decree made it possible to regulate relations in the civil service by establishing the principles of civil service, the hierarchy of public positions, determine the legal status and establish social guarantees for civil servants, and introduce anti-corruption restrictions.
The next milestone in the development of the civil service was the Strategy "Kazakhstan - 2030", which in 1997 identified the formation of a professional government as a long-term priority of state development.
The Law of the Republic of Kazakhstan "On Civil Service" (hereinafter referred to as the Law), adopted in 1999, defined a new approach to the formation of a professional and effective public service system and a unified personnel policy that meets current needs.
Currently, the Law and the relevant regulatory legal acts developed in its implementation regulate the issues of admission, passage and termination of public service.
The authorized body for civil service affairs and its territorial divisions are active.
Questions of admission to the civil service
The constitutional right of citizens to equal access to public service has been realized through the introduction of mandatory competitive selection, the mechanism of which is fixed in the Law and other regulatory legal acts.
The introduction of competitive selection for public service is aimed at determining the candidate's compliance with the approved qualification requirements for an administrative public position.
Thus, in accordance with the Law, competitive selection for admission to an administrative public position involves testing by the authorized body for civil service affairs on knowledge of current legislation on civil service, as well as conducting interviews with candidates by the competition commission of the state body.
The personnel reserve of the civil service is being formed. However, based on the current practice of competitive selection, there is some distrust on the part of citizens towards the objectivity of competitive procedures when applying for public service.
In this regard, it is necessary to improve the procedure for competitive selection for public service and increase its transparency.
Issues of training civil servants
Currently, a training infrastructure has been formed in the civil service system, including the Academy of Public Administration under the President of the Republic of Kazakhstan, regional centers for retraining and advanced training of civil servants and other educational organizations.
Every year, on average, one third of civil servants are trained in retraining and advanced training courses, which ensures one hundred percent training of civil servants over a three-year period.
Along with this, there is now a need to modernize the quality management system of the educational process and include innovative teaching methods in training programs for civil servants.
The training system for civil servants should be aimed at developing professional knowledge and skills that are of practical importance and meet the goals and objectives of a government agency.
In addition, it is necessary to ensure effective coordination of work on the training of civil servants.
Issues of attestation of administrative civil servants
According to the legislation on civil service, administrative civil servants undergo certification after three years in office, the purpose of which is to determine their level of professional training, legal culture and ability to work with citizens.
The certification procedure includes the presentation to a civil servant of an official characteristic by the direct supervisor, reflecting the professional, personal qualities and results of the official activity of the certified employee.
At the same time, there is currently a need to improve the certification procedure by focusing on evaluating the quality and final results of civil servants' activities and ensuring the relationship between the certification results and career growth.
Issues of motivation of civil servants
Currently, there is a unified system of remuneration for employees of government agencies maintained at the expense of the state budget and the budget estimates of the National Bank of the Republic of Kazakhstan.
This system is based on coefficients and allows you to take into account the length of service and the category of the administrative public position.
The procedure for awarding bonuses, providing financial assistance and establishing allowances to official salaries of employees of state bodies at the expense of the state budget has been defined.
Despite the stability, the remuneration of civil servants remains insufficiently competitive in comparison with the private sector.
Thus, according to statistics, as of April 1, 2011, the average salary in the civil service system is 69,027 tenge, whereas, for comparison, the average salary in the construction sector is 101,500 tenge, mining industry - 133,309 tenge, financial and insurance activities - 148,680 tenge.
In addition, the lack of an assessment of the quality of a civil servant's work leads to a weak relationship between his labor contribution and the system of material, career and moral motivation.
The work of government agencies is often characterized by inefficient labor organization and the lack of a clear system of social protection for civil servants, which leads to an outflow of professional personnel, including those with foreign education, to the private sector, and also leads to the perception of the civil service as an insufficiently prestigious place for employment.
The decrease in human resources does not allow for the full professionalization of government personnel, especially at the regional level.
Issues of functioning of the Institute of the Executive Secretary
The civil service system has introduced the institution of an executive secretary, whose main task is to maintain personnel continuity in the work of government agencies when political civil servants change.
At the same time, there is a high turnover of senior staff in some central government agencies, which affects the effectiveness of government agencies.
Moreover, given that the position of executive secretary is a political one, the appointment of new heads of government agencies is accompanied in practice by a change of the responsible secretaries themselves.
Issues of ethics and image formation of civil servants
The legislation of the Republic of Kazakhstan on civil service has a pronounced anti-corruption character.
