Recommendations for the organization of work on the transfer of services to electronic form for the subjects of the Russian Federation. E-government: converting services to electronic form Regional plan for converting services to electronic form
The Moscow City Public Services Committee is the methodologist and the main organizer of the task of converting public services into electronic form and providing public services in electronic form in general. Moscow annually approves a Work Plan for the transfer of services and services into electronic form.
The Portal of state and municipal services (functions) of the city of Moscow, created in 2011 (hereinafter - the Portal of public services), simultaneously solves several problems:
Reducing the number of visits to the executive authorities (no need to visit the authority, which leads to a reduction in the time spent by the applicant);
Increasing the availability of public services - the ability to receive services regardless of location;
Increasing the transparency of the procedure for obtaining public services - the ability to obtain information on the progress of the provision of public services online;
Reducing corruption risks.
The portal is a platform for interaction between executive authorities and the population, as well as a source of information about public services and a convenient mechanism for obtaining them in electronic form.
In just a few years of our work, together with the executive authorities of the city of Moscow, on the Portal of Public Services for legal entities and individuals, the opportunity to receive 265 public services and services in electronic form has been organized.
As of today, the number of services and services since the launch of the Portal has increased more than 30 times!
Electronic services are becoming more and more popular. As of January 2018, more than 7.8 million personal accounts of individuals and more than 28.5 thousand offices of legal entities.
The number of requests for services and services on the Portal since its launch amounted to more than 849 million requests, of which in 2018 - about 217 million requests.
Key trend 2017-2018- transfer of services to an exclusively electronic form with the rejection of paper forms of interaction with applicants.
As a pilot area for individuals the field of education is selected. Over the past 3 years, enrollment in kindergartens, enrollment in first grade, electronic diary service and even electronic replenishment of the balance for meals in school canteens have been consistently transferred exclusively to electronic form. For graduates, the opportunity to receive exam results in electronic form was implemented.
Since September 2015, we have transferred to an exclusively electronic format the registration of children in circles and sections of additional education. Today, thanks to this solution, any parent can find information about all classes in all city institutions and choose for themselves interesting and suitable according to various criteria: location, age, type of occupation, payment for. In 2017 alone, we received over 1 million applications, which made this service one of the most popular.
Since September 2015, you can apply electronically for a student's social card. This service turned out to be very popular - about half of Muscovites immediately filed an application in electronic form. Since December last year, a student's social card can be issued only in electronic form through the portal. On March 30, 2016, students also had the opportunity to issue a social card in electronic form. At the end of 2017, the portal launched the service "Attaching a child to a children's clinic", in 2018 - "Making a compulsory medical insurance policy", "Attaching a dental clinic", "Enrolling children in a group of short-term stays in a kindergarten", "Enrolling in an extended of the day ".
Electronic services in the field of education (number of requests for the entire period of the Portal's operation):
- - more than 455 million hits;
have the right to receive state and municipal services in electronic form, unless otherwise prohibited by law.
In the context of this law, electronic services are understood as such an organization of interaction between the authorities and the population, in which the submission of an application and the necessary documents for obtaining a service is carried out electronically through specialized portals of public services: Unified portal of state and municipal services (functions) (hereinafter - EPGU) , regional portals of state and municipal services (functions). Based on the results of the decision, the applicant may be provided with the result in the form of an electronic document.
By order of the Government of the Russian Federation of December 17, No. 1993-r, a list of priority services for transferring to electronic form was fixed, and five stages of transferring services to electronic form were identified:
The first stage is to ensure that applicants are informed about the procedure for providing services;
The second stage is the ability to receive electronic forms of documents and applications;
The third stage is the submission of an application for the provision of a service in electronic form, automatically sent to the authorities;
The fourth stage - the applicant gets the opportunity to track the status of the service;
The fifth stage - the result of the service is provided in electronic form.
There are some difficulties with the implementation of the services of the fifth stage. They consist in the fact that for the provision of almost all state and municipal services from the applicant, except for the application itself, a certain set of documents is required. Interdepartmental interaction allows to reduce the number of required documents, but some of them still have to be provided by citizens personally, these are: personal storage documents and documents provided by non-governmental organizations.
Thus, it is the complexity of transferring personal storage documents into electronic form that impedes the provision of the entire service cycle in electronic form.
