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§ 3. Vocational training perfection in public service system

For increase of efficiency of public service of Kazakhstan and productivity of spent reforms rather actual there are problems of training of shots as way of increase of professionalism of civil servants.

As it is marked in the literature, for professionalizatsii public service two conditions - stability of shots that their continuous training [425 [426] is reached their effective social and a legal protection, and are necessary, at least.

Training represents «process educational and the intellectual development directed on reception and increase of knowledge and skills for the purpose of acquisition of professional skill and development of knowledge», «purposeful, regularly and systematically organised process ovladevanija knowledge, abilities, skills for work on the public service, carried out according to requirements of the state bodies and interests of civil servants» [427].

It is the complex category including preparation of civil servants, for the first time accepted on public service; retraining and improvement of professional skill of working civil servants, training on a workplace and self-education.

Vocational training of the civil servants for the first time accepted on public service, - «training to knowledge, abilities, skills according to the professional and qualifying requirements shown to corresponding state posts» [428]. It is carried out in higher educational institutions of the country and the foreign states. Retraining - acquisition by civil servants of an additional professional knowledge, skills on the educational programs providing studying of separate disciplines, necessary for performance of a new kind of office activity (in connection with appointment to a certain post) or former official duties in new professional [429 [430 [431 environment.

Improvement of professional skill represents «updating of theoretical and practical knowledge of civil servants according to requirements of educational standards with a view of maintenance of level of their qualification, sufficient for effective execution of official powers». Usually process of short-term training of civil servants is meant improvement of professional skill for the purpose of updating of their knowledge. In M.Dzhangarachevoj's opinion, «it is process of constant training of civil servants for the purpose of restoration of theoretical and practical knowledge through training programs for studying of modern methods,

About

The professional problems connected with performance and duties ». Such approach is based on wide understanding of improvement of professional skill which enters into a duty of civil servants and in this sense covers itself both self-education, and training on a workplace.

Training on a workplace is «development of a professional knowledge, skills for the purpose of the qualified performance of the official powers and duties or new problems and the functions arising in the course of work», is carried out usually under the individual plan. Self-education is «process of independent mastering by knowledge, skills according to interests and requirements of civil servants for increase of level of the qualification and professional skill» [432].

The infrastructure of training of civil servants in Kazakhstan was created not on a "naked" place, and on the basis of that system which has developed during Soviet time.

In the USSR there was a network partshkol. In colleges of law there were branches and chairs of the Soviet building. Through these establishments there was a preparation of the basic contingent of workers of machinery of state.

After declaration of independence in Kazakhstan steps on a reconstruction of system of vocational training of workers of machinery of state have been undertaken. In 1991 the Institute of retraining and improvement of professional skill of civil servants has been created at Government RK, in 1994 - the National higher school of the government at President RK. The decree of the head of the state from September, 18th, 1998 № 4075 «About the further measures on perfection of preparation, retraining and improvement of professional skill of civil servants» on their base had been formed public service Academy at President RK. The order of the head of the state from November, 12th, 1998 № 4142 had been approved Position about it [433]. In turn Decrees of President PK from May, 31st, 2005 № 1583 and from July, 8th, 2005 № 1611 there was a reorganisation of official bodies «public service Academy at the President of Republic Kazakhstan», «Judicial academy at the Republic Kazakhstan Supreme Court» by merge in official body «government Academy at the President of Republic Kazakhstan» and transfers of function of Diplomatic academy of the republican state state enterprise «Euroasian national university of a name of L.N.Gumilev» to again formed official body, its problems [434] are defined.

C acceptance in 1999 of the Law of Republic Kazakhstan from July, 23rd, 1999 № 453-1 «About public service» in which among its basic principles professionalism and the competence of civil servants are defined, coordination of activity of the state bodies concerning preparation, retrainings and improvements of professional skill of civil servants has been assigned to the authorised body - Republic Kazakhstan Agency on public service affairs. It also urged to carry out coordination of formation and placing of the state order on government programs of retraining and improvement of professional skill of civil servants.

Realisation of these problems assumes Agency participation on affairs of public service in activity of the state bodies on following questions: planning of training of civil servants; formation and administration of budgetary programs of training of civil servants in the centre and regions; the statement of didactics, standards of training, curriculums; definition of the list of the educational institutions which are carrying out training; monitoring of career of the trained civil servants; quality assurance and working out of is standard-legal maintenance of training.

