In Russia the change management system in the field of electronic state services will appear

On August 20, 2015 the prime minister Dmitry Medvedev signed the order of the government which he approved the Concept of optimization of mechanisms of design and implementation of interdepartmental information exchange, optimization of an order of development and the approval of administrative regulations for the purpose of creation of a change management system^[1].

In the situation which developed for 2015 the changes made to regulations are not synchronized with changes in information systems of rendering state services. Changes in some IT systems are not synchronized with changes in other systems. The concept is also developed for the solution of this problem. Its complete text is given below.

Introduction

This Concept is developed in pursuance of point 5 of Section I of the minutes of the Government commission on use of information technologies for improvement of quality of life and conditions of conducting business activity of September 19, 2013 No. 1.

Possibilities of optimization of the relations arising in connection with providing the public (municipal) services respectively by federal executive authorities, bodies of state non-budgetary funds, executive authorities of territorial subjects of the Russian Federation and also the local government authorities and other organizations participating in providing the public (municipal) services (further - bodies (organizations) - contractors of services) according to the Federal law "About the Organization of Providing the Public and Municipal Services" are provided in this Concept (further - the Federal law).

Adoption in 2010 of the Federal law became a starting point for formation in the Russian Federation of the system of providing the public (municipal) services based on active use of information technologies.

Provisions of the Federal law ordered to bodies (organizations) - to contractors of services to pass to interaction 2 with the applicant in electronic form and also to perform interdepartmental information exchange in electronic form when providing the public (municipal) services.

It led to implementation of a new order of the organization of a system of providing the public (municipal) services.

For the last few years in development of provisions of the Federal law and for the purpose of informatization of the processes providing providing the public (municipal) services the federal state information systems "Federal Register of the Public and Municipal Services (Functions)" were created (further - the register of services), "The uniform portal of the public and municipal services (functions)" (further - the uniform portal), "The state information system about the state and municipal payments", "A unified identification and authentication system in the infrastructure providing information and technology interaction of the information systems used for providing the public and municipal services electronically", "A single system of the regulatory reference information" and also a single system of interdepartmental electronic interaction, etc. Besides, a number of actions was directed to development and upgrade of already existing departmental information systems.

However now work of the specified systems is not up to the end synchronized. Change of the data which are contained in one information system does not lead to change of the interconnected data in other systems. Besides, permanent change of the regulatory legal base attracts permanent change of conditions of providing the public (municipal) services.

Meanwhile now all changes of conditions of providing the public (municipal) services should be synchronized between departments, and changes in one information system should lead to changes in all adjacent systems.

The problem of integration of a set of the information systems used for providing the public (municipal) services and management of interconnected information streams is very relevant.

As a matter of priority it is necessary to work on creation of a change management system - linear (on a chain) 3 processes of updating of data on the public (municipal) services and an order of their providing.

It should be noted that now the majority of the processes connected with updating of the data which are contained in information systems is provided with staff of bodies (organizations) - contractors of services in "manual mode" in the order set in each body (organization) - the contractor of services, at the same time not always regulated. Initially the problem of interconnected development of information systems did not face departments.

Thus, at the federal level it is necessary to develop a change management system which will provide adaptation of information systems to external changes and also to the changes happening in the interconnected information systems.

Description of problems

The existing order of development, approvals and acceptance of regulatory legal acts in the field of providing the public (municipal) services does not allow to perform in rather short terms change of legal regulation of an order of providing the public (municipal) services and also requirements to development and upgrade of information systems and (or) their integration with other information systems.

In most cases the specified changes happen without approval of all contractors of services participating in implementation of such changes. Besides, at change of regulatory legal acts need of development of information systems is not considered. All this leads to the fact that information systems of bodies (organizations) - contractors of services often function out of the legal framework and contain irrelevant information.

The solution of an issue of quality improvement of providing the public (municipal) services in many respects depends on improvement of an order of interaction between bodies (organizations) - contractors of services, timely and operational making changes in the regulatory legal acts regulating an order of providing such services, increases in information openness and search availability of information on services both to citizens (interested persons), and to staff of bodies (organizations) - contractors of services.

So far objective need of determination of the unified information system containing or using all up-to-date information about the provided public (municipal) services, types, methods of their receiving, all regulatory legal acts, uniform forms of statements for receiving services, the details and methods of collection of a payment for their providing which are a source of information on services for all information systems used by bodies (organizations) - contractors of services ripened.

