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Организация государственной службы в гражданских ведомствах

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Министерство образования и науки РФ

Филиал НОУ ВПО «Санкт-Петербургский институт

Внешнеэкономических связей, экономики и права»

в г. Тольятти

Гуманитарный факультет

Кафедра «Связи с общественностью»

Реферат

Дисциплина: «История Государственного управления и государственные
службы России»

Тема: «Организация государственной службы в гражданских ведомствах»

Выполнил:

Новикова Е.А.,студентка 2 курса,

заочной формы обучения,

группы СОЗ-21

Проверил:

Андрианова Л. Н., преподаватель

Тольятти, 2007

Оглавление

Введение………………………………………………………………….…3

Глава I Государственная служба в «Золотой век» Российской
Империи…………………………………………………………………….5

Глава II Государственная служба в современной России

2.1. Понятие государственной службы в Российской Федерации..16

2.2 Принципы государственной службы……………………..….…..20

Глава III Государственная должность. Классификация………..……….24

Глава IV Понятие и виды государственных служащих…………………31

Глава V Правовое положение государственного служащего………….36

Заключение…………………….…………………………………………..41

Список использованной литературы……………………………………43

Введение

Государство, являясь особой организацией публичной политической
власти господствующего класса (социальной группы, блока классовых
сил всего народа), имеет свои задачи и функции.

Эти задачи и функции практически реализуются посредством
конкретных действий личного состава, находящегося на службе у
государства – государственных служащих. Государство приобретает
реальность и силу именно в этих кадрах в контингенте его
служащих. Задачи и функции государства становятся, при их
практической реализации, задачами и функциями набранных
государством, служащих. От государственных служащих зависит работа
государства.

Государственная служба продолжает и завершает организацию
механизма государства, делая её готовой и пригодной к
практической реализации задач и функций государства. В каждое
звено государственного механизма служба вносит жизнь, комплекс
мер, средств, форм и методов для реальной, практической
деятельности. В становлении государственности любого вида
государственная служба выступает в качестве первейшего
организационного средства выполнения государством своих целей.

В структуре государственной службы различаются чётко две стороны,
две группы отношений: организация государственной службы её
подготовка и служебная деятельность, осуществление каждым
служащим и всеми ими вместе своих служебных практических
полномочий.

Организация государственной службы означает её формирование для
деятельности и включает большоё круг вопросов: установление
должностных наименований и определение полномочий по каждой
должности, выработка правил поступления на государственную службу,
подготовка кадров и повышение их квалификации, правила
продвижения по службе, применения мер поощрения и мер
дисциплинарной и иной ответственности, правил прохождения службы
и прекращения служебных отношений и некоторые другие правила.
Это большая область отношений связанная с кадрами и имеющая
подготовительные цели для практической деятельности.

Другая сторона государственной службы – это практическая
деятельность государственных служащих по реализации порученных им
полномочий.

Каждый служащий занимает должность, определяющую объём его
полномочий, которые и подлежат реализации. Со стороны
материального содержания эти полномочия весьма разнообразны (в
сфере властной деятельности, исполнительной, в правосудии и
т.д.), разнообразны они и по правовым формам своей реализации
(составление документов, работа с ними, приём лиц, рассмотрение
жалоб и т.д.).

Государственная служба представляет собой один из правовых
институтов, нормы которого регулируют обе стороны государственной
службы (организацию государственной службы и осуществление
государственными служащими практических полномочий). Как правовой
институт государственная служба объединяет нормы различных
отраслей права – административного, трудового финансового и
некоторых других отраслей и потому относится к сложным правовым
институтам.