The basic directions of perfection of system of training of civil servants have been defined in the Concept of training of the civil servants, accepted in 2000 It first of all creation and development of an infrastructure of training in the centre and regions; formation of the competitive environment in sphere of training of civil servants; creation of system of budgetary programming on the basis of strategic plans of training and maintenance of its steady financing; increase of a role of personnel services and responsibility of heads of the state bodies; creation of a personnel kernel of the faculty of system of training; expansion of the international cooperation in the given sphere; perfection normativnopravovoj bases concerning training of civil servants [435].

Training is stimulus for the further career growth of civil servants, promotes a raising of a role of all case of public service on new qualitative level.

While translating on a higher post expediently as compulsory condition to provide improvement of professional skill of the civil servant under the program «career retraining» or "vocational training".

Now in the legal literature and in practice various forms, methods and programs of training of the civil servants, having features depending on are developed and approved, whether there is a speech about vocational training for the first time accepted on public service or about retraining and improvement of professional skill.

For example, in the first case training can be spent by self-preparation (acquaintance with "directory" and «a package of documents» on discharge of duties within the limits of a post, given by the direct head, studying of the special literature); training to practical skills it is direct on an office place under the guidance of the appointed adviser (mentor) from among skilled, highly skilled civil servants; carrying out of thematic seminars (in the presence of group for the first time accepted on public service) in a place of service with attraction of experts; receptions in educational institutions of additional vocational training [436].

Besides, the training system should give possibility of reception of the formation which directly have been not connected with performance of professional functions, but the civil servant enriching creative potential and promoting its development as to the person [437].

The infrastructure of training of civil servants includes government Academy at the President of Republic Kazakhstan, branch educational institutions, the regional centres of training of civil servants. The academy is a head educational institution in system of training of civil servants and plays a role of the uchebno-methodical, scientific, information-analytical centre co-ordinating activity of educational institutions, civil servants carrying out training. Its graduates have the high status which is provided with their inclusion in a personnel reserve for employment of posts of administrative employees. Also the question on their direct distribution in the state bodies on the basis of a rating of listeners is considered.

Until recently the Academy acted in the organisation-legal form of official body.

On the basis of the Decree of President PK from November, 28th, 2008 № 698 «About some questions of Academy of the government at the President of Republic Kazakhstan» its organisation-legal form has changed: from official body it has been transformed to the republican state state enterprise «government Academy at the President of Republic Kazakhstan». In its structure the National school of a state policy is created.

Now government Academy at President PK - the base scientific, methodical and educational centre realising the programs of vocational training, retraining and improvement of professional skill of civil servants, including for diplomatic service and judiciary RK. In its structure function the Institute of the state and local management preparing experts under the program «Master of the state and local management»; the Institute of diplomacy which is carrying out preparation of masters of the international relations and improvement of professional skill of plenipotentiary ambassadors PK and heads of structural divisions Ministry of Foreign Affairs RK; the Institute of justice which is carrying out preparation of masters under the program "Jurisprudence" and improvement of professional skill of judges of a regional and regional link, workers of the judiciary; The institute of retraining and improvement of professional skill of civil servants in which there pass retraining and improvement of professional skill civil servants of various categories, organizujuet methodical maintenance of training of civil servants, and also co-ordinates activity of the regional centres of training; Institute of modernisation of public service into which problems enter carrying out of fundamental and applied scientific researches in the field of the government and public service; development of offers and recommendations in the field of improvement of quality and availability of the state services and perfection of the established set of powers to the civil servants, rendering services; participation in scientific examination of requirements to professional level of workers of the state bodies and working out of a technique of selection and a qualifying estimation of potential of career growth, motivation of activity of civil servants; Cooperation with the domestic and foreign research, educational and publishing organisations in the field of the government, joint carrying out of training, symposiums, conferences, forums, seminars; the National school of a state policy preparing civil servants of an elite link, capable to effective realisation of a state policy.