The specified role can be executed on the basis of the register of services using which operational and timely making changes and updating of data on services should be provided.

According to the Regulations on the federal state information system "Federal Register of the Public and Municipal Services (Functions)" approved by the order of the Government of the Russian Federation of October 24, 2011 No. 861 "About the federal state information systems providing electronic submission of the public and municipal services (implementation of functions)" the term set for making changes in data on the public (municipal) services is 1 calendar month from the date of entry into force of the regulatory legal act setting powers of federal executive authority or body of state non-budgetary fund for providing the public (municipal) services. Despite it, now updating of data in the register of services happens wavy, as a rule, on personal errands of the Government of the Russian Federation.

According to provisions of the Federal law transition to providing the public (municipal) services within interdepartmental information exchange by federal executive authorities, bodies of state non-budgetary funds should be performed since October 1, 2011, and executive authorities of territorial subjects of the Russian Federation and local government authorities - since July 1, 2012.

For the purpose of implementation of the specified regulation concerning each public (municipal) service design process of interdepartmental information exchange on the basis of the process charts of interdepartmental interaction (further - process charts) containing the scope of information of interdepartmental requests and answers to them and also terms and an order of such interaction was provided.

Besides, the single system of interdepartmental electronic interaction which allowed its participants to exchange legally significant information electronically was created. For this purpose participants of this system develop electronic services using which interdepartmental exchange of data is performed.

For ensuring interdepartmental electronic interaction by bodies (organizations) - contractors of services develop electronic services, each of which should provide data on interdepartmental requests in strict accordance with the developed process charts. However the existing practice of implementation of interaction of departments in electronic form showed that services of suppliers and consumers of information are developed and change asynchronously, in a short time and in a separation from process charts. The interdepartmental inquiry sent in electronic form electronic service not always corresponds to the approved scope of information in the process chart.

Also departments do not perform timely updating of process charts in connection with change of the regulatory legal base owing to what interdepartmental information exchange is often performed outside the legal framework.

According to provisions of the Federal law the administrative regulations of providing the public (municipal) services are the Basic Element of a regulation of providing the public (municipal) services setting the main requirements and guarantees of ensuring the rights of applicants when providing the corresponding services. With respect thereto key requirements to information which is contained in administrative regulations are its relevance, reliability and compliance to the legislation of the Russian Federation.

At the same time in practice the operating order of development, approvals and adoption of administrative regulations does not allow to react to intensity of changes in the specified sphere timely.

The main difficulties arising in the course of updating of administrative regulations are connected with circuity of procedures of a statement and state registration of departmental acts which such regulations affirm.

It should be noted that the most bulky part in structure of administrative regulations is made by the provisions regulating structure, the sequence and terms of accomplishment of administrative procedures. A part of the specified administrative procedures has operational and technology character, concerns interdepartmental activity and does not affect the applicant directly (i.e. is "the step-by-step instruction").

However the most frequent changes concern data on the addresses, receptive period of applicants, phone numbers for enquiries, the addresses of the official sites of bodies (organizations) - contractors of services in information telecommunication network "Internet" (further - Internet network), the e-mail addresses, payment details (for the purpose of payment of the state fee), the information about responsible officials, etc.

The specified data are the most demanded at applicants, however in itself have no normative character, being, in fact, handbook data.

With respect thereto need of review of requirements to structure of administrative regulations and also optimization of an order of their development and acceptance is represented obvious.

Proposed solution of problems

Problem solving, specified in Section II of this Concept, can be provided by means of taking measures within a change management system in the following directions:

• making changes in the regulatory legal acts regulating an order of providing the public (municipal) services, including development and acceptance of new regulatory legal acts, recognition of regulatory legal acts become invalid;

• change of an order of providing the public (municipal) services in connection with change of internal processes and procedures in department;

• change of information on providing the public (municipal) services connected with change of reality (for example, change of the address, the phone number, the website address);

• identification of unreliable information (errors in information systems).

Within each of the specified directions it is necessary to define a complex of the specific measures allowing to change quickly all interconnected elements of the different systems.