В настоящее время данная тема широко обсуждается в научных
кругах, на страницах монографий, учебных пособий, выходит масса
законов и подзаконных нормативных правовых актов. Это связанно с
новыми подходами к пониманию и месте государственной службы в
современном российском государстве, а также с реформами
проводящимися в данном направлении

Глава I Государственная служба в «Золотой век» Российской Империи

Россия вступила в XIX в. С такой организацией власти, которая
уже не отвечала требованиям времени. Огромной империй, протянувшейся от
Балтики до Тихого океана, невозможно было руководить из одной царской
резиденции. У наиболее дальновидных чиновников в России возникли планы
глубоких преобразований государственного строя. С соответствующими
проектами к молодому императору Александру I обращались Н.П. Румянцев,
В.А. и П.А. Зубовы, П.В. Завадовский, А.Б. Куракин и другие. Они
предлагали осуществить такие реформы, которые ограничивали бы власть
императора. На радикальных переменах в государственном строе настаивал
сенатор Г.Р. Державин. В частности, он предлагал сделать Сенат
представительным органом высшего дворянства, духовенства и купечества,
сосредоточить в нем законодательные, исполнительные и судебные функции,
превратить звание сенатора в пожизненное.

Александр I осознавал, что неограниченная самодержавная власть легко
переходит в безграничный произвол, который расшатывает устои монархии и
дестабилизирует политический режим в стране. Он считал, что интересах
самого монарха необходимо устроить управление Россией так, чтобы
верховная власть совершала бы как можно меньше политических ошибок, а
принимаемы ею решения были бы благоразумными и целесообразными. Вместе с
тем 25 августа 1801 г. на заседании Негласного комитета, в который
входили «молодые друзья» императора (П.А. Строганов, А. Чарторыйский,
В.П. Кочубей и Н.Н. Новосильцев), Александр I заявил, что реформа
администрации должна быть предпочтительнее конституции. Это утверждение
легло в основу всей политики реформ первого десятилетия его
царствования.

Следует особо подчеркнуть, что инициаторы административных реформ
начала XIX в. Прекрасно отдавали себе отчет в том, что успехи в
государственных преобразованиях будут прямо связаны с существенным
улучшением организации государственной службы, качественными изменениями
в составе российского чиновничества.

В 1808 г. один из основных советников Александра I С.М Сперанский
составил записку «Настоящее положение дел и средства его исправления». В
частности, в связи с намечаемыми переменами в управлении страной
Сперанский утверждал, что привлечение новых, соответствующим образом
подготовленных государственных служащих становится неизбежностью.
Анализируя состояние российского чиновничества, он пришел к выводу, что,
во-первых, дворянства, составляющего основную его массу, в
количественном и качественном отношении недостаточно для потребностей
планируемой реорганизации управления, поскольку чиновники-дворяне в
массе своей не обладают специальными познаниями в областях, необходимых
для работы в государственном аппарате. Сперанский предлагал расширить
возможности для вступления в службу лиц других сословий, а также
сократить потребности военной службы. Одновременно автор записки
обратил внимание на плохое имущественное положение государственных
служащих, призванных решать проблему преобразования государственного
аппарата. «Для большей части людей,- писал Сперанский,- служба есть
промысел, но из всех промыслов она есть наименее прибыточный. Можно
положительно сказать, что исполнители наших законов, блюстители суда,
порядка и устройства суть нищие» Он предлагал существенно улучшить
имущественное положение чиновников, а необходимые для этого средств
обеспечить «лучшим распределением податей, а особливо экономиею».
Архипова Т.Г., «История государственной службы России XVIII-XX века» /
М.:1999г. 230с.

Острая потребность в кадрах вынудила самодержавие указом от 3
декабря 1808г. допустить на канцелярские должности лиц « податных
званий» (кроме крепостных); указ от 12 января 1812г.- на службу в
учебные заведения.

6 августа 1809г. Александр I подписал указ «О правилах производства
в чины по гражданской службе и об испытаниях в науках для производства в
коллежские ассесроры и статские советники» (указ действовал до 1834г.)
В преамбуле указа отмечалось, что главной причиной низкой образованности
чиновников стала возможность «достигать чинов не заслугами и отличными
познаниями, но одним пребыванием и исчислением лет службы».

