Departmental Digital Transformation Programs (DDTs)

2022

The Ministry of Digital Science will reduce administrative barriers for departments conducting digital transformation

On August 24, 2022, it became known about the decision of the Ministry of Digital Science to reduce administrative barriers for departments conducting digital transformation. As Kommersant writes with reference to the draft government decree developed by the ministry, it assumes the possibility of using projects of departmental digital transformation programs (WPTT) to approve budgets for fulfilling obligations under previously concluded state contracts. Previously, the basis for approving the amount of funds for purchases for informatization of departments was only an already approved program.

According to the explanatory note, to which the newspaper also refers, the changes proposed in the document are necessary due to the requirements of the "dynamic redistribution" of resources by government agencies. In the context of rising prices, departments will be able to purchase the necessary goods, works, services in the field of ICT at earlier stages.

Ministry of Digital Science will reduce administrative barriers for departments

As explained to the publication in the Ministry of Digital Science, the use of the draft program to approve the budget for the fulfillment of obligations under previously concluded state contracts will eliminate the "cash gap" - when the program of the previous budget cycle is no longer valid, and the project for the next cycle has not yet passed the approval procedure.

In addition, the draft government decree prepared by the Ministry of Digital Science refers to the right of departments to redistribute amounts of up to 1 billion rubles between program activities without coordination with the Ministry of Digital Science and consideration at the presidium of the legal commission on digital development - if the target values ​ ​ of the indicators do not change.

Another proposed innovation is to reduce the administrative burden on government agencies by the Ministry of Digital Industry in the process of monitoring the implementation of the WPTT. Departments will not have to provide duplicate information for reporting on projects, the necessary data will be obtained through information interaction.^[1]

Ministry of Digital Development will change the methodology for assessing the digital transformation of authorities

By the end of May , the Ministry of Digital Science will submit proposals to change the methodology for assessing departmental digital transformation programs (WPTT), the department told TAdviser on May 23. And by July 1, all departmental programs will be revised to determine key indicators.

Digital transformation must be carried out even in the current difficult conditions. We have ambitious goals that follow from the instructions of the president, the government. In general, the assessment of the methodology shows that there are more than 100 indicators in departmental programs of digital transformation, colleagues add them, we appreciate initiative. But, in the end, it turns out that the key points of change that are needed, which are waiting for users of public services, are dissolved and leveled in such a number of indicators, - explained the need for changes Maksut Shadayev.

It turns out that 95% of the indicators are fulfilled, but, conditionally, 5 main ones are not. The Ministry of Digital Industry plans to choose key indicators that mainly affect changes in the work of departments. They will have an 80% share of the total program score.

Earlier, the Ministry of Digital Science, together with the RANEPA, developed a methodology for assessing the effectiveness and effectiveness of digital transformation managers. The RCT assessment takes into account: the degree of achievement of the digital transformation performance indicators, the financial discipline of the CPT implementation, the operational rating of the performance indicators and the effectiveness of the RCT.

In 2021, there were 63 departments on monitoring. 35 FOIVs scored average, 18 high and 10 low. Among the 18 FOIVs who showed a high result. Read more here.

2021

Mishustin approved the strategic direction in the field of digital transformation of public administration until 2030

In October 2021, Prime Minister Mikhail Mishustin signed a decree of the Government of the Russian Federation, which approved a strategic direction called "Digital Transformation of Public Administration." Read more here.

The Ministry of Digital Science requested 118.4 billion rubles for IT solutions for public administration and public services

On January 19, 2021, it became known about the proposal of the Ministry of Digital Science to allocate 118.4 billion rubles from the federal budget for the digital transformation of several departments and government services. In particular, the ministry requests 78.6 billion rubles to finalize services of public services, 37 billion rubles to "ensure the reliability of the functioning" of this system and 2 billion rubles to "reduce the costs of public administration."

As Kommersant writes with reference to the published plan for the digital transformation of the Ministry of Digital Science, it is proposed to allocate 19.4 billion rubles for the development of the Russian mobile operating system Aurora. The funds will be used to provide teachers and doctors with tablets, mobile communications and the Internet, as well as the development of applications, the deputy head of the Ministry of Digital Science Andrei Chernenko told the newspaper. According to him, it is planned to supply about 700 thousand devices by 2024.