The academy co-operates with such leading educational institutions, as the London School of economy and political sciences, Whether School of a state policy of name Kuan JU at National university of Singapore, the Dutch institute of the government (ROI: International), Institute of a state policy of Finland, the London Diplomatic academy at Westminster university, the Egyptian fund of technical assistance to the CIS countries, the Institute of the world of the United Nations, Economic university of Japan in of Tokyo, etc. To preparation of experts, increase of their qualification are widely involved workers of a diplomatic corps of Kazakhstan, the foreign states, heads of the international organisations accredited in RK, executives of the central state bodies. Curriculums of seminars are based on use of modern effective forms and training methods, including interactive. These are lectures-conversations, «round tables», business games, "brainstormings", discussions, trainings, an exchange of opinions, are widely applied by experience, etc. In educational process modern means of training, including the computer, video projective technics and the newest computer technologies.

The strategic plan for development of Academy for 2009-2011 defines three strategic directions of activity: 1) the educational; 2) nauchnoissledovatelskaja; 3) economic and administrative, also their target indicators.

Within the limits of the first direction two main objectives are allocated: training of civil servants and modernisation of process of training. Target indicators of the first purpose are: 1) a share of the graduates appointed to a higher post (release of 2008): in 2009 - 6 %, 2010 - 10, 2011 - 20 %; 2) a share of the graduates appointed to a higher post (release of 2009): in 2009 - 10 %, 2010 - 25, 2011 - 40 %; 3) a share of the graduates appointed to a higher post (release of 2010): in 2010 - 10 %, 2011 - 25 %; 4) number of the graduates who have passed language examinations "Kaztest" on 80 %, IELTS on 6,0/6,5: in 2009 - 10 people, 2010 - 15, 2011 - 20 people; 5) increase in scope by training of state employees on retraining and improvement of professional skill courses: in 2009, in 2010, in 2011 on 5 % annually.

Target indicators of the second purpose: 1) degree of satisfaction of consumers (magistranty, students of retraining and improvement of professional skill): in 2009 - 77 %, in 2010 - 80, in 2011 - 85 %; 2) competition at receipt in 2009, in 2010, in 2011 is identical - 3 people into place; 3) quantity of graduates NSHGP: in 2010 and in 2011 on 25 people [438].

Within the limits of Academy Requirements to educational the program of retraining and improvement of professional skill of civil servants and other documents directed on maintenance of process of qualitative vocational training of civil servants are approved Position about an order of the organisation of courses of retraining and seminars of improvement of professional skill of civil servants.

C the moment of creation the Academy has prepared more than 4000 administrative and political civil servants. Finished training under programs of a magistracy and postgraduate study on the basis of the state order have the right to employment of executive position out of competitive selection. Retraining and improvement of professional skill courses have passed nearby 14 000 persons.

In all areas of Kazakhstan the regional centres on training of civil servants are created. For their today 14. They urged to carry out improvement of professional skill of civil servants according to requirements of local state bodies. Regional training centres of civil servants are the organisations of an additional education realising professional educational programs in regions. Their activity is carried out on the basis of the order for improvement of professional skill of civil servants from local and central executive powers. The majority of the centres work on the basis of local educational institutions. Besides it, the centres are engaged in adaptation, introduction and use of the international experience of a professional training of public service. Since 2009 For maintenance of quality of training of civil servants quarterly monitoring of work AGU, RTSO, other organisations of formation is carried out.

One of the acute problems long time was shortage of the qualified teachers and the programs calculated on various categories of civil servants. For the decision of the given problem at the initiative of the President at support of the European commission it is created (by analogy to Incorporated Viennese institute) the Euroasian centre of training of civil servants on the basis of the Euroasian university in to Astana [439]. Nowadays it is reorganised in joint-stock company «the National centre on management of the public service personnel» which realises the concept of training constructed at short-term courses of improvement of qualification without a separation from work.

In the Law of Republic Kazakhstan from July, 23rd, 1999 № 453-1 «About public service» the right of the civil servant to retraining and improvement of professional skill at the expense of the corresponding budget is fixed, their terms and periodicity [440] however are not defined. According to Rules of retraining and improvement of professional skill of civil servants of the Republic Kazakhstan, approved by the Decree of President PK from October, 11th, 2004 № 1457 [441], retraining term - about six weeks for the persons who for the first time have arrived on public service, and also appointed to a supervising administrative state post; term of improvement of professional skill - from three days about two weeks in Republic Kazakhstan, and abroad - till one year.