М.М. Сперанский предостерегал императора, что с каждым годом
недостаток образования у российского юношества будет все более
отрицательным образом сказываться на управлении государством. Это и
тало основанием введения экзаменов при достижении VIII и V классов
Табели о рангах. Отныне, чтобы стать коллежским асессором, помимо
выслуги лет необходимо было иметь высшее образование или сдать экзамены
коммисии при университетах по установленной программе. Экзамены
вводились по следующим дисциплинам: русский язык, один из иностранных
языков, естественное право, всеобщая история, римское право, гражданское
право, уголовное право, русская история, государственная экономика,
арифметика, геометрия, физика, география, статистика России. Указ
требовал для управления «исполнителей сведущих, обладающих твердым и
отечественным образованием».

Требования указа вызвали в целом неблагоприятный отклик современников.
Многие министры, директора департаментов, губернаторы пытались
отстаивать преимущество опыта перед знаниями при назначении на должность
и продвижения чиновника по службе. И все же предложения Сперанского дали
определенные результаты. Если до 1810г. более 31% классных чиновников
имели домашнее образование, то 30-м годам XIX века таких стало всего 5 %
Архипова Т.Г., «История государственной службы России XVIII-XX века» /
М.:1999г. 230 с. .

Пожалуй, наиболее серьезные изменения в организации государственной
службы произошли в период царствования Николая I.

Император твердо верил во всесилие государства, в то, что может через
превосходно налаженный аппарат и хорошо подобранных, обученных
чиновников регулировать жизнь общества. Поэтому с первых лет
царствования он стремился улучшить российскую бюрократию. Для этого
Николай I потребовал усовершенствовать законодательную базу
государственной службы и усилить контроль за выполнением законов.

В 1827г. были собраны все необходимые сведения о численности и
составе канцелярских служителей и чиновников из податных сословий, а с
14 октября того же года было утверждено «Положение о канцелярских
служителях». Положение однозначно связывало преимущества по службе с
сословной принадлежностью. Канцелярские служители были разделены на 4
разряда: 1 потомственные дворяне,2 дети личных дворян, купцов 1-й
гильдии, священников и дьяконов, 3 дети канцелярских служителей, ученых,
художников, не имевших классов, 4 купцы 2-й, и 3-й гильдий, иностранцы,
лица податного состояния. Николай I запретил принимать на должности,
которые составляли XIV классу Табели о рангах, лиц 4 –го разряда.

В конце 20-х годов XIX в. получили распространение идеи полной отмены
гражданских чинов, что вызвало глухое сопротивление высших чиновников
империи. Сложившуюся ситуацию описал А.С.Пушкин в записке «О народном
воспитании»: «Чины сделалась страстью русского народа. Того хотел Петр
Великий, того требовало тогдашнее состояние России. В других землях
молодой человек кончает круг учения около 25 лет; у нас он торопиться
вступить как можно раньше на службу, ибо ему необходимо 30-ти лет быть
полковником или коллежским советником… Конечно, уничтожение чинов (по
крайней мере, гражданских) представляет великие выгоды; но сия мера
влечет за собой беспорядки бесчисленные, как вообще всякое изменение
постановлений, освященных временем и привычкою» Архипова Т.Г., «История
государственной службы России XVIII-XX века» / М.:1999г.230 с..

После нескольких колебаний Николай пошел по пути дальнейшего
совершенствования государственной службы и чинопроизводства. Важным
шагом в организации государственной службы стали кодификация
соответствующего законодательства и подготовка Свода законов о службе
гражданской. Предусматривалось разделение лиц, имевших по закону право
на работу в государственном аппарате, на три разряда: 1) окончившие курс
наук в высших учебных заведениях, 2) окончившие курс наук в средних
учебных заведениях, 3) «не имеющие аттестатов ни тех, ни других
означенных учебных заведений». Были установлены разные выслуги лет.

В России при Александре I дела об определении чиновников к должности,
наградах, пожаловании разных прав и преимуществах были сосредоточены в I
департаменте Правительствующего Сената.

