Personal potential of public service as innovative object of scientific research in Ukraine

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Personal potential of public service as innovative object of scientific research in Ukraine

Obushna N.,

Cand. Sc. (Econ.), Associate Professor, Department ofpublic administration and public service, National Academy for Public Administration under the President of Ukraine

Selivanov S.

Ph. D candidate, Department of public administration and public service, National Academy for Public Administration under the President of Ukraine, Head of Human Resources Department, State Migration Service of Ukraine

Abstract

The expediency of scientific researches of personnel potential of public service in the context of modernization of public administration in Ukraine is substantiated. Generalized modern scientific approaches to the interpretation of the essence of the concept of "personnel potential". The content of the concepts "frames", "potential", "public service" is investigated. Taking into account the specifics of the status of public service and the peculiarities of its activities, the distinctive features of the concept of "public service personnel" are singled out. The author's vision of the definition of "staffing potential of public service" is proposed. personnel potential public administration

Summary. Innovation of scientific researches of personnel potential of public service in the context of modernization of public administration in Ukraine is substantiated. Generalized modern scientific approaches to the interpretation of the essence of the concept of “personnel potential”. The author's vision of the definition of “staffing potential of public service” is proposed. The key problems of the theory and practice of forming the personnel potential of the public service are singled out. The main priorities of the personnel potential development of the public service in the context of system reforms in Ukraine are outlined.

Key words: public administration, public service, personnel potential, personnel potential of public service, personnel reserve, personnel management.

Formulation of the problem. The modernization of public administration in Ukraine brings to the agenda such new strategic goals for our country as the formation of effective mechanisms for developing human resources and developing innovative methods of personnel provision of the newly established domestic public service. And this is quite logical, since the development of the system of public administration and its personnel supply have a mutual influence on each other, thus defining the dialectics of the relations of Ukrainian society and state, the integrity, logic and consistency of sustainable development of the country as a whole.

The above-mentioned social tendencies highlight the need for a scientific understanding of the essence and content of human resources in the context of the creation of a public service in Ukraine, which is an innovative direction in the field of public administration and administration, and requires the use of new mechanisms of quantitative and qualitative analysis, terminology, changes in the legal regulation of institutions, their definition status, etc. In addition, from the standpoint of the methodology of scientific knowledge, the definition of the essence of concepts is the starting point of the study of any phenomenon or process. Work accordingly with concepts and categories is an important direction of scientific reflection in the system of public administration, which provides definiteness to the scientific and theoretical thinking and fixes the structure of fundamental knowledge in the field of formation and development of the personnel potential of the public service.

Analysis of recent research and publications. At the same time, it should be noted that the problems of personnel policy in the field of civil service at the level of the theory have always been given due attention from the side of the scientists. Thus, the problems of the civil service and its components were considered by such scholars as V. Averyanov, G. Atamanchuk, Y. Bytiak, I. Hrytsiak, M. Karp, O. Lazor, E. Marchuk, M. Ninyuk, V. Pogorilko, V. Shapoval, Y. Shemshuchenko, N. Yaniuk and oth.

A separate unit that formed the theoretical and methodological basis of our study is the need to highlight scientific developments on topical issues of the formation and implementation of human resources in the field of public administration and local self-government. In particular, the work of such prominent Ukrainian specialists as V. Bakumenko, M. Bilinskaya, O. Va- sil'eva, O. Obolensky, A. Rachinsky, S. Khajiradeva and others were influenced by the author's approach to the above-mentioned problems.

The work of all the above-mentioned scholars is an important contribution to the development of the theory and practice of public administration, personnel policy and public service. However, the critical review of scientific work on reforming the personnel policy in the field of public administration and modernization of the mechanisms and concepts for developing the staffing potential of public service in Ukraine shows that the issues identified in the scientific environment are new and therefore are still very fragmentary. At the same time, they are completely undeveloped and uncoordi- nateders conceptual apparatus and staffing potential of the public service remain. At the same time, in many existing scientific developments, the emphasis in the training of civil servants is not on increasing the human potential of adequate development of a democratic society in general and public service in particular, but the formation of certain knowledge and skills of their employees that are rapidly becoming obsolete today.

The purpose of the article. The purpose of the article is to summarize advanced scientific experience and terminological and conceptual discussions on the formation of the essence-conceptual filling of the term "staffing potential of public service" and clarification of its content in the context of modernizing public administration in Ukraine.

