Coordination of state informatization in Russia

2021: The Ministry of Digital Affairs has planned to update the regulation on the FGIS CI

On the federal portal of drafts of regulations regulation.gov.ru the draft resolution of the Government of the Russian Federation on introduction of amendments to the Russian Federation Government decree of November 14, 2015 No. 1235 "About a Federal State Information System of Coordination of Informatization" developed Mintsifra of Russia is published (further - software of the Russian Federation 1235). More details here.

2020

New approaches to the coordination of state informatization, the emergence of departmental digital transformation programs (HTC)

October 8, 2020 fell to be 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 - 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" almost ended. More details here.

Examination of IT-activities of federal departments is canceled - order of Deputy Prime Minister Chernyshenko

By April 1, 2020, the Ministry of Communications and the Ministry of Finance should prepare proposals to improve budget expenditures for informatization. In particular, the examination of informatization measures carried out by the Center for Expertise and Coordination of Informatization (CECI) subordinate to the Ministry of Communications should be canceled in accordance with government decree No. 365.

Deputy Prime Minister Dmitry Chernyshenko, who oversees digitalization, gave an order about this, thus reacting to the order he himself received from Prime Minister Mikhail Mishustin. A screenshot of the order was shared by the telegram channel "Coordination of Profanation," covering issues of state informatization. The Ministry of Communications TAdviser confirmed that such an order exists.

Dmitry Chernyshenko instructed to cancel the examination of informatization measures

What a bad examination

The examination of informatization measures, without which funding is not allocated, is a sick issue for federal departments.

First of all, it's a long time. Primary examination should take no more than 20 days, repeated - no more than 10. In reality, this period can be 1.5-2 times longer, especially during the period of peak loads, said TAdviser analyst Albert Bertyakov.

Secondly, there are at least no clear and stable criteria for evaluating activities in the public domain. It is not uncommon for an event that received a negative expert opinion, after eliminating the shortcomings and re-submitting for examination, to receive new comments that were not there for the first time, Bertyakov adds.

In addition, according to the expert, the problems consist in the lack of a full-fledged and logical regulatory "binding" around the processes of coordination of informatization (CI), the CI information system is imprisoned under bureaucratic processes of expertise, and not under real coordination. Finally, the coordination system portal is useless - both in terms of "open data" published there and in terms of the so-called "video training."

What will happen instead of expertise

Director of the Department for the Development of Architecture and Coordination of Informatization Vasily Audiovkin told TAdviser that the draft changes to 365 government decree had been prepared by the Ministry of Communications and Communications for a long time, but its adoption was delayed due to disagreements that arose during coordination with interested authorities.

The draft resolution, he said, proposed introducing a set of measures aimed at simplifying the current system of coordination of informatization, including the abolition of informatization plans, the transition to one stage of planning, and the exclusion of a re-evaluation of annual events.

In 2020, as part of the formation of digital transformation mechanisms, this issue was again put forward for discussion, now with CDTO - the heads of interested executive bodies responsible for digital transformation, "continues Heinkin. - They were further reviewed and discussed by the earlier version of the draft resolution prepared by the Ministry. During the discussion, it was decided on the need to integrate a simplified mechanism for coordinating informatization and new approaches to the formation of departmental digital transformation programs for the medium term

The new draft resolution, according to the representative of the Ministry of Communications, will be based on the following principles:

• formation of informatization measures by the authorities in order to take into account the costs of them, but without conducting an assessment of such measures by the Ministry;
• inclusion of informatization measures in departmental digital transformation programs to ensure established indicators of digital transformation;
• establishing personal responsibility of heads of state bodies responsible for digital transformation for achieving the values ​ ​ of key indicators of efficiency and effectiveness determined by departmental digital transformation programs;
• implementation of the Ministry of Communications and Communication monitoring and monitoring the achievement by state bodies of key indicators and indicators of departmental digital transformation programs.

Thus, "says Vasily Audiovkin," a transition will be made from prohibiting control mechanisms to a model of personal responsibility for achieving the declared indicators of digital transformation

2019

How the openness of the state IT turned into closure. Chronicles of degradation

TAdviser analyzed the situation with the openness of information about state informatization in Russia. More details here.