Now the applicant through the portal www.gosuslugi.ru can attach scanned copies of personal storage documents and try to get the service without being present in the authorities. But officials of the authorities consider such documents to be illegitimate and in most cases are not ready to provide services based on them. Thus, the personal presence of the applicant when providing personal storage documents remains a prerequisite for receiving the service.
Statistics show that:
In 42% of cases of the provision of federal state services, the provision of personal storage documents is required. A passport of a citizen of the Russian Federation is required for most services;
In 280 services, documents are required that are included in the list of documents of "personal storage" (part 6 of article 7 210-FZ), not counting the passport of a citizen of the Russian Federation, which is necessary for the provision of the absolute majority of services;
85% of municipal services involve the submission of personal documents;
72% of state "regional" services require the submission of personal documents;
The increase in the share of services with personal injury documents at the municipal level in comparison with regional services is explained by the fact that municipal services include a large block of social services (including those transferred from the regional level), a prerequisite for the provision of which is the applicant's identity document with the relevant document.
To solve this problem, the idea of an archive of personal storage documents (hereinafter referred to as the Archive) will be useful. The essence of the idea is that when a citizen personally contacts a government body or a multifunctional center for the provision of services, the documents of personal storage presented to them are scanned, certified by the operator's electronic signature and stored in the Archive. After this procedure, these documents can be used when submitting an application through the portals of state and municipal services already in electronic form.
If the applicant applies through the portal to another body, then the other body may well use the channels of interdepartmental interaction to request these documents.
In addition, for the implementation of measures to transfer services into electronic form, it was necessary to exclude the requirement of mandatory "paper" document flow from the legislation, for which in 2010-2011. more than 100 federal laws have been amended, and many by-laws have been adopted. The elimination of technological barriers was solved by the implementation of the Ministry of Telecom and Mass Communications of the Russian Federation of works on the formation of the infrastructure of data exchange between departments and the organization of coordinated work of authorities of all levels on the transition to electronic services.
The Ministry of Economic Development of Russia developed and put into trial operation a prototype of the information system "Consolidated Register of Services" (hereinafter referred to as the RSU Standard Solution), on the basis of which the Ministry of Telecom and Mass Communications of the Russian Federation implemented the industrial solution "Federal Register of Services", which became the basis for the work of EPGU - www.gosuslugi .ru
On the part of the constituent entities of the Russian Federation, work was carried out to form a list of services provided by state authorities and local authorities, and to enter information about services, respectively, in the registers of public services and registers of municipal services.
However, here too there are difficulties, the composition and structure of the information contained in the software package of the standard solution for the register of state and municipal services does not allow forming a high-quality knowledge base for the implementation of expert support on the procedure and conditions for the provision of state and municipal services. An alternative to the RSU Standard Solution is required - a modern system for designing regulations, which would be integrated with the RSU Standard Solution.
The Ministry of Economic Development adheres to the position that not all services should be fully transferred to electronic form, the principle of reasonable expediency is needed, said Pavel Malkov, Deputy Director of the Department of State Regulation in Economy, in his report on ways to improve the interaction of the state with citizens and business.
“For all federal and for priority regional services, a matrix should be developed at once - what procedures are transferred to electronic form, and in what time frame. Non-priority regional services are the region's area of responsibility, "Malkov said at the All-Russian Forum" Information Society - 2014: Achievements and Prospects ", which took place on October 9-10 in Chelyabinsk.
According to him, each subject must decide for himself which procedures to translate into electronic form, and which ones are not at all expedient to translate. At the same time, absolutely for all services, information on a single portal should be preserved, for all services the payment of the duty in electronic form should be ensured - where it is, the ministry believes.
Malkov recalled that in July last year, at a meeting of the Presidium of the Council for Economic Modernization and Innovative Development, the Ministry of Economic Development proposed a new approach to transfer services to electronic form. These innovations are reflected in the concept of development of mechanisms for the provision of services in electronic form. The next step is to consolidate this approach in the regulatory framework.
A year ago, Deputy Minister of Economic Development Oleg Fomichev spoke about the fact that only popular public services should be converted into electronic form. , while maintaining the ideology of a single portal for the publication of public services at all levels, not all of them are economically feasible to be entirely converted into electronic form. Translation costs for rarely used services do not pay off.