For example, a person who has been disciplined for committing a corruption offense, or a person who has refused to accept restrictions related to entering public service and established by Law, cannot be accepted into public service.
The norm for swearing in civil servants and their acceptance of written restrictions related to their stay in public service has been fixed.
The current Code of Honor of Civil Servants of the Republic of Kazakhstan defines the requirements for the moral character and business qualities of civil servants.
The authorized body for Civil Service Affairs and its territorial divisions monitor compliance with the current legislation on civil service and anti-corruption legislation during inspections.
However, the results of inspections often indicate that there are violations of the current legislation on admission and passage of public service in the work of government agencies.
The authorized body for civil service affairs and its territorial divisions, based on a certificate of violations, make recommendations to the head of the state body on eliminating violations and bringing relevant officials to disciplinary responsibility, and reports from state bodies are heard at disciplinary councils, followed by recommendations.
At the same time, it is necessary to improve the work of the disciplinary councils.
Issues related to the provision of public services
It is important to note that the attitude of the population towards the state apparatus is more related to the quality and accessibility of public services.
The current standards for the provision of public services establish the procedure for the provision of public services, regulatory and mandatory values for the quality and accessibility of public services, the procedure for appeals and contact information, as well as time limits for the provision of public services.
However, at present, there are facts of ineffective organizational and information support in the provision of public services in the activities of government agencies, violations of approved standards for the provision of public services, which leads to insufficient satisfaction of legal entities and individuals with the quality and accessibility of public services.
The insufficient level of professionalism of civil servants, manifestations of bureaucratic red tape and the presence of administrative barriers in the provision of public services negatively affect the image of the civil service and are the main reason for public and business dissatisfaction with the work of government agencies.
Taking into account the above-mentioned problematic issues, today it is necessary to ensure the further progressive development of the civil service system and its reform in close connection with the processes of modernization of public administration.
Thus, taking into account the provisions of the Strategic Development Plan of the Republic of Kazakhstan until 2020, the formation of a new model and professionalization of the civil service of the Republic of Kazakhstan will be aimed at ensuring an effective public administration system.
1.2. The purpose and objectives of the new model of public service
The Strategy "Kazakhstan - 2030" defines the priorities for the development of the civil service: "improving the system of recruitment, training and promotion of personnel"; "public service as a service to the nation"; "creating and maintaining a high reputation of the civil service", which this Concept lays the foundation for the formation of a new model of the civil service of the Republic of Kazakhstan.
The new model of public service primarily involves the modernization of the concept of "public service", which should become synonymous with the concept of "service to the nation (society)" and mean targeting the population as a consumer of public services.
The new model of public service is focused on recognizing the importance of the human factor and conducting effective personnel work, which is a key factor in its professionalization.
The new model of civil service is aimed at the formation of effective personnel mechanisms - an effective and transparent procedure for entering the civil service, the possibility of continuous professional development of civil servants, the relationship between work results and the incentive system.
In the new model of public service, a corps of senior administrative civil servants will be formed to professionally ensure the effectiveness of public policy implementation, and the mechanisms for entering and completing public service will be fundamentally improved.
Thus, based on the provisions of the Strategy "Kazakhstan - 2030", the three-pronged goal of forming a new model of public service is the following:
1) effective personnel policy and human capital management system in the public service system;
2) high quality of public services and efficiency of government agencies;
3) positive image and ethics of behavior of civil servants.
In accordance with the three-pronged goal, the objectives of forming a new model of public service are defined by:
1) formation of new and improvement of existing personnel mechanisms in the civil service system;
2) improving the quality and accessibility of public services and focusing the activities of civil servants on the population as consumers of public services;
3) ensuring the high status and prestige of the civil service, the formation of ethical standards of conduct for civil servants.
In order to ensure consistent high-quality personnel renewal and professionalization of the civil service, its organizational structure and regulatory legal framework will be modernized.
The result of the formation of the new model will be a professional civil service focused on results and high-quality provision of public services, as well as meeting the urgent needs of state socio-economic development.
1.3. Implementation period and expected results
The implementation of this Concept is designed for the period from 2011 to 2015 and includes the following stages.