The problem of qualitative professional provision of management structures remains controversial. Due to subjective factors, human resources and personnel processes in the public administration system remain weakly predicted and ineffective. At the same time, the personnel reserve of the public service is considered, unfortunately, only as a "reservoir of personnel", which is no longer able to ensure the continuity of the implementation of the competencies of the posts in the current conditions, and, consequently, the effective and efficient work of the public authorities and management in general.

Such personnel activities in the context of constant structural changes in Ukraine, as a rule, leads to loss of professionalism, the outflow of the best personnel, to the demoralization of personnel, to the reduction of confidence in their social environment and, in the end, affects the quality and efficiency of the public service. These circumstances determine the objective necessity of philosophical comprehension, the formation and systematization of certain theoretical positions that can clarify the meaning and essence of the concept of "staffing potential of public service" and the mechanism of forming the personnel potential of public service as the most important strategic factor that determines its success at the stage of implementation in Ukraine the European standards of life and the exit of Ukraine into leading positions in the world "[1].

In connection with this we note that the general theoretical and methodological approaches to the research of human resources are already widely developed in political science, economics, psychology, sociology, jurisprudence, philosophy, etc. (Table 1). Noting such a wide range of research on human resource potential, the substantiation of the essence and content of the concept of "staffing potential of public service", we consider it appropriate to begin with the definition of the essence of the primary basic concepts that reflect the subject of our study. To these initial basic definitions we will refer to "frames", "potential" and "public service".

Table 1

* Source: Summarized and systematized by authors using [2-7]

Under the "personnel", as a rule, is understood the It should be noted that in the theory to this day dif-totality of skilled workers who have undergone previ- ferent concepts are used to interpret the term "personous vocational training and have special knowledge, la- nel": labor, labor resources, human resources, labor po-bor skills or experience in the chosen field of activity tential, human potential, personnel, etc. All this indi-[8]. cates the existence of different ways of conceptualizing

the concept of "frames". For example, O. Gladyshev,

V. Ivanov, V. Patrushev point out the four basic concepts of personnel [9, p. 256]:

as labor resources (instead of man, only its function is considered here. Labor is a living labor force measured by working time and salary, which is reflected in Taylorism and Marxism);

as a staff (a person is considered through a formal role - a position. This concept has been reflected in the theories of rational bureaucracy, management, organization theory, where personnel management is carried out through administrative mechanisms (principles, methods, powers, functions));

as a non-renewable resource (a person is considered as an element of a social organization in the unity of the three main components (labor function, social relations, the status of an employee));

as a condition for the existence of organizations (here, a person is the main subject of organization and a special object of management that can not be considered as a resource. According to this concept, the founders of which are Japanese scientists K. Matsushita and A. Morita, the strategy and the structure of the organization is built on the basis of human desires and abilities. In other countries, this concept is consistent with the concept of the comprehensive development of the individual).

In recent years, the concept of "human potential" as a "measure of incarnations in" has been actively used in scientific literature and public practice a person with natural abilities, talent, level of education, qualifications and their ability to generate income. " The World Bank in this concept also includes the health of the individual and the quality of his diet, and the UN - professional experience, physical condition, ability to survive, that is, that affects the productivity and self-sufficiency of a person.

Human potential is closely related to the categories of "human resources", "human capital", "intellectual potential", "human intellectual potential" (human capital of a creative person, spiritual and information potential, social capital), which are its constituents and determine the content . From the 60's of the twentieth century. became increasingly used the concept of "human factor".

This concept describes the diversity of qualities of the subject (employee), manifested in the process of his work and ensure the development of organization and society as a whole. Compared with the previous concepts, it is more modern.

In the meantime, in practice, the concept of "personnel" is increasingly beginning to be used. In connection with this, G. Atamanchuk states: "If we exist in a democratic state, in the center of which there is a person with a set of his rights and freedoms, then from the definition of" frames "(from fr. Sdre -" the frame, that is, people in the frame ") It is worth going back to the use of a more adequate term for the staff (from the Latin persona - 1) person, personality; 2) an important person) "[10, p. 234].

However, under the term "staff" is understood all administrative, managerial, technical, service, working, permanent and temporary staff of enterprises, institutions, organizations [11, p.65]. In view of this, we believe that in our study it is advisable to use the concept of "staffing" as they are always associated with skilled workers in a particular organization. In addition, the staffing potential of the public service is always linked to managerial work, the result of which is the realization of public functions.

In the future, consider in more detail the concept of "potential".