2018

Analysis of the state of the National Fund of Algorithms and Programs

The need to create a state fund of programs was first announced in 2006, in the materials of the FTP "Electronic Russia"; coordinated the implementation of the federal program in those years by the Ministry of Information Technology and Communications, which was led by Leonid Reiman. However, then it did not come to practical implementation. In 2010, the renamed Ministry of Communications and Mass Communications under the leadership of Igor Shchegolev included the event to create a national fund of algorithms and programs (NFAP) in the new state program "Information Society." But the project remained only a line in the state program - it was not destined to appear in the "iron" under Minister Shchegolev to the national software repository. The NFAP was created only in 2014, on the third attempt and under the next minister - Nikolai Nikiforov. It would seem that for several years the fund was to become one of the actively working tools of state informatization. But even in May 2018, the NFAP is in a depressing state and is practically not used. Why did this happen? Do the repository expect a change for the better in Russia's newly emerging digital economy? TAdviser analyzed the history of the project and made conclusions about its possible prospects.

2016

Ministry of Communications creates a "super-register" of state informatization

On September 11, 2016, the order of the Ministry of Communications entered into force, establishing for state bodies the rules for the formation and modification of registry records on state information systems. In particular, on their creation, development, commissioning, operation and decommissioning, as well as further storage of information contained in their databases. The requirements for the procedure of these processes were approved by the government decree of July 6, 2015 N 676.

The order of the Ministry of Communications was issued in August 2016, registered with the Ministry of Justice on September 1, 2016. It refers to entries in the register, which will be kept within the framework of the Federal State Institute for the Coordination of Informatization. The regulation of this FSIS was approved by Dmitry Medvedev in November 2015. This system should ensure the formation of a single information space to support management decisions in the field of public administration of ICT created or used by government agencies at various levels - from federal to municipal (see the subsection below on the creation and tasks of the system).

The September order of the Ministry of Communications establishes an extensive list of information about which state agencies will have to enter information in the register (read more in a separate article).

The Ministry of Communications will have the opportunity to block IT expenses of federal departments

As it became known to TAdviser, one of the results of the meeting of the government commission on the use of information technologies to improve the quality of life and business conditions on April 5, 2016 was the order of Prime Minister Dmitry Medvedev to the Ministry of Communications to work out a mechanism for blocking funds of federal departments for informatization.

Such a mechanism can be used in relation to departments that carry out IT purchases without coordinating plans with the Ministry of Communications and Communications, a source familiar with the results of the meeting of the right commission told TAdviser.

The blocking mechanism, he said, should be developed by the Ministry of Communications by the fall of 2016. The ministry itself at the time of publication of the material declined to comment.

Problems with the coordination of IT plans were repeatedly stated in the Accounts Chamber and in the Ministry of Communications (see below).

Departments are trying to comply with the procedures for coordinating plans, but often this process is delayed, since IT specialists are far from always involved in the preparation of plans by departments, says one of TAdviser's interlocutors. As a result, purchases are announced before the coordination of plans and levers to combat this practice, the Ministry of Communications does not exist.

In addition to the blocking mechanism, according to a TAdviser source, it is planned to involve the Accounts Chamber to establish the coordination process. Its role will be spelled out in the updated resolution on the coordination of informatization, which is being prepared by the Ministry of Communications.

The Accounts Chamber announced new claims to the process of coordinating informatization

On February 2, 2016, the Accounts Chamber of the Russian Federation announced the results of the verification of the implementation of Government Decree No. 365 of May 24, 2010 "On the coordination of measures for the use of information and communication technologies in the activities of state bodies" in 2013-2014 and over the past period of 2015.

The audit was carried out at the Ministry of Communications and the Federal State Unitary Enterprise "All-Russian Research Institute of Computer Technology and Informatization" subordinate to the Ministry (in 2015 it was renamed the Center for Expertise and Coordination of Informatization (CECI), as well as at the Ministry of Finance and the Federal Treasury.

In 2010, the Government of the Russian Federation adopted Resolution No. 365. The document was intended to improve the planning, creation and use of information and communication technologies in the activities of government bodies. The Ministry of Communications and Communications of Russia became the authorized federal executive body to conduct an expert assessment of documents on informatization. The Government of Russia set the deadlines for the preparation and approval by the Ministry of Communications of all the necessary documents for the start of the implementation of the mechanism for coordinating the costs of informatization, which have repeatedly been shifted. Despite this, the necessary documents were developed by the Ministry of Communications of Russia in violation of the deadlines established by the Government of the Russian Federation and approved only in 2013. Thus, within three years from the approval of Resolution No. 365, coordination of measures for the informatization of state bodies was not ensured at the proper level, the Accounts Chamber said.