Николай I решил с 1836 г. Сосредоточить все дела по надзору за
службой гражданских чиновников в I отделении Собственного
императорского величества канцелярии. Каждые 6 месяцев губернаторы
подавали сведения о лицах, поступивших на государственную службу.
Усмотрев в этом большие упущения Николай I повелел сосредоточить все
дела по определению на службу, производству в чины, помещению,
увольнению от службы в указанном учреждении. С этой целью в составе I
отделения 5 сентября 1846г. был учрежден Инспекторский департамент
гражданского ведомства. Аппарат департамента делился на четыре
экспедиции. Таким образом, царь мог видеть и контролировать чиновников,
находившихся на службе. Именно в годы царствования Николая I
окончательно установились требования к такому важному документу о
прохождении государственной службы, как послужной список. Архипова Т.Г.,
«История государственной службы России XVIII-XX века» / М.:1999г. 230
с.. Там содержалась более чем подробная информация о чиновниках и об их
имуществе.

Общей тенденцией России времен Николая I была военизация
государственного аппарата. Так, полностью были военизированы ведомства:
горное, лесное, путей сообщения. Да и обычное гражданское управление,
постепенно превращалось в военное.

В 1846г. по поручению Николая I министр юстиции граф В.Н. Панин
разработал записку о пересмотре устава о гражданской службе. Для
реализации замысла был образован Особый комитет для пересмотра «Устава о
гражданской службе». На основании указаний императора комитет
высказался за отмену названий чинов. Производство за выслугу лет
предполагалось заменить прибавкой к жалованью. Однако работа комитета
была замедлена двумя серьезными записками на имя Николая I министра
народного просвещения С.С Уваров. В них говорилось, что чины есть

«орудие столь могущественное, что доколе оно останется в руках
властителей, едва ли что-либо может поколебать самодержавную власть в ее
основаниях» Архипова Т.Г., «История государственной службы России
XVIII-XX века» / М.:1999г. 203 с.

. Уваров считал, что неслучайно Табель о рангах так укоренилась в
сознании россиян, это соответствует их психологии, стало частью
представлении о мироустройстве. «Россия любит в Табели о рангах
торжественное выражение начала, славянским народам драгоценного –
равенства перед законом, дорожит знамением мысли, что каждый в свою
очередь может проложить себе путь к высшим достоинства службы»,- писал
Уваров. И хотя в реальной жизни было далеко не так, перспектива
блестящей карьеры, возможность приобрести дворянское достоинство
действительно привлекала многих. Досягнув же известных высот, они
становились защитниками, за редким исключением, сложившейся системы
чинопроизводства Архипова Т.Г., «История государственной службы России
XVIII-XX века» / М.:1999г..230 с.. Николай I был вынужден согласиться с
С.С. Уваровым, и хотя в Особом комитете и был составлен проект нового
Устава о службе гражданской, император его не подписал, а сам комитет
был закрыт.

После смерти Николая I был ликвидирован Инспекторский департамент. В
1862г. с резкой критикой состояния государственной службы и системы
чинов выступил М.А. Корф главноуправляющий II отделением Собственной его
императорского величества канцелярии. В своей записки он указал, что
«вредное влияние чинов состоит особенно в том, что они образуют из
служащих какую-то отдельную, разобщенную с прочим населением касту,
которая живет своею собственной жизнью, считает себя выше остального
общества, и на которую общество также смотрит как на что-то чуждое и
почти враждебное»

Архипова Т.Г., «История государственной службы России XVIII-XX века» /
М.:1999г..230 с.

В 1892г. был образован специальный комитет по наградам чиновников. До
этого времени единого порядка награждения чиновников орденами,
подарками, пособиями не существовало. Соответствующие ходатайства
императору поступали через кавалерские думы, Комитет министров, от
отдельных министров и главноуправляющих, управляющего Собственной его
императорского величества канцелярии, членов императорской фамилии,
представителей разных благотворительных обществ. Отныне все
представления такого рода поступали в комитет по наградам.