At the heart of the offered actions 2 following principles are underlain:

• if change affects an order of providing the public (municipal) service, then decision-making on such change should be along with planning and approval of all necessary changes in information systems and also with formation of direct instructions to the interested bodies (organizations) - to contractors of services, and in certain cases - after change of the corresponding information systems;

• if change does not influence much providing the public (municipal) service (for example, the change of phone or the address of an office which happened on contingencies), then making changes in information systems should be made as fast as possible and without excess approvals, at the same time in bodies (organizations) - contractors of services the personal responsibility for introduction of such changes should be conferred on employees.

Within creation of a change management system federal executive authorities and bodies of state non-budgetary funds during the developing and approval of drafts of federal laws, decrees of the President of the Russian Federation, resolutions and orders of the Government of the Russian Federation, projects of regulatory legal acts of federal executive authorities need to implement actions for the following directions:

• change of an order of approval of projects of regulatory legal acts;

• creation of a flexible system of suspensive terms at which for the legal acts regulating an order of providing the public (municipal) services the special term of entry into force is established.

change of an order of approval of projects of regulatory legal acts should be performed taking into account the following procedures:

• drafts of the federal laws, decrees of the President of the Russian Federation, resolutions and orders of the Government of the Russian Federation regulating an order of providing the public (municipal) services are entered to the Government of the Russian Federation in the presence of approval of the Ministry of Economic Development of the Russian Federation and the explanatory note containing the unique register number of the public (municipal) service created by the register of services;

• drafts of the federal laws, decrees of the President of the Russian Federation, resolutions and orders of the Government of the Russian Federation regulating an order of providing the public (municipal) services and containing the provisions providing need of completion, development, upgrade of the information systems used for providing the public (municipal) services and interaction with information systems of other bodies (organizations) - contractors of services and (or) their integration with other information systems, are entered to the Government of the Russian Federation in the presence of the plan of creation, development, commissioning, operation, the decommissioning, completion, development and upgrade of information systems and (or) their integration with other information systems (further - the plan of organizational and technology implementation) approved with the Ministry of Telecom and Mass Communications of the Russian Federation;

• projects of regulatory legal acts of the federal executive authorities regulating an order of providing the public (municipal) services are subject to approval of the Ministry of Economic Development of the Russian Federation in the presence of the explanatory note containing the unique register number of public service created in the register of services;

• projects of the regulatory legal acts of the federal executive authorities regulating an order of providing the public (municipal) services and containing the provisions providing need of creation, development, commissioning, operation, decommissioning, completion, development, upgrade of the information systems used for providing the public (municipal) services and interaction with information systems of other bodies (organizations) - contractors of services and (or) their integration with other information systems, are subject to approval of the Ministry of Telecom and Mass Communications of the Russian Federation. At the same time the draft of the act should be sent for approval together with the plan of organizational and technology implementation;

• it is necessary to include in the deciding part of the specified drafts of acts of the Government of the Russian Federation the point concerning reduction of the data placed in the register of services in compliance with this act of the Government of the Russian Federation in a month.

The flexible system of suspensive terms at which for the legal acts regulating an order of providing the public (municipal) services the special term of entry into force is established can correspond, for example, to the following conditions:

• the federal laws, decrees of the President of the Russian Federation, the resolution and the order of the Government of the Russian Federation regulating the order of providing the public (municipal) services, regulatory legal acts of federal executive authorities regulating an order of providing the public (municipal) services should become effective:

• at the end of the I quarter of the year following after a year of adoption of the act - for the acts adopted in the second half of the year of the previous year;

• at the end of the III quarter of the current year - for the acts adopted in the first half of the year of the current year.

• During the period between acceptance of a regulatory legal act and its entry into force provisions of the plan of organizational and technology implementation should be implemented.

If provisions of the plan of organizational and technology implementation were not implemented to the term set for the introduction of a regulatory legal act in force, the introduction of the specified act in force is postponed to the corresponding date in the next half-year.

The disagreements arising in implementation process of the plan of organizational and technology implementation are considered at subcommittee meetings on use of information technologies when providing the public and municipal services of the Government commission on use of information technologies for improvement of quality of life and conditions of conducting business activity.

Other terms and order of entry into force of regulatory legal acts of the federal executive authorities regulating an order of providing the public (municipal) services can be provided only in execution of the orders of the President of the Russian Federation or Russian Prime Minister containing the corresponding instruction.