The Ministry of Digital Science requested 118.4 billion rubles for IT solutions for public administration and public services, funds will be received by Aquarius and Byte Erg

The manufacturers of tablets based on the Aurora operating system are two Russian companies: Aquarius and Byte Erg, it turns out that they will become the recipients of this money, Kommersant reports citing its source in the government. According to the interlocutor, the problem of Aurora is not in the OS itself, but in the half-empty application store.

It needs to be supplemented with new software that can be used, for example, by doctors or teachers, "he explained.

In general, due to the implementation of the digital transformation program, the Ministry of Digital Science expects that by 2023 the 18 of superservices - complexes of public services online will be implemented on the portal of public services (14 super services - by 2022), and by 2024 the share of mass socially significant services provided on a single portal of public services from the total number of such services available in electronic form will reach 75% (25% - by 2022, 55% - by 2023).^[2]

25 federal departments approved digital transformation programs

By January 12, 2021, 25 federal departments approved digital transformation programs. Their documents were published:

• Roszheldor;
• Rosselkhoznadzor;
• Rosstandart;
• Federal Treasury;
• Rosvodresursy;
• Rosarchiv;
• Roshydromet;
• FTS Russia;
• Rossvyaz;
• Ministry of Culture;
• Rosreestr;
• Ministry of Education and Science;
• Rosprirodnadzor;
• Rossotrudnichestvo;
• Rosmolodezh;
• Rostransnadzor;
• Ministry of Industry and Trade;
• Ministry of Economic Development;
• Federal Penitentiary Service of Russia;
• Rosobrnadzor;
• Rosavtodor;
• Ministry of Eastern Development;
• Ministry of Construction of Russia;
• Rospatent;
• Roszdravnadzor.

As the D-Russia.ru portal notes, some of the published documents are carelessly scanned, there are inverted tables and a blurred font.

25 federal departments approved digital transformation programs

On December 30, 2020, the office of Deputy Prime Minister Dmitry Chernyshenko announced that the federal executive authorities of the Russian Federation had developed 60 departmental digital transformation programs. At the same time, Chernyshenko noted that by the end of January 2021, a rating of the digital transformation of federal authorities will be formed. Among the main criteria of the rating are the quality of preparation of departmental programs of digital transformation, the degree of personnel security, as well as successful projects in the field of AI. The best AI solutions will be included in the register, which will be available for use in the regions in 2021.

In early January 2021, Russian President Vladimir Putin instructed to develop regional strategies for digital transformation. The heads of the constituent entities of the Russian Federation must by September 1, 2021 develop and approve regional strategies for the digital transformation of key sectors of the economy, social sphere, public administration to achieve their "digital maturity," providing for the introduction of competitive domestic software and software and hardware systems.^[3]

2020: The government has approved new rules for monitoring the digitalization of government agencies. Analysis of the document and comments of the Ministry of Digital Science

Following a government meeting on October 8, 2020, Prime Minister Mikhail Mishustin signed Decree No. 1646, which significantly changes the current procedure for monitoring the use of ICT in federal departments. TAdviser analyzed the new rules and received comments from the Ministry of Digital Science on the procedure for their introduction.

Gone is the era...

On October 8, 2020, it fell to become a special day for the state IT sector in Russia. On this day, the 10-year history of one of the longest-playing regulatory documents in the field of state informatization - the Decree of the Government of the Russian Federation of 24.05.2010 No. 365 "On the coordination of measures for the use of information and communication technologies in the activities of state bodies" - has almost ended.

At a meeting of the Government of the Russian Federation, held on October 8, the head of the Ministry of Digital Industry of Russia Maksut Shadayev made a report on the successor to PP 365 - the draft decree of the Government of the Russian Federation "On measures to ensure the effectiveness of measures to use information and communication technologies in the activities of federal executive bodies and management bodies of state extrabudgetary funds." This speech completed a long epic of a draft regulatory document, the approval of which experts in the field of state informatization expected almost 2 years. Moreover, a completely different document came to the finish line, which has almost nothing to do with the version of the NPA, which first became known in the fall of 2018.