In encyclopaedic and vocabulary interpretations, "potential" (from Latin potentia - force) means "resources, resources, sources available and that can be mobilized, put into action, used to achieve a certain goal, plan implementation, solution to any task; the opportunities of individuals, society, and the state in a particular area "[12, p. 428]; "A set of all means, opportunities, productive forces, etc., that can be used in any field, field / stock of something; reserve / hidden features; a force for any activity that may manifest itself under certain conditions "[13, p. 902]. That is, the concept of "potential" most often relates to the categories "means", "stocks", "opportunities", "abilities". The study of the meaning of the concepts of "means" and "stocks" indicates that they are usually used in the economic sphere [14].

Summarizing the existing definitions, we can state that the concept of "potential" has a dual meaning: on the one hand, it characterizes the degree of opportunity / power in any sense, but on the other determines that this opportunity / power is concealed. In this regard, the potential can be characterized as existing opportunities (potencies), and hidden, which can develop for purposeful influence (or will remain hidden). That is, in our opinion, the concept of "potential" is more closely connected with the concepts of "ability" (feasibility, admissibility of something (usually under certain conditions), the presence of conditions favorable to something, circumstances that help for some reason, internal forces, resources, abilities [14] and "ability" (ability - the ability to perform some actions, natural talent, talent, ability to produce some kind of action [13]).

And, finally, in the future we describe the concept of "public service".

Attempts to study the issues of public service in modern Ukraine began relatively recently. Although in the 1950's, even in the 1950's, Y. Paneyko, a well- known Ukrainian lawyer, [15] defined the notion of "public service" based on the understanding of the state as a "corporation of public services", and therefore believed that the public service should change in accordance with the needs of "general interest".

Given the institutional aspect, the public service in the broadest sense can be carried out by employees of all organizations of the public sector: public authorities (ie not only executive but also legislative and judicial), state enterprises and institutions, local governments, communal enterprises and institutions.

Thus, the concept of public service includes the activities of employees of all institutions that perform public tasks, including activities of state or municipal doctors, teachers, etc. In a more general sense, in the institutional sense, the public service is viewed as the activity of public servants of public authorities and local self-government [16, p. 11].

In the modern Ukrainian legislation, the term "public service" has not been used until recently. But two other concepts were used and used: "public service" and "service in local self-government bodies". So, according to the norms of the current legislative acts:

public service is a public, professional, politically unbiased activity for the practical fulfillment of tasks and functions of the state, in particular concerning: analysis of state policy at the national, sectoral and regional levels and preparation of proposals regarding its formation, including the development and examination of draft programs, concepts, strategies, draft laws and other regulatory legal acts, draft international treaties; ensuring the implementation of state policy, implementation of national, sectoral and regional programs, implementation of laws and other regulatory legal acts; provision of affordable and high-quality administrative services; implementation of state supervision and control over observance of the legislation; management of state financial resources, property and control over their use; government personnel management; realization of other powers of the state body, determined by the legislation [17, art. 1];

service in local self-government bodies is a professional, on a permanent basis, the activities of Ukrainian citizens who hold positions in local self-government bodies aimed at implementing the right of local self-government to the territorial community and certain powers of the executive bodies provided by law [18, art. . 1]. By the way, it is advisable to pay attention to such a characteristic of the service in the bodies of local self-government, as an activity "on an ongoing basis". Very often in foreign countries, according to this criterion, the category of "officials" [16, p. 14]

For the first time, the concept of "public service" in Ukraine at the legislative level is used in the Code of Administrative Legal Proceedings of Ukraine (CAAS), which states that public service is an activity on state political positions, professional activity of judges, prosecutors, military service, alternative (non-military) diplomatic service, other civil service, service in the authorities of the Autonomous Republic of Crimea, local self-government bodies [19, art. 3 (part 1, paragraph 15)].

However, scholars [20] emphasize that the approach used in the Code to interpret the concept of "public service" does not include the essential characteristics and characteristics of public activity, it only lists the types of this activity, which is a violation of the rules of legal technique .

51

Taking this into account, it has been repeatedly emphasized at the doctrinal level that in this way the legislator consolidated various types of official activity in the content - a political one, which depends on the positioning of political forces in the supreme bodies of state power, and a professional activity that ensures the full realization of the tasks of the state as a result of the activities of the first [21]. Therefore, we believe that the definition of the concept of "public service" provided by the CAU is excessively wide for the legal regulation of the public service institute.