At the first stage (2011 - 2012), it is planned to implement measures aimed at achieving the target indicators of the Strategic Development Plan of the Republic of Kazakhstan until 2020.:
1) introduction of a new register of civil service positions based on three buildings;
2) improvement of procedures for admission to the civil service and formation of the personnel reserve of the civil service;
3) the formation of a basic educational center for the training of highly qualified civil servants;
4) implementation of updated training programs based on technologies and principles of the results-oriented public administration system;
5) improving the efficiency of the human resources services of government agencies;
6) introduction of a system for evaluating the performance of civil servants;
7) introduction of a new remuneration system for civil servants;
8) implementation of measures aimed at improving the quality of public services, including the introduction of a quality control system for the provision of public services, the development of a feedback mechanism to assess the quality of public services.
At the second stage (2013-2015), long-term measures will be implemented to professionalize the civil service, such as the introduction of a career planning system, the introduction of individual professional development and training plans, the expansion of the distance learning system; improvement of the motivation system for civil servants; the creation of an automated information system for the civil service; the development of a two-level administrative ethics management system.
At the second stage, the effectiveness of the measures implemented at the first stage will be monitored and evaluated, on the basis of which appropriate regulatory, methodological and organizational proposals and recommendations will be developed.
The implementation of this Concept will ensure the professionalization of the state apparatus, capable of effectively performing state functions and providing high-quality public services to the population.
Section 2. Basic principles and general approaches to the development of the civil service system of the Republic of Kazakhstan2.1 A new model of public service
In international practice, two typical models of public service can be distinguished - career and positional.
Despite the differences in the order of admission and completion of public service in these models, they are characterized by a number of common conditions that ensure the effectiveness of the public service system. The first is the division of civil servants into political "appointees" and professional "executors." The second is recruitment to the civil service on a competitive basis, which makes it possible to select qualified and competent specialists for the civil service and reduce the opportunities for the patronage system of personnel selection and promotion.
An important feature of the civil service system abroad is the high prestige and status of the civil service.
Currently, most countries prefer to build mixed models of public service that take into account the specifics of the national public administration system.
In many effective models of public service (the Netherlands, Singapore, the USA, Italy), the Institute of Senior Civil service operates to distinguish the political decision-making process from the process of their implementation, whose functions are to develop management guidelines and conduct administrative activities in accordance with general public policy.
The new model of the civil service of the Republic of Kazakhstan will remain mixed, including elements of career and positional models of public service.
At the same time, in the new model of public service, according to the Strategic Development Plan of the Republic of Kazakhstan until 2020, the corps vertical will be clearly traced: political civil servants, the administrative corps "A" and the executive corps "B" of the administrative civil service.
The formation of a new model presupposes the approval by 2012 of a new register of government positions based on three buildings.
The corps of political civil servants will include employees who form public policy, manage the branch (sphere) of public administration, determine the strategic directions of state development in the relevant field, as well as employees whose appointment is politically decisive.
The following positions will be included in political government positions: the first heads of central government bodies, bodies directly subordinate and accountable to the President of the Republic of Kazakhstan, their deputies, akims of regions, the capital and cities of republican significance and their deputies, as well as a number of government positions, the list of which will be determined by the President of the Republic of Kazakhstan.
In the new model, a management corps "A" will be formed in the structure of the administrative civil service, ensuring the implementation of policies formed by political civil servants and the relationship between strategic decision-making and their execution.
Appointments to administrative positions of the management corps "A" will be carried out exclusively from the personnel reserve, in order to ensure the effectiveness of its use, a legal norm will be provided providing for the mandatory presence of a candidate in the personnel reserve of the corps "A".
The formation of the political personnel reserve and the personnel reserve of the administrative corps "A" of the administrative civil service will be provided by the National Commission on Personnel Policy under the President of the Republic of Kazakhstan on the basis of proposals from government agencies and akims of regions, the capital, and cities of republican significance.
The composition and regulations of the National Commission on Personnel Policy will be determined by the President of the Republic of Kazakhstan.
The new civil service model will review the register of political government positions and limit the number of political government positions, including clearly defining the role and degree of responsibility of the person appointed to the position of Executive Secretary, and developing an open, transparent, merit-based mechanism for his appointment.
Taking into account the priorities for the development of the civil service, determined by the President of the Republic of Kazakhstan, the position of executive secretary will be assigned to the management corps "A", respectively, the powers, rights, duties of executive secretaries will be determined within the framework of regulatory legal acts governing the activities of this corps.
Also, in order to maintain continuity in the work of the state body, the term for which responsible secretaries are appointed will be established, regardless of the period of tenure of the first heads of state bodies.