To coordinate the costs of informatization, the Ministry of Communications created a department for the examination of informatization projects consisting of four staff units, the audit report says. Meanwhile, since 2013, the Ministry of Communications has concluded agreements on conducting an expert assessment of documents on informatization. First, a corresponding contract was concluded with Rostelecom, which, under a subcontract, attracted FSUE VNIIPVTI. In 2015, the Ministry signed the contract directly with FSUE. In addition, according to the deputy chairman of the Accounts Chamber, "the fact that the company attracted external expert consultants free of charge is of interest." At the same time, most of the "external expert consultants" occupy senior positions in large IT companies.

To coordinate informatization, the Ministry of Communications and Communications created three information systems, the total cost of which for the period from 2013 to 2014 years amounted to 300 million rubles. The audit of the Accounts Chamber showed that there is no control over the placement of information in them. State bodies, including the Ministry of Communications, were allowed to post incomplete or irrelevant information. For example, the approved informatization plan of the Ministry of Communications for 2014 does not correspond to the posted plan in the automated information system "Department and Regional Informatization Management" (AIS UViRI), they say in the Accounts Chamber.

As a result, information systems created by the Ministry of Communications of Russia do not allow you to get objective information about the progress of the implementation of informatization measures by state bodies and evaluate their effectiveness, "explained Vera Chistova, deputy chairman of the Accounts Chamber.

On November 14, 2015, the Government decided to create a new information coordination system based on three systems already created. At the same time, the costs of its implementation are estimated at 227.3 million rubles or 76% of the costs incurred to create three systems, the auditors added.

The preparation of draft informatization plans is carried out by state bodies using AIS UViRI. As of November 12, 2015, 91 informatization plans for 2014 were posted at UViRI AIS, of which 69 (75.8%) and 91 informatization plans for 2015, of which 45 (49.5%) were agreed.

The audit showed that state authorities, including the Ministry of Communications itself, do not comply with the deadlines set by the schedules for the preparation and approval of informatization plans. So, informatization plans for 2014 were approved in violation of the established deadline: the Ministry of Communications - for 84 days, the Federal Treasury - for 301 days. The plan of the Ministry of Finance was approved after the end of the financial year. Also, informatization plans for 2015: the Ministry of Communications - for 14 days, the Ministry of Finance - for 168 days, the Federal Treasury - for 230 days.

In addition, the audit revealed cases of violation by the Ministry of Communications of the deadlines for the preparation of conclusions on informatization plans. Reports on the implementation of the informatization plan for 2014 were submitted only by 31 state authorities (37%).

In 2014, the Ministry of Communications did not evaluate the effectiveness and effectiveness of measures to informatize state authorities. The ministry accumulates reports on the implementation of informatization plans without checking the reliability and analysis of the submitted data, "said Vera Chistova

The audit found that in some cases, due to the failure of state bodies to submit expert opinions to the Ministry of Finance of the Ministry of Communications, when forming the federal budget, the distribution of budget allocations for the implementation of informatization measures is carried out without taking into account them. At the same time, the coordination of informatization costs with the Ministry of Communications and Communications in the information system of the Ministry of Finance "Electronic Budget" is not provided.

The audit established that, in violation of the provisions of Decree No. 365, the costs of informatization of state bodies are carried out in the absence of approved informatization plans. So, in 2014, the Ministry of Finance implemented informatization measures before approving the plan in the framework of 32 contracts worth 1.6 billion rubles concluded in 2014. Also, before the approval of the informatization plan for 2015, the Ministry of Finance concluded 12 state contracts in the amount of 303.7 million rubles.

The same violations were revealed during an audit in the Federal Treasury. Prior to the approval of the informatization plan in 2014, the implementation of informatization measures was carried out under 34 contracts in the amount of 8.9 billion rubles concluded in 2014. In 2015 - 24 contracts worth 2.3 billion rubles.