In this context, we agree with the opinion of the Center's Center for Political and Legal Reforms (V.P.Tymoshchuk and A. M. Shkolik) [16, pp. 14, 16], which propose to separate from the public service, at a minimum, the activity of politicians in public (state and municipal) political positions and judges. After all, by their nature these posts are not official. And today, such a distinction between politics and administration for developed democratic states is an axiom.

In this regard, we note that, from the experience of leading democratic countries in the world, we do not know any example of the use of the term "official" for, for example, a member of a government or a member of parliament. Perhaps this is due to the fact that the politician forms his own position and task independently. Instead, an official performs (introduces into life) a "stranger" (not his own, but a politician, legislator) position, vision. Similar approaches should be applied in local self-government bodies, as local deputies and local leaders are more likely to be political positions and should also be removed from the scope of public service law.

Consequently, we believe that the public service by its nature is a complex institution, which combines service in the bodies of state power and in local selfgovernment bodies. The use of the design of "public service" is appropriate in view of the full and adequate reflection of the essence of the phenomenon under consideration (Fig. 1).

In July 2014, the Government of Ukraine, at its meeting in the framework of the formation of anti-corruption activities, identified one of the priorities of the "Integrity Public Service" model [22]. The model of the honest public service, chosen for Ukraine, is oriented, first of all, to the change of motivational and value factors and to the strengthening of public control functions, which is conditioned by the existing state of social affairs in Ukraine, to a greater extent, the political situation.

Fig. 1. Logical construction of the concept of "public service"

Taking into account the specifics of the status of the public service and the peculiarities of its activities, we consider it expedient to distinguish the following characteristic features of the concept of "public service personnel":

permanent, regular staff (skeleton);

qualified workers with appropriate education and professional experience, which are aimed at a career;

- fully capable and physically fit persons;

spiritually and culturally enriched personality;

directly occupying public positions in the public authority and performing the main functions in it;

the principles of organizing the activities of such workers are understandable to society and ensure its openness, transparency and accountability to society;

service orientation of the activities of such persons - satisfaction of public interests, defined by the state and protected by the right of interests of the social community, satisfaction of which is a condition and guarantee of its existence and development;

the emergence of legal relations on the basis of the actual composition, the mandatory element of which, in accordance with the norms of the current law on civil service and service in local self-government bodies, is an act of appointment to a post or result of elections, etc.

Thus, based on certain typological characteristics inherent in the overall staffing potential of the public service of Ukraine as a whole, and not in its separate structural units, from the point of view of public management, the concept of "staffing potential of public service" is proposed to be defined as a complex of opportunities / abilities of staff of the staff of the public services that enable them, under sufficient conditions, to directly perform the basic functions of a public authority, in order to meet public interests as defined by the state and protected by the right of the interests of the social community, the satisfaction of which is a condition and a guarantee of its existence and development. That is, in essence, we turn to the subjective factor, but not in its individual-personality manifestation, but as if we take it in a holistic-generalized, formed into a single set of qualities / possibilities. In this case, the individual-personal potential of employees is integrated into the collective management community, which

characterized by integrity, systemic properties. Such an understanding leads to the continued productive study of this phenomenon and the mechanism of its formation on the basis of system and integrated approaches.

Conclusions and perspectives of further research. Consequently, ensuring public administration by highly skilled professionals is a complex, continuous process that enhances the effectiveness of the entire system of public service. Accordingly, the formation of human resources is an important function of the effective work of any public authority.

At the same time, the main goal of forming the personnel potential of the public service is to provide the public authorities with the necessary labor resources capable of solving the problem and achieving current and strategic objectives. In addition, the main characteristic of the staffing potential of the public service should be its institutional capacity, that is, compliance with the standards of the public service institute.

Thus, the personnel potential of the public service in the conditions of modernization of public administration and implementation of social transformations should be considered as an "innovative personnel incubator", which should not only accumulate personnel, but also prepare them for work in fundamentally new conditions.

It is on the basis of effective formation and innovative development of the personnel potential of public service in Ukraine, as well as in the presence of political will on the part of the leadership of the state, it is possible without pain and at the lowest risk to carry out a planned replacement of the old management elite of the state by a new generation of public servants capable of forming and developing a system of democratic governance in a country with widespread use of information and communication technologies of e-democ- racy.

Accordingly, the prospects for further research in this direction are the development of innovative mechanisms for the formation, implementation and consistent development of the new human resources potential of public service at the present stage of state building in Ukraine.

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