The Ministry of Economic Development proposes to abandon the now adopted scheme of five stages of service provision, and go to a modular system in which the service is divided into a set of administrative actions. The decision to transfer to electronic form is made for each specific block.
As the website of the ministry's press service explained, the modular system provides for the electronic conversion of certain administrative procedures. With this approach, for each service, an individual set of procedures to be converted into an electronic form is determined - for example, informing, paying a fee, making an appointment, submitting documents in electronic form, etc.
The work plan - the "matrix" of transferring services into electronic form, which Malkov mentioned, displays for each service a specific set of electronic services (administrative procedures), services provided, as well as the timing of their implementation.
The Ministry of Economic Development believes that for all federal services, priority regional services to be optimized, according to the Concept for the development of mechanisms for the provision of state and municipal services in electronic form, the specified "matrix" for transferring services to electronic form should be developed at a time.
When asked which, in the opinion of the Ministry of Economic Development, services out of 35 priority services should not be fully transferred to electronic form, the answer was received: “All priority federal and regional services subject to priority optimization according to the Concept should be converted to electronic form in all administrative procedures, unless otherwise provided by law, or if the implementation of all administrative procedures is not applicable in practice (for example, for services that do not require payment of a state fee, the corresponding administrative procedure cannot be implemented). "
How to be regions
In order to optimize the procedures for the provision of services, the regions need to form an appropriate methodology, which, first of all, will be applied to 35 priority services, said the website in the press service of the Ministry of Economic Development. The work is being built in accordance with the Concept for the development of mechanisms for the provision of state and municipal services in electronic form, as well as an action plan ("road map") for its implementation, approved by a government decree.
The executive bodies of the constituent entities have the right to start measures in relation to other state and municipal services on their own without making an appropriate decision at the federal level. This is, again, about the activities envisaged by the Concept, as well as the Action Plan.
The Ministry of Telecom and Mass Communications was instructed not later than the fourth quarter of 2014 to develop appropriate methodological recommendations. In the near future, plans and schedules of measures for the transition to the provision of priority services by the executive authorities of the constituent entities and local self-government bodies will also be approved.
G2G and G2B
According to Malkov, the Ministry of Economic Development participates in a large number of projects in the field of the information society - all of them are in the field of improving the quality of interaction between the state and business, the state with a citizen and improving the quality of internal communications of government agencies (G2B, G2C, G2G, respectively).
Referring to the G2G project on organizing interagency cooperation, Malkov said that the methodology for designing interagency interaction needs to be significantly improved.
“The project is already cramped only in the service sector and within the framework of only the authorities. In addition, there are also government functions, a large number of organizations that provide services using data from authorities, and much more. All this needs to be reflected in a new methodology, ”he said.
Malkov also touched upon the topic of a new direction of work, which is indicated in the roadmap "Improving the quality of the regulatory environment for business" (order of the Government of the Russian Federation dated June 11, 2013 No. 953-r) and is associated with the task of reducing business costs. “It is known that every year businesses submit a huge volume of all kinds of reports to government bodies. According to the most rough estimates, the total cost of business for the provision of more than one thousand reporting forms is about 1.5 trillion rubles and takes more than 6 billion man-hours per year, ”Malkov cited the data of the Ministry of Economic Development.
However, according to the ministry, the country lacks a system for assessing business costs, and a system for assessing the practical value and necessity of these reports. The Ministry of Economic Development of Russia begins work on developing approaches to improve the entire reporting system, including optimizing the forms themselves and the data provided. “At the exit, unified rules for constructing reporting and unified methods of its submission should be obtained, primarily through electronic channels,” said a representative of the Ministry of Economic Development of Russia.
More than 100 thousand regional and municipal services are presented on the single portal of state services (EPGU) (data from the Ministry of Telecom and Mass Communications).
Earlier in October, the Ministry of Economic Development of Russia presented a report on the results of monitoring the quality of the provision of public services in electronic form, which was carried out from April to May 2014. 638 public services of 64 federal executive bodies and bodies of state extra-budgetary funds were studied, as well as 2,041 state and municipal services provided by executive bodies and local self-government bodies of 83 constituent entities of the Russian Federation.