Within a change management system it is necessary:

• provide integration of the register of services with other state information systems on condition of compulsory use of the register of services as a source of information on services (functions) in other information systems applied in bodies (organizations) - contractors of services and processing the relevant information;

• provide updating of information which is contained in the register of services in the terms set by the order of the Government of the Russian Federation of October 24, 2011 No. 861 "About the federal state information systems providing electronic submission of the public and municipal services (implementation of functions)";

• provide a possibility of automatic loading in the register of services of data on relevant payment details and payment methods of paid public (municipal) services;

• provide risk reduction, the services arising at manual entry of information in the register and also improve the procedure of conducting examination of the entered data, including due to creation of the maximum quantity of reference books and qualifiers and also due to use of the federal state information system "Single System of the Regulatory Reference Information" (for example, the list of the public (municipal) services, life situations, regulatory legal acts, federal executive authorities);

• develop the mechanism of control and accounting of the changes entered in the register of services and to set responsibility for violation of an order of maintaining the register of services (to appoint responsible in each body (organization) - the contractor of services);

• finish the register of services regarding creation of more "friendly" interface for reduction of time expenditure of staff of bodies (organizations) - contractors of the services responsible for work in a system, during the work in such system;

• provide need of consideration by the Ministry of Telecom and Mass Communications of the Russian Federation of the planned changes entered in the register of services (technical specifications, private technical specifications on development and upgrade of the register of services), for preparation of the offers providing correct interaction of all systems participating in providing the public (municipal) services.

For the purpose of facilitation of approval and maintenance of relevance of data on the approved procedures of interdepartmental interaction designed in process charts them into strict compliance with requirements of regulatory legal acts it is obviously necessary to pass reductions to the unified and centralized model of accounting of such data based on the register of services and to execute the following:

• develop the methodical recommendations defining uniform rules of design and implementation of interdepartmental information exchange during the providing the public (municipal) services and execution of the state (municipal) functions;

• define the standard list of documents (data) which are at the disposal of the participants of interdepartmental interaction necessary at provision of services and also an order of replenishment of the specified list and to provide a possibility of its maintaining based on the register of services;

• typify names of cards of interdepartmental interaction and documents which can be received at implementation of interdepartmental interaction, create the corresponding reference books and qualifiers, having defined the authorized federal executive authorities responsible for their maintaining and also to correct the existing legal acts, having provided the unified name of such documents. It is necessary to understand the document used for accounting of owners of information and the information provided by owners of information on interdepartmental requests when providing the public (municipal) services as the card of interdepartmental interaction;

• create the unified register of cards of interdepartmental interaction (further - the register of the cards) which is describing the scope of information, subject to exchange within interdepartmental information exchange, having provided maintaining the register of cards electronically based on the register of services;

• provide accounting of rights to be informed and documents on interdepartmental requests by registration in the register of cards of receivers of data, the bases for obtaining data during the providing the public (municipal) services, execution of the state (municipal) control and supervising functions;

• exclude technical and organizational capability of the direction by means of a single system of interdepartmental electronic interaction of interdepartmental requests and answers to them in the absence of the cards of interdepartmental interaction placed in the register of cards (prohibition should not extend to the electronic messages of technical character and other electronic messages which are not according to Article 7 2 of the Federal law interdepartmental requests or answers to them);

• provide process of reconciliation of the scope of information of an interdepartmental request and the answer to it and also the scope of information provided in the cards of interdepartmental interaction placed in the register of cards;

• define accounting treatment for the facts of the interdepartmental exchanges performed electronically when providing the public (municipal) services with a possibility of accounting of the facts of their providing.

In the field of a regulation of providing the public (municipal) services acceptance of a number of measures of organizational and legal character is advisable.

Concerning often changeable data which are contained in the administrative regulations which are not setting the rights and duties of applicants and having help character (further - data of directory character), it is necessary to execute the following.

