How the digital model of public administration in the Government of Russia is arranged

Deputy Chairman, Chief of Staff of the Government of Russia Dmitry Grigorenko in November 2024 told TAdviser about how the digital model of public administration is arranged and what tasks it solves, and also demonstrated its capabilities.

Model structure

The model is implemented on the basis of two information systems: the "accounting" system of the GIIS "Electronic Budget" and the system for monitoring and analyzing projects of the state automated system "Management."

Management of national projects, state programs, initiatives (management of project passports and reporting on the project) at the federal and regional levels is carried out in the GIIS "Electronic Budget." It is integrated with other federal and regional information systems. At the same time, online monitoring and analysis of projects (collection, processing and analytics on project parameters: financial support (cash desk), calculation of the level of achievement of projects, special opinion of the project office, surveys of the population, risk management, monitoring of capital construction facilities) is carried out in the state automated system "Management."

Automated control over the execution of documents is ensured by the launch of a new electronic document management system (EDMS) on the site of the Government Apparatus. This is a single space for the preparation and control of documents, including digital orders. The movement of all documents and orders in the system is completely transparent. This helps to speed up the process of their preparation, coordination and signing.

Digital orders from the EDMS are automatically loaded into the information system for monitoring key tasks of the Government (the so-called "Dashboard"). With its help, the Government promptly receives up-to-date information on the progress of budget execution, instructions, the preparation of bills and regulations, the implementation of all state projects and programs.

Principles

The control system is based on a number of principles. Among them:

Measurability. All projects and activities are divided into measurable indicators. The system displays the current status of the tasks and correlates it in parallel with the result to be achieved.

Frequency. For each event, checkpoints and the planned value of the result that must be achieved at the end of the year are set (for example, the result is "10 schools built in 2024"). In this case, if it is necessary to make a change in the value of the project result (up or down), then the project participants, using a special document - a change request - send their proposal for consideration to the project management, as well as to other FFIVs (Ministry of Finance Russia Ministry of Economic Development including Russia). A change to the project can only be made if it is really justified and agreed by all parties.). Thus, those responsible for performing the task can at the moment assess the effectiveness of their work.

Single screen. A single source of information has been created, which is looked at by all project participants at the federal and regional levels.

Digital data source. The system does not work with a paper report, but receives information directly from primary digital databases. Thus, the influence of the human factor on the objectivity of the data is minimized.

Risks. The system also determines the risks of non-fulfillment of the plan and automatically informs the executors about them. This allows you to take the necessary measures in advance so that activities at risk are executed on time and in full. In all projects, a mechanism called "auto-incident" is implemented, when the system automatically notifies the executors if the project implementation checkpoints were not completed on time.

Projects and tasks controlled by the model

As of the end of 2024, the digital management model is used in the implementation of:

• national development goals of Russia;
• national projects;
• government programs;
• federal projects;
• strategic initiatives;
• instructions of the President, Chairman of the Government, Deputy Prime Ministers;
• legislative activity;
• the federal budget;
• control and supervisory activities;
• licensing and permitting activities.

The use of a digital management model has significantly increased the quality of planning and the performing discipline of federal ministries and departments, in particular, has a positive effect on the speed of tasks, says Grigorenko.

To increase the motivation of project office managers, ratings on the quality of project management are formed. The assessment is carried out on a quarterly basis. The rating applies to the work of ministries, departments, departments of the Government Apparatus, governors and even deputy prime ministers. Simple and understandable metrics are evaluated: for example, the number of changes in tasks, the completeness and timeliness of reporting, the quality of planning, or the number of changes in the deterioration of project parameters. The results of the assessment are communicated to the governors and deputy prime ministers.

Feedback

A key element of the government model is the feedback the state receives directly from citizens and businesses. It is used to improve projects. In particular, due to feedback, the state sees whether existing decisions respond to current requests from the population and how they need to be finalized.

For example, a business can appeal against the actions of control bodies. The content of such a complaint will be studied in detail and discussed at the federal level. For the state, this is the setting of tasks from business, which needs to be improved in the field of control and supervision.

At the initiative of the Government Apparatus, a project was developed to monitor the opinion of the population on the quality of construction of socially significant facilities that appear and work within the framework of national projects. With the help of a QR code, citizens can also assess the quality of public services provided.