The selection for the management corps "A" of the administrative civil service will be carried out on the basis of constant recruitment from among civil servants assigned to the executive corps "B", who have proven themselves to be professionally competent and efficient employees.
The expansion of existing human resources and the openness of the civil service system will also be ensured through the so-called "social elevator" mechanism.
This mechanism will allow professionally trained personnel who are not civil servants, but who hold senior positions in public and private sector organizations, to participate in a competitive selection process for inclusion in the personnel reserve of the A corps.
The criteria for enrollment in the political personnel reserve and the personnel reserve of the management corps "A" will be determined by a separate regulatory legal act on the proposal of the authorized body for civil service affairs.
In particular, it is advisable to define the following criteria as the basis for making a decision on enrolling a candidate in the political personnel reserve and the personnel reserve of the administrative corps "A" of the administrative civil service:
level and profile of education,
length of service and work experience,
assessment of professional and personal competencies,
compliance with professional ethics,
the presence of a written recommendation from a political civil servant or an administrative employee of the management corps "A" with many years of experience in senior positions.
Candidates for admission to the management corps "A" will be assessed for professional and personal competencies that are important for the effective performance of functional duties by a civil servant in a managerial position.
Competitive selection mechanisms for the personnel reserve of the management corps "A" of the administrative civil service will be testing based on professional and personal competencies, as well as professionally oriented interviews and exams.
In order to form an effective mechanism that ensures the stability of the work of administrative civil servants and interdepartmental continuity when changing the head of a government body holding a political position, the term of office of a civil servant in the A corps will be established.
The appointment and dismissal of an employee of the management corps "A" will be coordinated by the authorized body for civil service affairs on the basis of a decision of the National Commission on Personnel Policy under the President of the Republic of Kazakhstan.
To ensure a high level of professional and managerial skills, it is planned to rotate civil servants.
The rotation of civil servants will be carried out on a systematic basis according to the following schemes: inter-level ("center - region", "region - center"), interregional ("region - region"), intersectoral ("center - center"), which will ensure the influx of professional personnel to both central state and local executive bodies. organs.
The conditions and procedure for the rotation of civil servants will be determined on the proposal of the authorized body for civil service affairs by an act of the President of the Republic of Kazakhstan.
For the successful implementation of the inter-level and inter-regional rotation of the civil service, a social security mechanism will be developed, including the establishment of "allowances" (regional coefficients) to the official salary and the availability of housing stock in the regions for civil servants appointed in the order of rotation will be ensured.
The division of current administrative civil servants into the managerial corps and the executive corps will be carried out according to the official criterion (in accordance with the position currently held by the civil servant).
The executive building "B" of the state administrative service will include civil servants holding executive positions (positions not assigned to the building "A").
The main task of civil servants of the "B" corps will be the implementation of state policy (executive activities) in accordance with the guidelines of civil servants of the "A" administrative corps.
Taking into account the positive practice of the current register of administrative civil servants by category, categories will be established for the positions of the administrative corps "A" and executive corps "B" of the administrative civil service.
When building "A" and "B" buildings in the structure of the administrative civil service, it is planned to optimize the current register of positions of administrative civil servants.
The register of public positions, based on three buildings, will be approved by the President of the Republic of Kazakhstan on the recommendation of the authorized body for civil service affairs.
2.2. Improving the procedure for admission to the civil service
In international practice, admission to public service is carried out on a competitive basis, where the main principle is the principle of meritocracy, that is, recognition of personal merits and achievements.
The general scheme of competitive selection is to review the applicant's competitive package of documents and conduct testing, interviews, oral and written exams to assess the applicant's professional knowledge and experience, as well as personal competencies for the vacant position.
It should be noted that in effective models of public service, admission to public service and competitive selection are inextricably linked to the formation of a personnel reserve.
In the new model, the procedure for entering the civil service will be fundamentally improved by introducing a two-stage competitive selection, the distinctive characteristics of which will be the expansion of the substantive part of the competitive procedures and the mandatory finding of a candidate for a vacant position in the personnel reserve of the administrative civil service.
Currently, the authorized body for civil service affairs is conducting a pilot project for a two-stage competitive selection, based on the results of which the relevant normative work will be carried out.
In the new model of public service, at the first stage of competitive selection, the authorized body and its territorial departments will select the personnel reserve of the administrative civil service. In other words, a single database of candidates for admission to the civil service will be formed.