Retraining of the administrative civil servants for the first time accepted on administrative public service, should be spent not later than 3 months from the moment of appointment to the post, and appointed to supervising executive position - within three months from the moment of appointment. Periodicity of improvement of professional skill administrative gosu

Donative employees it is provided not less often than an once in three years, except for improvement of professional skill abroad.

Since 2005, Kazakhstan has started to train in the first of the CIS countries state employees abroad at the expense of own means. Only for 2010 training more than hundred civil servants of the central state bodies abroad has been organised: at the London school of economy and political sciences, in the Russian academy of public service, at School of a state policy (Singapore) other

Programs of training courses are abroad grouped in three key directions; the state social and economic policy (for example, industrially-innovative development: experience of foreign countries, standardization and certification: quality management system, economy of development and globalisation); the state Policy of Law (the international experience in sphere of struggle against corruption, narcobusiness, terrorism); the government (modernisation of system of the government, management of human resources, de-centralisation, the electronic government, ethical standards).

For maintenance sistemnosti training from calculation of 1 % from fund of a payment the technique of formation of expenses for improvement of professional skill of civil servants is developed for the state bodies by number less than 100 units and 0,5 % - for other state bodies. Introduction of the given technique has allowed to increase quantity of listeners in Academy and the regional centres of training.

The order of the chairman of Agency PK on affairs of public service from February, 5th, 2005 № 02-01-02/15 approves Rules of carrying out of competition on selection of the civil servants directed on improvement of professional skill abroad [442].

The information on improvement of professional skill abroad in the central state bodies and akimam areas, cities of Astana and Almaty goes Agency on public service affairs. Data on competition take places on web sites and in mass media. Primary selection of candidates is carried out by the state bodies on opened competition -

3 SAPP RK. 1999. № 58. Item 562.

4 SAPP RK. 1999. № 58. Item 559.

Ache to a basis. At the moment of a filing of application the civil servant should have not less than one year of the experience of public service; the program of improvement of professional skill should correspond to official duties of the civil servant.

Competition is spent by the competitive commission. The personal structure of the Commission which are carrying out selection of candidates, directed on improvement of professional skill abroad at the expense of means of the republican budget and the estimate (budget) of National bank RK, affirms the authorised body; the local budget - akimami areas, cities of Astana and Almaty; the allocated grants or the technical help the international organisations or the governments of the foreign states or other means which have been not forbidden by the current legislation, - the head of corresponding state body (the responsible secretary).

The commission structure, obrazuemoj Agency on public service affairs, includes representatives of Administration of President RK, Offices of prime minister RK, National bank RK, Ministry of Education and Science RK, Academy of the government and other persons defined by the authorised body. The structure of the competitive commissions on places includes representatives of territorial divisions of the authorised body, and also other bodies containing at the expense of local budgets.

We consider, that for maintenance of democratic character of work of the competitive commissions both in the centre, and on places, their structure should join deputies of Chambers of Parliament and maslihatov, representatives of a judicial branch of the power, for example, chairmen of vessels, and also representatives of public organisations, public figures. It is caused by that workers of devices of these bodies also can apply by results of competitive selection for training abroad. The approach at which structures of the competitive commissions join, mainly, representatives of one branch of the power - executive, can lead to some discrimination. Especially it is actual for the employees directed abroad at the expense of means of the local budget. Structures of the competitive commissions affirm only akimami, i.e. Representatives of the executive authority, whereas with a view of objectivity and justice of the given procedure expediently attraction of representatives both legislative, and judicial power branches.

Before a direction on improvement of professional skill abroad at the expense of means republican or local budgets the civil servant concludes the contract which is the basis for transfer of money for its improvement of professional skill with the authorised body.

There is a question: why the conclusion of the similar contract for the employees directed abroad at the expense of means of National bank is not provided? After all it too public funds. This question and concerning those civil servants which improvement of professional skill is abroad financed at the expense of grants or the technical help of the international organisations and the governments of the foreign states is not settled. It is necessary to specify, that the rights and duties of the parties and other questions are regulated according to the conditions provided by these organisations; to define, in what order winners of competitions are defined: the competitive commissions, the international and foreign governmental organisations or in common both parties.

After training end, within a month after arrival, the civil servant should present the report on business trip, the program of improvement of professional skill and a copy of the document on training end to personnel service of the state body.