At the beginning of the journey, when no one had yet imagined that this path would be so long and difficult, and the result at the finish line was rather unexpected, among experts the draft resolution was already habitually called the "new 365th." New in the sense that the release of the next "changing" resolution was expected, which was supposed to make a number of conceptual changes (some of them were rather radical and expected) to the "payload" of PP 365 - "Regulation on the coordination of measures for the use of information and communication technologies in the activities of state bodies" - but, in general, leave the basis of all planning processes and implementation of informatization plans departments. There were already two such "new 365s" after the release of the original PP 365 in 2010 - Decree of the Government of the Russian Federation of April 25, 2012 No. 394 and Government Decree of May 5, 2016 No. 392. The "New 365th" of 2018 was supposed to be the third edition, containing a number of innovations in coordination processes, but not canceling PP 365 as the basis of the entire design.

To understand what was planned in the third "new 365" and what happened in the end, you need to give some explanations about the essence of the processes called "coordination of informatization."

Brief educational program on the history of coordination of informatization

In Russia, the spending of federal departments on IT is controlled and coordinated by the authorized FOIV - Ministry of Digital Science of Russia. Coordination refers to the need for all FFIVs that fall (already we can say - "fell") under the requirements of PP 365, to coordinate their IT budgets and their plans of activities in the field of informatization with the Ministry of Digital Science. The objects of coordination are three main entities - accounting objects (OU), informatization activities (IPI) and informatization plans (PI). In simplistic terms, the OU is what the budget money of the department is spent on (information systems, IT infrastructure, etc.), MPI - for what purposes the money is spent (development and operation of IP, expenses for communication and data transfer, updating the equipment fleet), PI - a special form of "packaging" MPI used for formal procedures for coordinating IT budgets and opening funding from the Ministry of Finance and the Treasury.

It should be clarified here that although PP 365 is 10 years old, i.e. formally it has been in effect since 2010, it has more or less been actively used only since 2012 (just after and as a result of the release of the first "new 365"), and coordination processes entered the normal technical and bureaucratic mode of operation only since 2014. This is explained by the fact that only in 2012 the "Regulation on Coordination" appeared as part of PP 365, which clarified and formalized the coordination processes, and information systems (AIS "Coordination" and AIS Accounting), within which the main coordination processes were automated, began to operate normally only from the end of 2013.

Before the start of the second "new 365," that is, until 2017, the coordination process looked like this. The indivisible "quantum" of coordination was the informatization plan (PI), which each department sent for approval to the Ministry of Communications. The Ministry of Telecom and Mass Communications (represented by its summation from the Federal State Budgetary Institution of the Central Control Commission) conducted an examination of the PI, which consisted in assessing the set of certain criteria for the feasibility of conducting and financing each event (IPI) included in the PI. If at least one MPI in the PI received a negative assessment, the PI was not agreed by the Ministry of Communications and returned to the department for revision. The department carried out "work on errors" and again sent PI to the Ministry of Telecom and Mass Communications. Often the number of "turns" made by PI reached 5-7, and the PI approval process itself stretched for six months or even more. There were separate record offices that managed to finally agree on their PI after the completion of the financial and calendar year for which the PI was developed.

It is not for nothing that they say that in Russia the severity of laws is compensated by the optional implementation of them. Despite the fact that under PP 365, departments had the right to start spending budget funds intended for informatization only after full approval of the PI, approval and publication on their website, in fact, the processes of coordinating PI and spending budget funds existed as if in parallel realities - the coordination of PI with the Ministry of Telecom and Mass Communications went on as usual, and spending funds to their own. This was a violation of regulatory requirements - the Accounts Chamber, which controlled the implementation of PP 365, often recorded such shortcomings, sent submissions to the violating departments and informed the regulatory department (Ministry of Telecom and Mass Communications), but the fines that were imposed on responsible managers were incomparable with potential losses from delaying the implementation of IT projects, and many leaders deliberately went to such violations. De facto, such a state of affairs was even informally legalized - experts from the Ministry of Telecom and Mass Communications did not assess in PI those events for which state contracts had already been concluded and executed at the time of the examination.