The QR code is also placed at facilities that are built and launched as part of the implementation of National Projects. These are schools, hospitals, cultural institutions. When scanning a QR code, the user gets to the page of the questionnaire of a specific object posted on the национальныепроекты.рф website, and leaves anonymous feedback about the quality of construction of the object or satisfaction with its work. Monitoring of requests is carried out on an ongoing basis.

Examples of interfaces

In AWS Construction, employees of departmental and regional design offices (about 1 thousand people) monitor capital construction facilities (ACS), which are being built and built in full or in part with the involvement of federal budget funds, including ACS, implemented within the framework of national projects.

The system makes it possible to trace the entire married construction cycle from the moment the land plot is provided and the DTD is prepared to the moment the ACS is put into operation.

The analyst also has access to all state contracts related to the construction of a specific facility, the amount of increased funding in the context of the federal, regional and municipal budgets. He can also observe the situation at the construction site online, since the system has access to video surveillance at the site.

In AWS Risks, employees of departmental and regional project offices (more than 1.7 thousand people) monitor and manage the risks of implementing state programs, national projects, initiatives of socio-economic development, national development goals of the Russian Federation.

The risk assessment of projects is carried out on the basis of a scenario approach, in which, depending on the combination of various factors associated with specific project parameters (control points, activities, indicators), a certain risk level is assigned. At the same time, information on risk factors comes directly from the information systems of state authorities, including those engaged in control and supervisory activities.

Project offices receive information on emerging risks and their priorities, as well as other data necessary for analyzing the situation and taking possible response measures.

The AWS also allows the project office of the Government of the Russian Federation to monitor the performance of regional and departmental project offices with risks, including the number of financing volumes and project parameters out of risk, timely measures taken, etc.

In AWS Analytics, project participants (about 5.5 thousand) monitor the implementation of national, federal and regional projects.

Monitoring is provided by collecting data on the implementation of project parameters from the primary source systems (GIS "Electronic Budget," EMIS) and their subsequent transfer to the AWS.

The analyst can see up-to-date data online on the progress of the projects, including the automatically calculated level of achievement, the volume of use of the increased funding (planned and executed), the achievement of project parameters (OZR, indicators, measures, checkpoints), as well as information on the opinion of citizens on the implementation of projects obtained by conducting surveys of the population (satisfaction and awareness).

Project participants receive up-to-date sections of any project. Based on this information, operational management decisions can be made.

Effects

Document flow

At the end of 2023, the Government Office completely completed the transition to a new electronic document management system (EDMS).

The system allowed:

• Work with electronic documents, for example, organize them by date, number and type of document, department and content, track the history of approval and executors.
• Speed up the processes of preparation, approval and signing of documents. The system shows the readiness status of each document.
• Ensure 100% automated control over the execution of documents and promptly monitor the execution of all orders.
• Switch mainly to paperless document management.

Digitalization made it possible to perform work faster, without reducing its quality, notes Dmitry Grigorenko.

The share of electronic document management in the Government Apparatus as of the end of 2024 is 90%. Paper documents have become 5 times less compared to 2020.

Up to 1 hours (in 2020 there were 10 days), the time for which a division of the Government Apparatus receives a document for consideration has been reduced. The deadline for registering an outgoing document has been reduced to 10 minutes (in 2020 the process took 4 hours).

In total, 1 hour (in 2020 it was 10 days) takes the procedure for sending bills to the State Duma. This was due to the transition to electronic approval and automated technological operations.

Since 2023, 100% of documents and orders are controlled in the electronic document management system. Previously, control was carried out in paper form or through separate decentralized departmental systems.

100% of reports to the President in 2023 were sent on time.

Budget

The efficiency of budget management has increased. The level of cash execution rose from 94.2% in 2019 to 98.2% in 2023. The unfulfilled balance decreased by 2 times compared to 2019 and amounted to 603.5 billion rubles.

In 2023, a government decree enshrined a new procedure for redistributing budget funds. In particular, in relation to national projects and capital expenditures, it was possible to redistribute funds unlimited (but within the total volume within the corresponding year).

When implementing state programs, such a redistribution should not exceed 10% of the total annual volume of the state program itself. This mechanism is necessary for flexible and prompt management of funds, quick response to changes in the situation in the economy, for example, prevention of risks of non-fulfillment of planned activities, financing of priority projects.