On the basis of the aforesaid it is offered to specify procedure of a direction of administrative civil servants for training abroad, including trained at the expense of means of National bank or means of grants or the technical help of the international organisations and the governments of the foreign states; to provide democratic character and objectivity of the competitive commissions which are carrying out selection of candidates on foreign training, by inclusion in their structure of representatives of different branches and authorities.

In our opinion, at a direction on training abroad it is necessary to pay attention and to problems of national safety since quite often foreign organisations allocating means for training, really pursue absolutely other aims, than the help in development of democratic institutes. They aspire to study, at least, those who has prospects to enter into administrative elite.

In our opinion, the basic norms of the specified certificates, concerning terms and periodicity of retraining and improvement of professional skill, it is necessary to erect in a law rank that is why to bring in subitem 8) item 8 of the Law of Republic Kazakhstan from July, 23rd, 1999 № 453-1 «About public service» and in Position about an order of passage of public service corresponding additions.

In modern conditions for learning efficiency increase it is required not only use of traditional methods of training (lecture, seminars), but also wider application of the interactive methods, allowing to approach the theory to practice, to use that knowledge which the civil servant has got during lectures and acquaintance to the educational and additional literature, standard legal acts. These are business and role games, "imitations", work in small groups, is social-psychological training, controllable discussions, videoconferences, video training, «brain storm», electronic training systems etc.

One of such methods is analysis of the situations as much as possible approached to real. Today the civil servant should be ready to work in such conditions when the true decision is not known. Important not easier to give the information on the most widespread methods of the decision of administrative problems, but also to learn civil servants to use them with reference to concrete situations, «because in the conditions of complication of problems of management value of typical samples on which it is possible to solve them falls, and the role of adaptable possibilities of the state employee allowing it to create new samples of activity in process of change of conditions» increases. This method imparts to the trainee skills of search of a rational variant of actions in the conditions of uncertainty or a lack of the information [443].

Civil servants should, certainly, to own modern general scientific and special scientific methods of economic-mathematical modelling, system and statistical analysis of data, is concrete-sociological, structurally functional and rather-legal methods, to know technology of preparation of laws and other standard legal acts, to be able to prepare competently this or that document.

About value of new techniques, programs and forms of training of the civil servants, new approaches to it it was much spoken at the international scientifically-practical conference «Public service in Kazakhstan: experience, problems and prospects», taken place in the end of 2001 in to Astana. Participants of conference had been put actual problems training of employees of machinery of state, concrete ways of their decision [444] are put forward.

Among the new forms, which steels widely to be applied to training of civil servants, the important place occupies institute of training. Train administrative civil servants can in leaders foreign, including in Russia both other CIS countries, and domestic centres of science, cultural-educational institutions, the state bodies, banks, the financial and industrial companies etc.

Considering insufficient level of language preparation of overwhelming majority of employees, training in the far abroad countries have mainly short-term character. At the same time absence of language barriers, the territorially-geographical arrangement, similar sotsialnoekonomicheskaja and political systems, affinity of cultures, national traditions and formation standards, the general problems facing to public service, incommensurably smaller expenses in many respects raise appeal of training in the Russian centres of science and the leading national companies. Experience of the USSR has shown, that during Soviet time the institute of training and courses of improvement of qualification of experts from union republics in the all-union scientific and educational centres, in the central (all-union) ministries, departments and other bodies successfully enough functioned.

Agency PK on public service affairs leads work on realisation of coordination of activity of the state bodies concerning training of civil servants abroad. Some thousand kazahstan - tsev study abroad. For attraction of these persons on public service it is offered to equate them to graduates "Bolashak" and other state educational programs of training abroad and to enlist in a personnel reserve of Agency. Certainly, not all graduates of the above-stated programs have the right to occupy executive position or what will correspond to qualifying requirements for employment of a vacant administrative state post will be enlisted in a personnel reserve, and only.

The developed practice is focused basically on the short-term training having mainly fact-finding character. Frequently civil servants have not time to penetrate deeply into work of corresponding state bodies and the organisations, to receive practical skills on drawing up of any documents, use of modern methods in work etc.

Thereupon V.I.Matirko considers, that it is necessary to put the following principle in a basis of the organisation of training of civil servants: the above the employee on an office ladder rises, the in the general duration of its training training should constitute the big share of time. In its opinion, «should become a rule, that in machinery of state training and training of the civil servant on a similar post assumed to replacement» should precede appointment to any post. He suggests to establish terms of training of one-two year, longer - for again accepted on public service [445].