The selection for the personnel reserve of the administrative civil service will be based on testing, which determines the level of knowledge of the Constitution of the Republic of Kazakhstan and legislation on civil service, as well as the level of professional and personal competencies relevant for the effective performance of functional duties by civil servants, regardless of the industry specifics of the state body.
In order to assess the professional and personal competencies of a civil servant, the concept of a "civil servant competence profile" will be normatively fixed, which will allow it to be used as an integral part of the qualification requirements for candidates for administrative government positions.
The authorized body for Civil service Affairs will approve a standard competence profile for each level of the administrative civil service (managerial and executive), on the basis of which industry competence profiles will be developed.
The new testing program will be differentiated depending on the level of the talent pool.:
1) for initial admission to the civil service, that is, for enrollment in the personnel reserve for positions in the executive corps "B";
2) for the career advancement of civil servants of the "B" corps and for enrollment in the personnel reserve for positions in the "A" administrative corps.
A candidate who has successfully passed the competitive testing will be issued a certificate of enrollment in the personnel reserve, giving him the right to participate in the second stage of the competitive selection.
Applicants enrolled in the personnel reserve of the administrative civil service are provided with the opportunity to complete an internship at a government agency.
At the second stage of the competitive selection for appointment to a vacant position, the state body conducts a competitive selection only from among the persons enrolled in the personnel reserve of the administrative civil service as a result of testing the first stage.
During the competitive selection of the second stage, competitive procedures will be applied, determined by industry specifics and areas of activity of the state body.
The authorized body for civil service affairs will determine standard competitive procedures for use by the state body at the second stage of the competitive selection: profile (industry) testing, as well as an interview (individual, group), exam, and essay writing.
Each state body, in coordination with the authorized body for civil service affairs, will independently determine the type of competitive procedure in accordance with the industry orientation of its activities, the specifics and job responsibilities of a particular vacant public position for which a competitive selection is being conducted.
The mechanism of appointment to a vacant administrative state position in the order of transfer will be improved for government agencies.
To increase the degree of objectivity and transparency of the interview with candidates for a vacant position conducted by the competition commission of a state body, the issues of audio and video surveillance of the interview process will be normatively defined, the mandatory notification of competitive procedures and the right of participation of socio-political associations, non-governmental organizations and the media in meetings of the competition commissions of state bodies will be normatively fixed.
It also provides for the establishment of personal responsibility of the chairman and members of the competition commissions of state bodies for the quality and objectivity of the competitive selection process.
Thus, the introduction of a two-stage competitive selection process will make it possible to effectively use the personnel reserve of the civil service and provide government agencies with professionally competent personnel.
2.3. Further development of the civil servants' training system
In world practice, issues of professional development and training are a priority in the human capital management system of the civil service.
Taking into account the provisions of the Strategic Development Plan of the Republic of Kazakhstan until 2020, the status of the Academy of Public Administration under the President of the Republic of Kazakhstan as a basic educational center for the training of highly qualified civil servants will be significantly strengthened.
The most important measure will be the qualitative modernization of the substantive part of the training, retraining and advanced training programs for civil servants, including updating training programs based on modern educational technologies and principles of the results-oriented public administration system.
Training, retraining and advanced training programs for civil servants will become more flexible and will take into account the best international practices in the functioning of the public administration and public service.
Taking into account the division of administrative civil servants into managerial and executive corps, differentiated approaches to building their training processes will be provided.
For civil servants appointed to the positions of corps "A", before starting the direct performance of official duties, the possibility of short-term training aimed at gaining knowledge in the field of management, strategic planning, and effective management decision-making will be provided.
Individual professional development and training plans for a specific calendar period will be drawn up for employees of the A management corps and employees enrolled in its personnel reserve based on an assessment of professional and personal competencies.
The individual plan will take into account the professional needs of civil servants both in the content of training and in choosing an educational institution.
The National School of Public Policy, designed to provide training for the national management elite, will play a key role in the professional development of Corps A employees.
The training of civil servants of the B corps will be based on educational programs aimed at acquiring knowledge and skills for the effective implementation of political decisions and the implementation of strategic programs.
To improve the effectiveness of training civil servants at the regional level, the Academy of Public Administration under the President of the Republic of Kazakhstan will coordinate the activities of regional centers for retraining and advanced training, monitor the quality of the content of educational programs.
Coordination of the activities of regional centers for retraining and advanced training is aimed at forming a unified system of accumulation and exchange of knowledge in the field of public administration and public service and providing high-quality educational services at the regional level.