As of October,. The rating of 4.5 was achieved by six departments: FSS of Russia, Rossvyaz, Rosturizm, Ministry of Transport of Russia, Ministry of Finance of Russia and Rosfinmonitoring. Roskomnadzor, EMERCOM of Russia, Rosvodoresursy and Rosprirodnazdor started working between 4.4 and 4.0. Most of the departments are located below. Seven bodies received a zero rating, among them the Ministry of Education and Science and Rosarkhiv.
II The process of transferring services to electronic form
1. Analysis of the administrative regulations for the provision of state municipal services.
The process of analysis of the AR by the System Operator begins with the verification of the name of the service and its main parameters with the data of the IS "RSU". The AR is also checked for the possibility of providing services in electronic form, the possibility of sending interdepartmental requests and requirements for filling out an application for the provision of a state / municipal service. For a municipal service, a check is carried out for compliance with the approved model administrative regulations. In case of inaccuracies, the System Operator sends the System User information about the necessary corrections. The work on transferring the service to an electronic form by the System Operator shall be terminated until the comments are eliminated by the User.
2. Designing the service data schema.
The design of the service data schema is based on the data corrected (if necessary) in the IS "RSU" and the corrected AR. The design is based on the following AR parameters: service delivery options, service delivery goals, service recipients), service application forms, as well as a list of documents provided together with the service application. When designing a service data scheme, the System Operator has the right to request advisory support from the System User on issues related to the provision of the service. The typical term for the completion of work at this stage is ten working days.
3. Design and development of the IAP prototype.
The design of the IAP is carried out by the System Operator using the IS "SPU" on the basis of the developed data schema. The design of the IAP includes the development of visual filling of the form, integration with the IS "MFC" POPs subsystem to ensure the possibility of accepting applications. Upon completion of the design, the IAP is displayed on the test EPGU to ensure the ability to control the final result by the responsible employee of the System User and conduct integration testing of the full cycle of providing the service in electronic form, provided for in paragraph 4 of this regulation. The typical term for the completion of work at this stage is fifteen working days.
4. Testing of the IAP prototype.
The responsible employee of the System User is involved in the testing of the developed IAP to conduct a comprehensive testing of the full cycle of the provision of services in electronic form, including the work of the IAP on the test portal of the EPGU, sending applications to the IS "MFC" POP, processing applications with sending intermediate statuses of processing applications and the result of rendering services (if sending the result is impossible due to the requirements of the AR) to the test portal of the EPGU.
Based on the results of testing, the System Operator, together with the System User, signs the test protocol developed by the IAP (hereinafter referred to as the test protocol) and is approved by the DITOO in the form given in Appendix No. 2 to this regulation. The IAP testing protocol reflects the detected deficiencies that must be eliminated. If it is technically feasible, all indicated shortcomings are eliminated by the System Operator, about which the relevant information is entered into the Testing Protocol.
After elimination of the identified deficiencies (subject to the availability of technical capabilities), the test protocol is signed by the System User together with the System User and approved by DITOO. The typical term for the completion of work at this stage is twenty working days.
5. Formation of a set of technical and operational documentation for the publication of the IAP.
The documentation required for IPF publication is developed by the System Operator and includes:
Private technical assignment;
Instruction for the EPGU call center;
Testing protocol.
The maximum term for performing work at this stage is no more than seven working days.
6. Publication of the IAP at EPGU.
The publication of the IAP on the EPGU is carried out by the System Operator on the basis of the approved IAP Testing Protocol. The term for the formation and submission of an application by the System Operator for publication is no more than 14 calendar days. Based on the results of sending the application, the EPGU operation service assigns an incident number, within the framework of which the publication is carried out.
The publication period depends on the operating mode of the EPGU operation service for the IAP publication, as well as on the elimination of technical problems (if any were identified during the publication).
7. Integration of the IS "MFC" POPs with the VIS of the User of the System. Integration is carried out when it is necessary to provide services using the User's VIS.
To integrate the VIS with the IS "MFC" POP according to the standard scheme determined by the System Operator, a web service for receiving applications and a web service client for sending messages about events of processing applications are developed on the side of the VIS. Documentation with a full technical description of the necessary modifications at the request of the System User is provided by the System Operator (if there is an application from this System User to transfer the service to an electronic form).