Starting with planning for 2017, when the new control mechanisms introduced in PP 365 in May 2016 (the starting point of the second "new 365") were launched, the coordination situation began to change. The main object of the examination was MPI - now their assessment was carried out "by piece," and not as part of an indivisible PI; To automate coordination processes, the FSIS for Coordination of Informatization (FSIS KI) was created and put into operation. A significant innovation was also the integration of the FGIS KI with the GIIS "Electronic Budget"; The agreed MPIs were transferred to the Electronic Budget and the main financial departments - the Ministry of Finance and the Treasury - could use the coordination status of the MPI and PI to make a decision on bringing budget funds to the recipient departments. PI was now collected only from the agreed IPIs, evaluated according to a short and very formal set of criteria and served as a "valve" that opened the financial flows coming from the Treasury. The last year of the "Cossack freewoman" in spending funds on IT was 2017 - since the beginning of 2018, the Treasury has ceased to fulfill the expenditure obligations of departments on state contracts for IT, which were not recorded in the agreed PI. After a short period of time, the very conclusion of state contracts outside the context of the agreed PI became impossible.

But in Russia there is another proverb - "Gol is cunning for fiction." Since the approved PI was required to conclude the contract, the departments began to approve PI, which consisted of a small part of the MPI that were supposed to be implemented - only those that had already been agreed. In 2018-2019. cases when the PI was approved, containing the only agreed MPI (but exactly the one for which the funds were required at the moment), and the number of repeated approvals of departmental PIs containing each time a different number of different MPIs began to be measured in dozens - individual departments managed to issue 2-3 orders per month that made changes to the previously approved PI. Thus, PI lost the function of a cost planning and control tool and turned into a formal "container" for packaging MPIs transferred to the "Electronic Budget" to receive funding.

The absurdity of such "coordination" quickly became obvious to everyone - and the regulator, among other things. It was planned to correct it with the release of the next "new 365," the main innovation of which was to be the abolition of the need for PI approval - PI was generally supposed to be disavowed as an object in coordination processes, and only individual MPIs and funding to be opened directly for MPIs. The existence of a project of just such a "new 365" became known in the fall of 2018, and in mid-2019 it was even published for public discussion on the portal for publishing NPA projects (regulation.gov.ru). The approval of the draft of this PP was expected first in the summer of 2019, then in the fall, then by the beginning of 2020, but the New Year came - and a few days later the government was dismissed. For a couple of months in the Ministry of Telecom and Mass Communications it was not at all before the release of the "new 365."

Not the "new 365," but the "killer of 365"

The government remembered the need to solve something with the coordination processes of informatization in mid-March 2020. It was then that Deputy Prime Minister Dmitry Chernyshenko, who replaced Maxim Akimov as curator of digitalization, instructed the Ministry of Telecom and Mass Communications to urgently prepare for the approval of the resolution "On measures to ensure the effectiveness of measures to use information and communication technologies in the activities of federal executive bodies and management bodies of state extra-budgetary funds." All specialists in the departments who were involved in the coordination processes took this news unequivocally - the "new 365th" will finally be approved very soon. Only the references that appeared about a new entity that was not previously in the coordination processes - the so-called departmental digital transformation program (WPTP) - were alarming.

For the first time, Prime Minister Mikhail Mishustin publicly mentioned the ICPT at a meeting with newly appointed and planned departmental heads of digital transformation (CDTO), held at the same time, in mid-March:

In the near future, a typical departmental digital transformation program will be developed, designed for three years. It should include indicators against which it will be possible to assess the results of the implementation of information technologies, and each of you will be responsible for their implementation in your area, have appropriate indicators or KPIs - indicators of your activity

The publication for public discussion of the "new 365" project, which took place in a couple of weeks, plunged experts into bewilderment. In accordance with this project, it turned out that the PI was canceled, but it was replaced by the ICPT - with a new and to the end still unworked structure, with missing development methods and evaluation/approval criteria, with an incomprehensible mechanism for moving from PI to ICPT. And most importantly, in the draft "new 365" it was directly written that this was not a "new 365," because PP 365 was planned to be canceled simultaneously with the adoption of the new decree. Quickly enough, the PP project received the informal title "killer of the 365th."