In order to increase the level of professionalism of personnel at the regional level, a quota will be allocated for civil servants of local executive bodies to study at the Master's degree program of the Academy of Public Administration under the President of the Republic of Kazakhstan.
Thus, the Academy of Public Administration under the President of the Republic of Kazakhstan will become a unified educational, methodological, scientific and personnel training center for civil servants.
The system of training civil servants will include systematic measures aimed at effectively using the potential of the International Scholarship of the President of the Republic of Kazakhstan "Bolashak" and "Nazarbayev University".
In particular, the training and retraining of civil servants abroad, as well as professional internships within the appropriate quota, will ensure a qualitatively new level of their professional development and will be an additional motivation mechanism.
The system of professional training of civil servants will regulate the training procedure within the framework of postgraduate education programs.
In particular, the mandatory retention of positions for civil servants studying under master's and doctoral programs in priority specialties will be normalized.
There will also be a legal provision according to which, upon completion of training, a civil servant may be appointed to a position previously held by him, or to another position of equivalent qualification and professional requirements, or to a higher position, the functional responsibilities of which correspond to the newly acquired professional knowledge and skills.
In order to effectively use the opportunities for retraining and advanced training of civil servants and budget funds, the issues of organizing educational and labor processes in government agencies will be regulated.
The implementation of the proposed measures aimed at improving the system of professional development of civil servants will require amendments and additions to relevant regulatory legal acts.
2.4. Implementation of the evaluation and career planning system for civil servants
In world practice, the assessment of the final results of the work of civil servants is used, based on a comparison of set goals and objectives, job descriptions, work performed and results achieved.
The evaluation results are the basis for making personnel decisions about the encouragement of civil servants, their career advancement, and the need for additional training.
The new model will improve the system for evaluating the performance of civil servants.
The evaluation of the effectiveness of the work of civil servants will be result-oriented and will become the basis for awarding and encouraging civil servants, determining the need for retraining and advanced training, and promotion.
The new model will also improve the mechanism for certification of civil servants, which will apply only to civil servants whose activities are determined to be insufficiently effective according to the results of the assessment.
The procedure and conditions for the assessment and attestation of civil servants will be determined by the relevant regulatory legal act on the proposal of the authorized body for civil service affairs.
Considering that the career of a civil servant is an important component of the motivation system that characterizes progress towards the intended social and official status and ensures professional and social self-realization of a civil servant in accordance with his level of qualifications and work experience, the concept of "career planning" will be normalized.
The career advancement of civil servants will be based on the results of an assessment of the effectiveness of a civil servant in his position.
The new model of public service will legislatively provide for a career planning system and define the criteria for career advancement.
2.5. Improvement of the motivation system for civil servants
Motivation for high-quality and effective work is becoming an essential element of labor relations in the civil service, which also ensures a favorable atmosphere in the staff of the government agency.
In the new model of public service, the formation of an effective motivation system will be aimed at ensuring competitiveness with the private sector.
An effective motivation system for civil servants will become a factor that creates direct incentives for high performance in work, retains personnel in public service, and is an additional measure to prevent corruption offenses.
In the motivation system for civil servants, remuneration plays a dominant role; in the new model, the remuneration system will be based on an assessment of their work.
The improvement of the remuneration system for civil servants will be carried out based on an analysis of the current state of the labor market.
Remuneration will be based both on the position held and the length of public service, as well as on the assessment of the quality of work of civil servants.
The remuneration system in the new civil service model will take into account the professional training of civil servants, skills, workload (work intensity), as well as the level of responsibility for the work performed and decisions made.
In order to reward the most competent and effective employees, it is advisable to ensure the creation of a separate bonus fund in a government agency, the distribution of which will be based on an assessment of the quality of work of civil servants.
Mechanisms will be provided to ensure transparency and transparency in the allocation of the bonus fund within the government agency.
The issues of remuneration in the new model of public service will be regulated by a separate regulatory legal act, which makes it possible to provide an appropriate financial and economic justification.
According to international practice, the social and pension provision of civil servants will occupy an important place in the motivation system.
Non-monetary incentive methods will become an important part of the motivation system for civil servants, for example, recognition of personal professional achievements of a civil servant by consolidating the institution of mentoring, which is aimed at transferring positive experience and professional knowledge, ensuring continuity in the work of government agencies and the rapid adaptation of new employees.