It is possible to carry the separate data provided by Subparagraph "v" of point 13 of Rules of development and the approval of administrative regulations of providing the public services approved by the order of the Government of the Russian Federation of May 16, 2011 No. 373 "About development and the approval of administrative regulations of execution of the state functions and administrative regulations of providing public services" to data of directory character namely:

• information on the location and the working schedule of bodies (organizations) - contractors of services, methods of obtaining information on the location and working schedules of bodies (organizations) - contractors of services, the address to which is necessary for receiving the public (municipal) service and also the multifunction centers of providing the public (municipal) services;

• phone numbers for enquiries of structural divisions of bodies (organizations) - contractors of services, including number of phone - an answerphone;

• the addresses of the official sites of bodies (organizations) - contractors of the services in Internet network containing information on providing the public (municipal) service, the address of their e-mail.

• It is obviously necessary to provide that:

• data of directory character are not provided directly in the text of administrative regulations;

• data of directory character are placed authorized persons of bodies (organizations) - contractors of services in accordance with the established procedure in the register of services (and, respectively, are automatically transferred to the uniform portal) and also on the official sites of bodies (organizations) - contractors of services in Internet network;

• in the text of administrative regulations the instruction on the location of the relevant information is provided in the specified information systems and on the website and also in places of providing the public (municipal) services;

• updating of data of directory character is performed by authorized persons on a permanent basis;

• information about the officials authorized for placement and updating of data of directory character is specified in the register of services and on the official sites in Internet network. Official regulations of specified persons should contain regulations on assignment on these persons of such powers.

For the purpose of implementation of proposed measures it is necessary to make changes to some acts of the Government of the Russian Federation, first of all to the order of the Government of the Russian Federation of May 16, 2011 No. 373 "About development and the approval of administrative regulations of execution of the state functions and administrative regulations of providing public services".

For problem solving, connected with optimization of structure of the administrative regulations, an order of development and adoption of administrative regulations, it is necessary to execute the following.

Development of specific measures in the considered area requires the careful analysis of the existing administrative regulations and law-enforcement practice in the field of providing the public (municipal) services.

At the same time work in the considered area should be conducted in the following directions:

• carrying out the analysis of the existing administrative regulations regarding settlement of administrative procedures, including regarding need of their regulation within administrative regulations (criterion - the importance of a regulation of the corresponding procedure for applicants);

• sales opportunity within administrative regulations of "building block system", namely - selection within providing specific public (municipal) service to the applicant of accurately certain target set of administrative procedures and actions;

• classification of the public (municipal) services for the purpose of unification of the administrative procedures and the scope of information transferred in interdepartmental interaction within rendering services;

• review of the general structure of administrative regulations with a reference point on the fact that a basic component of administrative regulations is the standard of providing the public (municipal) service.

Further the specified approaches can be extended to cases of information exchange both between departments, and between departments and citizens at implementation of other functions (powers) which are not the public (municipal) services.

Besides, the similar description of processes of providing the public (municipal) services containing the detailed explanations, including unformalized in administrative regulations and other regulatory legal acts, can be reflected in technology schemes of providing the public (municipal) services.

In the field of change of an order of providing the public (municipal) services and also changes of internal processes and procedures need to be enshrined in the acts regulating the internal organization of activity of executive authority or local government authority, the provision providing a duty of updating of data in the register of services and also in other information systems.

For the purpose of control of change of the conditions of providing the public (municipal) service which are not connected with normative legal regulation (the address, phone, the e-mail address, etc.), it is necessary to provide the greatest possible use of instruments of formatno-logical control and the automated information control facilities, including:

• check of validity of the e-mail address of body (organization) - the contractor of services, including parsing of the e-mail address and check of existence of domain name of the addressee;

• check of validity of the address of the official site in Internet network, including check of registration of domain name and verification of presence of the address of the official site in Internet network to the specified address; check of validity of numbers of phone numbers for enquiries, faxes of bodies (organizations) - contractors of services;

• check of the postal address and address of location of body (organization) - the contractor of services using a federal information address system;

• verification of presence of the cards of interdepartmental interaction placed in the register of services;

• verification of the name of body (organization) - the contractor of services in quantity of characters in the field (not less than 20 characters) and by means of parsing of the text, in particular check on existence in a field of relevant words (for example, "ministry", "agency", "service");

• verification of information about the head of body (organization) - the contractor of services in quantity of characters in the field, to parsing of the text or a request in the search system.

Measure of rapid response to the changes arising at emergence of errors in the data which are contained in information systems is implementation of the user control which should provide a possibility of the direction of information on errors in information systems by means of sending of information with indication of on an error and with the subsequent control of accounting of the arrived notes.

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