The adoption of the now "murderer of 365" was expected no later than May 2020; on such a date, all related activities were timed - the development in the departments of the first projects of the ICPT, their submission for assessment to the Ministry of Communications and subsequent approval by the Presidium of the Government Commission. But the project of the new PP stalled somewhere in government corridors, and very contradictory information began to appear about the timing of its possible release - either "they are about to sign" or "it is not clear when - work is underway, interdepartmental disagreements are being removed." At the same time, the IT leadership block in the government and the Ministry of Telecom and Mass Communications demanded that the departments urgently develop WPTT projects, based on unfinished and repeatedly changed during March-May 2020 standard forms of WPTT. TAdviser is aware of at least two facts of the Ministry of Telecom and Mass Communications sending recommendations with "typical forms of VCPT," which differed so much from each other that departments that managed to develop their VCPT projects in accordance with the first recommendations had to redo everything almost again after receiving new recommendations.

And in parallel, work continued on planning IT budgets for the period 2021-2023. in accordance with the good old PP 365 - because it still continued to operate, and no one canceled the deadlines for events under PP 365, and the controllers of the Accounts Chamber checked compliance with these deadlines all the same rigidly. In this mode, summer passed, September came and passed. All this time, the departments were forced to conduct parallel development of both PI and WPTT - without a clear understanding of what standard they will enter into 2021. Moreover, the development of the ICPT was carried out manually, because the prescribed improvements to the FGIS KI "under the ICPT" were carried out, then their status and the expected readiness period remained unknown.

PP 365 is gone. Long live PP 1646!

And now - it happened, finally! The report of Minister Maksut Shadayev at a government meeting on October 8 was a formal final action before the signing of the new PP by the prime minister. On October 10 , the document was signed by Prime Minister Mikhail Mishustin under number 1646.

In a short message on hearing the report on the draft PP at a meeting of the Government it is said:

Draft Resolution:

• the Regulation on departmental programs of digital transformation is approved;
  
• amendments are made to some acts of the Government of the Russian Federation in terms of clarifying the composition of the materials attached to the draft act sent to the Ministry of Digital Science of Russia for an assessment of the feasibility of carrying out measures for informatization and (or) their financing;
  
• a number of acts of the Government of the Russian Federation regulating the coordination of activities on the use of information and communication technologies in the activities of state bodies are recognized as invalid.
  

What is actually written in the new position?

The Ministry of Telecom and Mass Communications (now the Ministry of Digital Industry) tried in the "killer of the 365th" to argue with the sun of Russian poetry A.S. Pushkin, who in the poem "Poltava" claimed "You can't harness a horse and a trembling doe in one cart." It is precisely "harnessing the horse and the fluttering doe" that the Ministry of Digital Science is trying in the Regulation on the UPCT.

Let's give a very short summary of the essence of the main innovations (remembering along the way that new is often a well-forgotten old one). A more detailed analysis of the new mechanisms for coordinating informatization, which may soon be renamed "mechanisms for coordinating digital transformation," TAdviser plans to publish later, when the first results appear and the pros and cons of the innovations become more obvious.

1. The IT planning processes introduce the department's IT activity plan as a new (that is, well-forgotten old) integral entity to be developed, agreed and approved. It is now called the ICPT, but this is precisely a comprehensive plan - with a single set of goals, with a complete set of activities, with mutually related (as far as possible) deadlines and budgets for individual events. The events in the WPTCT will now be two styles - "informatization events" (MPI of the old style, the same "horse") and "program events," which refer to what is called "digital transformation," whatever is understood by the ideologists of the CT now and in the foreseeable future (these are events of the new style - "awe doe"). But at the same time, it is written in the Regulation on the ICPT that the events of the program may also include the old-style MPI - if they are aimed at solving the problems of digital transformation. Honestly, such interpretations do not promise the clarity and quiet life of departmental informatists.