Mentoring will be considered as one of the important steps in a professional career. The mentoring civil servants will provide expert and advisory support to the activities of young professionals in the government agency, including participating in the assessment of the quality of their work and certification.
Considering that moral stimulation is the most developed type of motivation based on a person's need for public recognition, it is necessary to use more effectively such methods of encouragement as awarding the title of the best employee and the best structural unit, awarding commendation sheets, diplomas, additional training at industry courses, professional (specialized) seminars and trainings.
In addition, the new model of public service requires the formation of a corporate spirit aimed at internal motivation and a sense of personal contribution to the activities of a public authority.
The motivation system will use an individual approach within the framework of the holistic personnel policy of the state body.
In order to ensure the effective functioning of the motivation system for civil servants, the issues of using non-monetary methods should be regulated both in legislation in the field of public service and in general correspond to labor legislation regulating the public sector.
2.6. Improving the Public Service personnel management process
In the new model, an integrated public service personnel management system will be formed, including methodological interaction between the personnel services of government agencies and the authorized body for civil service affairs.
The authorized Body for Civil Service Affairs will systematically ensure the regulatory and methodological design of a new model of public service that takes into account current trends in the public administration system.
In order to implement the new personnel policy and form an effective public service personnel management system, the activities of the personnel services of public authorities will be carried out on the basis of a model provision that defines the structure, number, functions and tasks of the personnel service in a public authority, as well as relevant methodological recommendations.
Appointments of heads of personnel services of state bodies or officials who are entrusted with the functions of personnel services will be coordinated with the authorized body for civil service affairs.
Ensuring compliance with the labor regime established by the labor legislation of the Republic of Kazakhstan will also become one of the activities of the personnel services of state bodies.
The widespread use of e-government capabilities in the activities of personnel services of government agencies will be aimed at improving the efficiency of personnel decision-making, in turn, the use of an electronic document management system and an intranet portal of government agencies will simplify and optimize both internal and external procedures for government agencies.
According to the best international practice (Great Britain, USA, Germany, Singapore, Malaysia, etc.), the effective implementation of personnel policy in the field of public service, including in relation to the corps of senior administrative civil servants, is based on an integrated system of personnel management of the civil service and its automation.
The functioning of the e-kyzmet system will allow the personnel services of government agencies to manage personnel in accordance with the best international practices, increase the productivity of the personnel services of government agencies and reduce the time and labor costs for obtaining and updating information.
The e-kyzmet system will allow you to receive complete personnel information about civil servants at the central and regional levels online: personal data, organizational information (personnel records), information about professional and personal competencies, education, qualifications, seniority, professional experience, evaluation and certification results; operational monitoring of rotation, operational accounting of training, dates and topics of courses, information on incentives and administrative and disciplinary penalties, data from law enforcement and judicial authorities on corruption offenses of civil servants.
2.7. Improvement of ethical standards in public service
In world practice, administrative ethics is considered one of the most important ways to combat corruption. In a number of countries, special laws regulate the ethics of public service and are aimed at improving the moral climate of the public administration system.
Standards of ethical conduct for civil servants are contained in special regulatory legal acts, collectively known as "codes of conduct for civil servants."
The standards of conduct of civil servants enshrined in regulatory legal acts are designed to determine the main directions in the conduct of civil servants in the performance of official duties.
These standards contribute to the formation of a certain style of behavior of a civil servant, consistent with the values and principles of public service and the expectations of society.
A two-tier administrative ethics management system will be developed in the new model of public service based on the positive experience of foreign countries.
At the first level, a regulatory legal act is being developed that defines general standards of conduct for civil servants.
At the second level, more detailed rules and standards of conduct are being developed for civil servants of each government agency.
The departmental rules of conduct for civil servants describe in detail the ethically problematic situations that an employee of a particular government agency may encounter in the course of performing his official duties, and provide detailed rules of conduct in such situations.
To form an administrative ethics management system, it will be necessary to legislate the concept of "ethics of public service" and the basic principles on the ethical behavior of civil servants.
The legislative framework on conflict of interest issues will also be improved in the civil service system.
A mechanism will also be worked out to strengthen the responsibility of the first heads of state bodies, including up to resignation, in case of corruption offenses committed by senior officials in these bodies.
In the new model of public service, it is advisable to combine the fundamental principles and provisions of public service in a single document, which will apply to all types of public service, in particular, in the Civil Service Code, which provides for the basic rights and duties of civil servants, restrictions imposed on them, and social and legal guarantees.