Integration of the VIS with the IS "MFC" POPs using an information interaction scheme different from the standard one is carried out in agreement with DITOO. To agree on such integration, a detailed technical description of the proposed solution must be provided.
Based on the results of the integration, a working group is created to conduct integration testing with the participation of responsible persons appointed by the System User, DITOO and the System Operator (hereinafter - the participants in the integration testing). In case of successful completion, the participants of the integration testing sign the corresponding Protocol.
8. Connection of the IPF to the monitoring system.
After the successful publication of the IAP on the EPGU / RPGU, the System Operator develops autotests for connecting this IAP to the monitoring system. Depending on the technical capability, autotests can be short (with testing the accessibility of the IAP at the EPGU / RPGU) and complete (with testing the accessibility of the IAP at the EPGU / RPGU, filling the IAP with test data and sending test applications to the System User).
In the case of developing a full autotest, the System Operator informs the System User of a set of test data to ensure the possibility of selecting test applications by the System User among the general flow of productive applications submitted by applicants.
Monitoring of the IAP is carried out according to a schedule determined by the System Operator until the withdrawal of the IAP from operation (termination of the provision of this service by the User of the System or changing the IAP in accordance with the changes in the AR).
On July 22, the head of the Department of Urban Development Policy Sergei Levkin said that by the end of the year the city authorities plan to complete the transfer of 16 services of network companies to electronic form, which will greatly simplify the procedure for connecting housing and other real estate to engineering networks.
The head of the department explained that services for the issuance of technical specifications, the conclusion of contracts for the connection and the issuance of acts on the implementation of technological connection to the networks of engineering and technical support will be transferred to the electronic form.
Developers will be given the opportunity to submit one set of documents through the official portal of the mayor and the government of Moscow, - said Sergei Levkin.
A study by the All-Russian Center for the Study of Public Opinion, conducted in early June, revealed that a request was formed among developers to receive services for connecting to networks by filling out a single application in electronic form.
70 percent of the respondents supported the transition to this form of service, - said Sergei Levkin.
To date, all the main public services in the construction sector are provided in electronic form, starting with the preparation of a town-planning plan for a land plot and ending with the commissioning of an object - 18 public services.
Less paper
The authorities of the capital have been working for several years to reduce administrative procedures in construction.
Thus, the collection of information for developers has been simplified. An information infrastructure has been created in the capital, which makes it possible to provide developers with information about previously conducted geological and topographic studies.
There is only one goal - the prompt solution of all emerging issues and difficulties of developers when going through administrative procedures and obtaining public services, says Marat Khusnullin, Deputy Mayor of Moscow for Urban Development Policy and Construction. - The number of paper documents is reduced, and the system of interaction between business and government is simplified.
Electronic services are not only saving time and nerves for the developer. This type of interaction between the applicant and the official makes it possible to exclude personal communication, which means it reduces corruption risks. The process is being improved day by day. If by the end of 2013 it was possible to get 7 out of 14 basic services in the field of construction in electronic form, now - all the key ones. In 2017, 90 percent of documents were filed online.
Good effect
According to research by the All-Russian Center for the Study of Public Opinion, on average, more than half of the construction industry specialists note the positive effect of the reforms being implemented. The most positive assessments are associated with the transfer of public services in the construction sector to electronic form.
About half of the respondents - 47 percent of the respondents who applied to the authorities and organizations of the Moscow Stroycomplex, noted that over the past year, interaction with these structures has improved. At the same time, only 37 percent of the survey participants held this opinion last year.
The head of the Department of Urban Development Policy of the city of Moscow, Sergei Levkin, said that work to reduce administrative barriers in construction is being carried out on behalf of Moscow Mayor Sergei Sobyanin and is one of the priority areas of activity.
Developers no longer put administrative barriers in the leading places in the list of reasons that impede construction, - he noted. - Obtaining permits is in eighth place, and the leaders are economic issues.
Available information
Developers can get the necessary information on the city portal "We are building simply". This is the first online platform for informing business representatives about current topics and issues related to activities to reduce administrative barriers in the construction industry in Moscow.
The most useful information for developers is contained in the "Service Guide" section, where a specialist can find not only a list of all public services, but also detailed instructions for obtaining them, regulations, legal documents and much more.