2. The old-style MPI will be prepared within the framework of the old mechanisms, including among the existing GIS (FSIS KI plus GIIS EB). Events of a new style are also planned to be passed through the same systems, but when the functionality of the FSIS KI and GIIS EB will be ready for this, it is not clear.

3. Formally, the procedure known as "IPI examination" is canceled - in the Regulation on IPCT, actions similar in meaning and achievable effect are called "verification of information contained in IPI." But so far nothing foreshadows that the actions performed in the summation of the Ministry of Digital Science of the Federal State Budgetary Institution of the Central Economic Center, which are too formalized and have a very relative relation to the present examination, will indeed be subjected to a radical restructuring.

4. To put into productive operation all mechanisms of coordination of the CPT, it is required to develop and approve at the Right Commission about 10 standard forms of documents and methodological materials - the list of documents to be approved is given in the Regulation on the CPT. As far as is known, as of October 9, 2020, less than half of the necessary documents were approved, while among the approved there is not a single methodology and assessment rules that should be guided by the experts of the Ministry of Digital Science when coordinating the ICPT. Even if the approval of all the missing documents takes place in the near future (as the Ministry of Digital Industry promises), this will not save the departments from the inevitable adjustment of "live" methods, as has repeatedly happened within the framework of the "old" coordination.

5. The ICPT of all departments will not be approved by the Ministry of Digital Industry, but at the Presidium of the Right Commission. This raises the status of the CPT as an IT cost planning and execution control document. But again it is worth recalling that the first PIs in 2011-2012. were also considered and approved at meetings of the then IT Commission. This, however, did not last long. There are fears that this time, after the first wave of indicative statements of the WPTCT (in September 2020, the first 5 WPTCT were approved by the Presidium of the Right Commission - there were solemn press releases of leading departments on the WPTCT), the Right Commission distances itself from this routine and the center of approval of the WPTCT will return to the Ministry of Digital Science.

6. Approved by the Pravkommission of the ICPT of all departments will be centrally published on the FGIS KI portal - first manually, and someday, when the mechanisms for publishing in the FGIS KI will be developed, and automatically - immediately after the approval of the ICPT. This is certainly a big positive (in order to find a departmental PI, which was subject to mandatory publication on the official website of the department, sometimes it was necessary to have truly detective skills). But this is just a well-forgotten old. Until 2016, the publication of all PIs on a single Coordination Portal was mandatory.

7. A fundamentally new concept has appeared - "consolidated VCPT." This is a single WPTT, which is being developed by a consortium consisting of the head ministry and federal services and agencies under its jurisdiction. The rules for the development and approval of the consolidated ICPT are given a lot of space in the Regulation on the ICPT. The consolidated ICPT also assumes the consolidation of budget funds - and this is exactly how this will be implemented in practice is not yet very clear. Federal departments, in relation to the budget funds at their disposal, behave like feudal principalities.

This, perhaps, should be stopped for now. The new "coordination" decree of the Government of the Russian Federation is just beginning its life, and the real effects from it will begin to appear in about a month, when the WPTR for 2021 will actively begin to be prepared and coordinated. TAdviser will continue to monitor this field of state informatization and will regularly inform its readers.

Preparing for publication of this article, TAdviser appealed to the Ministry of Digital Science of Russia with a request to comment on the observations and conclusions of the analysts of the publication, as well as to explain a number of incomprehensible points in the resolution on VCPT. Director of the Department for the Development of Architecture and Coordination of Informatization Vasily Slushkin agreed to answer a fairly voluminous list of questions prepared by TAdviser.

Vasily Sverkin, Ministry of Digital Science - on new approaches to coordinating informatization

Vasily
Audible

It is worth looking at the list of documents to be developed by the Ministry of Digital Engineering of Russia, as it becomes clear that we are at the beginning of a long journey

Rating of heads of digital transformation of federal departments

Main article: Rating of heads of digital transformation of federal departments

Notes