Often, when implementing expenses, changes to the informatization plan are made by state authorities after the fact, they say in the Accounts Chamber.

In the absence of responsibility for non-compliance with the provisions of Resolution No. 365, the main managers spend federal budget funds without an agreed informatization plan. In fact, we are talking about unreasonable federal budget expenditures, as well as in the case of concluding state contracts before approving the informatization plan, "said Vera Chistova

The inspection also revealed inconsistencies of the purchased goods with the approved plans of informatization, shortcomings in the procurement procedures carried out by state bodies, as well as signs of violation of competition in the procurement in the field of information technology. The audit of the Accounts Chamber showed that the information coordination system provided for by Decree No. 365 does not work at the proper level. It can be stated that the goals set by the Government Decree have not been achieved, "summed up the Deputy Chairman of the Accounts Chamber.

The board of the Accounts Chamber decided to send an information letter to the Government and the Federal Antimonopoly Service, submissions to the Minister of Communications, the Minister of Finance and the head of the Federal Treasury. Reports were sent to the Federation Council and the State Duma.

2015

Resolution on the Federal IT-System for Coordination of Informatization

On November 14, 2015, Prime Minister Dmitry Medvedev signed Government Decree No. 1235 on the federal state information system for coordinating informatization (coordination system).

The coordination system ensures the formation of a single information space to support the adoption of managerial decisions in the field of state management of information and communication technologies created or used by federal executive authorities, executive authorities of the constituent entities of the Russian Federation, other state bodies, management bodies of state extrabudgetary funds, local self-government bodies, state and municipal unitary enterprises, state and municipal institutions, the document says.

Read more in a separate article.

Officials of 19 ministries and departments will be punished for IT purchases without coordination with the Ministry of Communications

As it became known to TAdviser, at the end of October 2015, Prime Minister Dmitry Medvedev instructed to prepare a list of officials of a number of federal ministries and departments that are responsible for disrupting the process of coordinating informatization plans, and which allowed financing of informatization activities without coordination with the Ministry of Communications.

About the signing of such an order TAdviser told two sources in federal departments. Disciplinary measures are planned against officials, say TAdviser interlocutors who got acquainted with the order.

Nikolai Nikiforov attracted Dmitry Medvedev to influence departments that do not agree on informatization plans

Employees of 19 ministries and departments listed in the order may be punished:

• Ministry of Culture,
• Ministry of Education and Science,
• Minkavkaza,
• Ministry of Natural Resources,
• Ministry of Agriculture,
• Ministry of Sports,
• Ministry of Labour and Social Protection,
• Ministry of Health,
• Ministry of Economic Development,
• Ministry of Transport,
• Ministry of Industry and Trade,
• Rospotrebnadzor,
• Rosstandart,
• Rosnedra,
• Rosaviatsia,
• Roszdravnadzor,
• Federal Registration Service,
• Rostrud,
• Roszheldor.

The list of officials should be prepared by the departments themselves, it should be transferred to the Government in November 2015.

In the same document, Medvedev instructed the FOMS to agree on an informatization plan with the Ministry of Communications within two weeks.

According to one of the interlocutors of TAdviser, the Ministry of Communications has repeatedly reminded ministries and departments of the need to coordinate informatization plans within the framework of meetings of the information technology subcommission (coordinate the plans of the department according to 365 Government resolution - see details below).

Another interlocutor says that the list of departments conducting IT purchases without agreeing on plans, the Minister of Communications Nikolai Nikiforov prepared and handed over to the supervising Deputy Prime Minister Arkady Dvorkovich, and he, in turn, escalated the problem to the Prime Minister.

Such a massive punishment for disagreeing with informatization plans will be applied for the first time, say TAdviser interlocutors.

The process of forming, coordinating and approving informatization plans is quite time-consuming, "says TAdviser Assistant Minister of Economic Development Elena Lashkina. - This proves that in the fifth year of the 365 ordinance, only slightly more than half of FOIVs had approved plans by the end of the planned period (for 2014). Coordination mechanism seems to require improvement

A TAdviser source who previously worked in one of the departments that was on the "firing list" says that the problem of coordination may be associated with the contractor of the Ministry of Communications for the examination of informatization plans - the Center for Expertise and Coordination of Informatization (formerly VNIIPVTI).