In particular, it is used in the construction or reconstruction of social and transport infrastructure facilities, including schools, hospitals or roads.

Simultaneously with the redistribution of budget funds, changes in the indicators and results of national projects and state programs in the relevant passports are necessarily recorded. Thus, funds aimed at a new goal are tied to a specific result.

Previously, there were no such strict requirements for the initiators of redistributions. At the same time, each stage of redistribution is recorded in the digital monitoring system.

The systematic approach made it possible to significantly optimize the procedure for redistributing budget funds. In particular, for the first time, the deadline for the formation of an application for such a transfer was regulated. It should not exceed 2 business days. To launch the procedure for redistributing budget funds, departments now need to fill out only 1 application. On its basis, all documents necessary for the implementation of redistribution are automatically generated. Previously, it was necessary to prepare up to 4 separate documents, each of which was drawn up and considered separately.

Such optimization made it possible to reduce the duration of the procedure for redistributing budget funds by more than 2 times - in some cases, the timing of changes was more than 50 days in 2019, now (taking into account the application of automatic approval of the application) the changes take place within 20 working days on average.

Legislative activity

The performing discipline in terms of the preparation of bills and regulations has significantly increased. First of all, this concerns a reduction in the number of violations and postponements of the preparation of bills.

At the end of 2023, 97% of draft federal laws were prepared and submitted to the Government on time. In 2019, only 70% of bills were submitted on time, in 2020 - 88%, in 2021 - 91%, and in 2022 - 92%.

The share of refunds of bills for revision to federal ministries and departments was reduced by 2 times - from 47% in 2019 to 20% in 2023.

At the end of 2023, the Government itself introduced 95% of draft laws without violating the deadlines. In 2019, 58% of bills were submitted on time, in 2020 - 60%, in 2021 - 87%, in 2022 - 84%.

Over 97% of by-laws in 2023 were adopted on time. At the end of 2022, this figure was 82%, and in 2021 - 53%.

National projects

The project office of the Government, together with departments and the Analytical Center, created an information system for effective management of the implementation of national projects and government programs. The system allows you to track at what level of achievement and cash execution the project is located, monitor the construction of facilities, calculate the risks of the implementation of specific measures and respond to them in a timely manner.

As a result of its application, the level of achievement of national projects increased from 89.4% in 2020 to 99.5% in 2023.

"Long" project goals are also evaluated. For example, as of November 2024, the achievement of projects to the plans of 2024 is about 85% with a plan of 83%.

To increase the speed of response to emerging risks, a digital Project Office Interaction System was launched. It greatly simplified communication between all project offices at all levels, including departmental and regional.

This system connects all project participants. Now it has more than 3 thousand users. About 1,000 new users over the past year.

Previously, the connection between the project offices was only on paper. And in order to report on issues and risks arising from the implementation of projects and programs, the regions had to prepare an official request. The reaction rate, as well as its quality, were not controlled.

Now the effectiveness of interaction in the system is assessed on a monthly basis, which encourages participants to respond to requests in a high quality and timely manner. The reaction time to the problem today is 7 days on average. Previously, this work took at least 30 days.

Control and Supervision

The entire life model of the improved control and supervisory system is completely digital, notes Dmitry Grigorenko. All data in the framework of this activity, starting from the inspection plan, are collected in a single information system.

In particular, it provides detailed information on control activities throughout the country. All information is systematized by types of supervision, by the controlling body, by territory, type of activity, reasons for entering the audit and other indicators. In this case, the controllers cannot correct the information in the system.

The federal information system of control and supervisory activities is integrated with the resources of the General Prosecutor's Office.

The controller cannot check without entering information about it into the system. It is necessary to indicate the reason for the control event. This reason must necessarily be linked to a specific risk within a risk-based approach.

Thus, all the activities of the controller are transparent, he realizes that any action on his part will be in full view of the Prosecutor General's Office.

Data on appeals is also uploaded to a single digital system. It contains information about the number of inspections, what decisions have been made, what violations are. Thus, due to such analytics, it is clear that it is necessary to improve in the field of control and supervision. For example, which rule is violated most often - perhaps it is outdated and needs to be improved.

The unified digital platform, according to Grigorenko, allows you to effectively collect feedback and use it to improve control and supervisory activities.