However for realisation of such offers very big financial expenses, therefore at the given stage of training are required, and also training in Academy of the government and in the regional centres should be combined with carrying out of training lectures, seminars, conversations, consultations etc. directly on a workplace of the civil servant.

Results of questionnaire of civil servants of some the central state bodies, spent to 1999 experts of working group of Project TASIS «Assistance to public service development in Kazakhstan», have shown, that were not trained with a separation from work about half of personnel (49,7 %), and training on a workplace - more than half (51,4 %), that is the considerable part of civil servants to the beginning of reforms worked on base once the got education.

Interrogation data testified and to a difference in requirements of various forms of training depending on age group. If for young group (21-30 years) on the first place there is a perfection of skills during professional work, and on the last - self-training for respondents of the senior group (51-60 years) the most productive is training with a separation from work and self-training. Thereupon it is necessary to do accents on various types of training for each age group taking into account their requirements.

Now the potential of the scientific shots working in nauchnoissledovatelskih and private higher educational institutions, for training of civil servants is claimed far not to the full. Not all from them can work in Academy of the government and in the regional centres as constant teachers. But them it is possible and it is necessary to involve in carrying out of separate actions for training of civil servants directly on their workplaces.

From the point of view of transfer of practical experience carrying out of exit sessions of standing committees of Parliament, boards of the ministries, departments and other central state bodies in local controls is rather effective.

Necessity of reforming of local authorities and creation of system of local government bring on prospect a professional training attention to the question.

At the same time the analysis of questions of training of civil servants has shown a number of existing problems. First, this insufficient quality of educational programs. For today satisfaction of civil servants possibilities of training and improvement of professional skill is constituted only by 32 %. It speaks about poor quality of monitoring of educational programs and weak work of the mechanism of "feedback" with the civil servants who were trained. The maintenance of curriculums frequently mismatches professional requirements of civil servants.

Not all state bodies as on central, and regional levels observe Rules of retraining and the improvements of professional skill of civil servants approved by the Decree of the President from October, 11th, 2004 № 1457. So, on training the persons who for the first time have arrived on public service, appointed to supervising executive position, and also coming under certifications not always go. Personnel services of the state bodies to which functions of planning are assigned, control and coordination of questions of training of civil servants while poorly consult with the duties.

Thirdly, it is necessary to note low level of primary selection of the candidates recommended by the state bodies for improvement of professional skill abroad. The republican commission at each session deviates about 18-20 % of candidates which mismatch criteria of a receiving party. The refusal facts in departure to the civil servant a management of the state body after the decision departmental and republican competitive the commissions (in 2008 more than 20 cases) take place. It creates serious problems first of all financial character.

For the decision of the designated problems following measures are offered.

Within the limits of perfection of system of training of civil servants it is expedient to personify the means going on training, and to provide annual working out of individual plans of training on which basis the educational programs corresponding to professional requirements of civil servants will steal up in advance. It is necessary to finish stage by stage number of the civil servants directed for training in the best educational centres abroad, to level of 1 % from regular number of the state body.

For improvement of quality of selection of civil servants it is necessary to make amendments to the standard legal acts regulating questions of training abroad. In particular, it is offered to fix norm on strengthening of responsibility of heads of the ministries and departments, personnel services for not qualitative selection of employees at their recommendation for training abroad.

It is possible to recommend for the state bodies to organise training under branch programs of the ministries and departments that will allow to consider specificity of the state bodies, to improve and detail the training program. It is expedient to provide courses of foreign experts for the Kazakhstan civil servants that will allow to save means and to involve wider audience for training.

At session of board of Agency PK on public service affairs, sessions of Disciplinary councils of territorial administrations it is necessary to consider execution practice by the state bodies of Rules of retraining and improvement of professional skill of the state employees approved by the Decree of President PK from October, 11th, 2004 that will allow to give to process of training of civil servants the consecutive and adjusted character.

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A source: Turisbek Ajnur Zautbekkyzy. Public service in Republic Kazakhstan (a theory and practice problem). The dissertation On competition of a scientific degree of the doctor of juridical science. Moscow - 2011. 2011

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