The coordination of plans of one department in CECI, he said, may take several months. At the same time, the Government requires departments to fulfill the budget and punishes for its failure to fulfill.

Functions of coordination of informatization were taken from Rostelecom

Since February 2015, the Center for Expertise and Coordination of Informatization has been engaged in expert evaluation of informatization plans of federal state bodies under a contract with the Ministry of Communications and Communications.

The center won the tender with an application for the amount of 18.9 million rubles (at an initial price of 19 million). The contract was concluded until June 30, 2015. For July-December 2015, a new contract for 21 million rubles was signed between the Ministry of Communications and CECI.

The purpose of the work is to increase the efficiency of planning the use of ICT in the activities of government agencies and spending funds on informatization. Efficiency should be achieved by implementing the principles of project management, ensuring compatibility of information systems and IT infrastructure used in different departments, the tender documents say.

CECI analyzes the extent to which IT measures planned by state bodies correspond to the goals defined in the programs of social and economic development of Russia, sectoral doctrines, concepts and development strategies, as well as whether they correspond to the priority areas of IT development that the government commission determines.

In addition, the center assesses the validity of attracting budget funds for the implementation of informatization measures, as well as conducts an examination of bills and other regulatory legal acts affecting IT issues.

In total, as of 2015, there are 86 federal departments in Russia (excluding three extrabudgetary funds), their IT budget exceeds 86 billion rubles.

The February contract of the Ministry of Communications with CECI suggests that the center should analyze 3200 planned informatization events (the examination of one event is estimated at 3.7 thousand rubles), 22 draft laws, presidential, government or departmental acts (29.8 thousand apiece), 13 projects of state programs, strategies and concepts (33.6 thousand each), as well as 105 other documents (27.6 thousand each).

In addition, CECI should provide advice to federal authorities on the preparation of informatization plans. It was planned that they would be more than 4,000 during the period of the February contract - mainly by telephone (355 per consultation), but also by e-mail (at 679) and in person (at 2400).

2014: The Accounts Chamber criticized the process of coordination of informatization

In 2011, under a contract with the Ministry of Communications, VNIIPVTI was engaged in assessing the plans for the informatization of state bodies (in 2015 it was renamed the Center for Expertise and Coordination of Informatization).

In 2012-2014, Rostelecom was engaged in coordination - under the relevant contracts, the operator received about 300 million rubles from the Ministry of Communications (in addition to examining the plans, the operator developed an information coordination system and carried out research).

In 2014, the Chamber of Accounts criticized Rostelecom's involvement in assessing the plans for informatization of state bodies. The operator is a commercial organization and a participant in the information technology market, in connection with which the expertise of informatization projects prepared by him could be biased, auditors said.

Coordination of informatization measures, according to the Accounts Chamber, "does not allow to fully ensure the efficiency of spending funds" allocated to IT. The allocations provided to departments in the federal budget for 2015-2017 for 242 types of expenses (purchases in the field of ICT) are "overwhelmingly formed without an expert assessment of the Ministry of Communications," the report of the Accounts Chamber said.

As of the end of September 2014, the Ministry of Communications and Mass Media had agreed on the planned costs to only 11 departments, while there were about 90 of them. Draft informatization plans for 2015-2017 were agreed by 17 departments. And although Government Decree No. 365 prescribes that only informatization measures agreed with the Ministry of Communications be financed from the budget, in fact the information system of the Ministry of Finance does not provide for the coordination of budget allocations with the Ministry of Communications for the type of expenses 242, the Accounts Chamber found out.

2010: Government Decree on Coordination of Informatization

Decree of the Government of the Russian Federation N 365 "On the coordination of measures for the use of information and communication technologies in the activities of state bodies" was adopted on May 24, 2010^[1].

According to the document, the Ministry of Communications and Mass Communications was determined by the authorized federal executive body to conduct an expert assessment of documents used in the planning, creation and use of information and communication technologies in the activities of state bodies.

The Ministry of Finance and the Ministry of Health (in terms of state extra-budgetary funds) were instructed to take into account the conclusions of the expert assessment of documents conducted by the Ministry of Communications and Communications in terms of budget allocations allocated for ICT use activities.

Read also

• IT in the federal departments of Russia
• IT State Expenditure Monitoring

Notes