In the future, the norms of this code will be extended to civil servants and persons whose maintenance is carried out at the expense of the state budget, as well as to persons working in organizations with state participation.
The effectiveness of the disciplinary councils of the authorized body for civil service affairs will be improved.
It should also be noted that the facts of the admission to public service of persons who had previously been prosecuted negatively affect the confidence of citizens in the state apparatus as a whole.
In this regard, it is advisable to determine at the legislative level the possibility of limiting the admission of such persons to public service.
These measures will strengthen the ethical and anti-corruption requirements for civil servants and increase public confidence in the state apparatus.
2.8. Improving the quality of public services
In the new model of public service, the quality of public services will become a priority indicator of the effectiveness of civil servants, in other words, the civil service will be focused on the population as a consumer of public services.
In accordance with the new approaches to state planning and budgeting, the activities of government agencies should be focused on the provision of public services arising from the functions and powers of government agencies.
To increase the effectiveness of government agencies, regulatory, methodological and organizational measures will be identified aimed at improving the quality of labor organization and management in government agencies, decision-making processes and procedures based on the principles of transparency and responsibility of specific officials.
In this regard, there is an increasing need to use information technology, which is aimed at optimizing and automating the functions of a government agency in providing services to the public and business, reducing administrative barriers and direct contact between the public and business with the government agency.
Increasing the number of electronic public services provided on the e-government portal is also one of the key tools for improving the quality of public services, in this regard, socially significant public services of government agencies will be converted to electronic format.
An effective measure should be the establishment of control over compliance with approved standards and regulations for the provision of public services.
By Decree of the President of the Republic of Kazakhstan dated March 19, 2010 No. 954 "On the System of Annual assessment of the effectiveness of central State and local executive bodies of regions, cities of republican significance, and the capital", the authorized body for civil service affairs is authorized to evaluate the provision of public services.
In order to improve the quality of public services and manage the process of their provision, it is necessary to introduce effective external control, which will require appropriate changes to legislation and the definition of an authorized state body.
Legislation should provide for liability of persons for poor-quality provision of public services, as well as violation of standards and regulations of public services.
In addition, feedback from the public will be established on an ongoing basis to assess the quality of public services provided, including by conducting a questionnaire survey upon direct receipt of public services and opinion polls aimed at determining the degree of satisfaction of individuals and legal entities with the quality and accessibility of public services.
2.9. Formation of a positive public service image
In the new model of public service, the priority should be the formation of a positive image of the public service, including timely informing and responding to citizens' appeals, and creating a favorable opinion about the activities of government agencies based on the results achieved.
In forming a positive image of the civil service, the main directions are, respectively, improving the quality of public services and establishing public relations.
Citizen orientation, professionalism, efficiency, openness and accessibility should become the main principles of government agencies' work.
The dialogue between the civil service and the public, including socio-political associations, non-governmental organizations, and the media, involves the systematic informing of citizens about their activities by government agencies, as well as the development of contacts with the public and the adoption of mutually acceptable decisions based on them.
In this work, it is necessary to make full use of the potential of print and electronic media, which are able to provide effective interactive communication between government agencies and the public, to bring the needs and opinions of social groups to government agencies at all levels.
The mechanisms in the work of each government agency in this area should be: the placement of information materials in the media; monitoring of the information space and public opinion to make optimal management decisions; direct contacts of civil servants with the public (receptions of citizens on personal issues, formal and informal meetings with the public, various kinds of extended meetings involving various groups public, presentations of various social and other projects); interactive interaction with representatives of various categories of citizens, etc.
In general, the formation of a positive image of the civil service will be one of the key components of the reform, determining the attitude of government agencies to constructive cooperation with society.
Section 3. Tools for implementing the concept
The implementation of tasks and indicators defined by Decrees of the President of the Republic of Kazakhstan dated August 24, 2009 No. 858 "On the Concept of Legal Policy of the Republic of Kazakhstan for the period from 2010 to 2020" and dated February 1, 2010 No. 922 "On the Strategic Development Plan of the Republic of Kazakhstan until 2020", as well as the provisions of this Concept, is provided by improvement of legislative and subordinate regulatory legal acts regulating the sphere of public service.
The provisions of this Concept will be implemented through the improvement of legislative and other regulatory legal acts on civil service issues.
The concepts introduced by this Concept will be consolidated at the legislative level, and the authorized body for civil service affairs will also be provided with new functions based on the provisions of this Concept.
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