Сколько же в России было чиновников в начале XX века? В своем
исследовании Н.А. Рубакин указывает, что в 1910 в Европейской России
было 575 тыс. чиновников и их содержание составляло 13,36% расходной
части бюджета. Архипова Т.Г., «История государственной службы России
XVIII-XX века» / М.:1999г..230 с. В течение всего XIX века основными
условиями поступления на государственную службу (абсолютное большинство
чиновников служило в гражданских ведомствах) были происхождение,
возраст, знания, подданство, «гражданская честь».

В XIX веке имели право вступать в гражданскую службу потомственные
дворяне и сыновья личных дворян, офицеров и чиновников, получивших
личное почетное гражданство, сыновья священников, диаконов и церковных
причетников прасвослвного и армяно-грегорианского вероисповеданий, а
также евангелистическо- лютеранских и реформаторских пасторов, сыновья
коммерции советников и купцов первой гильдии, интеллигенции и др.
Преимущества были за отдельными категориями населения, дети которых
служили в ведомстве Министерства императорского двора – например,
мастеровых и нижних чинов русской армии. Следует отметить, что все
вышеперечисленные категории лиц могли быть приняты на службу даже если
бы они не удовлетворяли некоторым другим условиям – например, не имели
должного образования.

Не охотно принимали на государственную службу иностранцев, детей
рабочих и крестьян. Также в первой половине XIX века не принимались на
службу и женщины, хотя нигде в законах категорического запрещения не
существовало. Лишь в ходе реформ их стали принимать «по найму» в
медицинские учреждения, на почту и телеграф, в учебные заведения. Позже
разрешили работать на счетно-бухгалтерских и канцелярских должностях.
Ограничения касались незаконнорожденных, т.е. родившихся вне
официального брака. Такие дети могли поступить на службу только при
условии, что будут записаны в податное сословие, а затем, окончив
учебное заведение, приобретут право на службу по образованию. Те, кто
поступал в гражданскую службу по одному только праву происхождения,
принимались на работу канцелярскими служителями.

Первая русская революция внесла существенные изменения. Она
уравнивала всех, корме иностранцев в праве поступления на службу.
Законодательство устанавливало минимальный возраст для поступления на
государственную службу с 14 лет. Для некоторых должностей устанавливался
минимальный возраст в 21 год, 25, 35. Верхнего предела не было. Лица, не
имевшие права на поступление на государственную службу по своему
происхождению, приобретали его после получения свидетельства обокончании
средних или высших учебных заведений. Также обязательным условиям было
обладание гражданской честью, те лица, которые были замечены в
неблаговидных поступках или подвергнуты наказанию по суду за
преступления и лишенные всех прав состояния, на службу не принимались.

С 1874 года условием поступления на государственную службу стало
отбывание воинской повинности

При вступлении на службу чиновник приносил устную присягу, затем он
подписывал ее печатный текст. Вышедший в отставку чиновник имел право
вновь вернуться на службу. Потерявший право на службу, т.е. отстраненный
от нее за дурное поведение, мог приступит к прежним обязанностям не
ранее чем четыре 2 года. При этом он должен был представить
свидетельство своего добропорядочного поведения.

В уставе о службе в ряде статей была выражена мысль о том, что
производить в чины необходимо последовательно, после выслуги
определенного количества лет в каждом чине: «Никто не может быть
производим через чин, или, минуя чины низшие, прямо в высшие» Архипова
Т.Г., «История государственной службы России XVIII-XX века» /
М.:1999г..230 с.

В конце XVIII века срок прохождения служебной иерархии с XIX по III
класс Табели о рангах составлял 49 лет. Поэтому высшего чина можно было
достичь на склоне карьеры. С целью, омоложения кадров в первой половине
XIX века было прекращено пожалование чинов XIII и XI классов, сокращена
выслуга лет в некоторых чинах. Теперь путь по карьерной лестнице
составлял 39 лет.

С назначением на должность гражданской службы канцелярский служитель
или чиновник получал содержание, которое состояло из жалованья, столовых
денег, квартирных денег или казенной квартиры. Император мог установить
особый оклад, что практиковалось в отношении высших должностных лиц.

При сокращении должности или ликвидации учреждения чиновники, оставшиеся
за штатом, получали только жалованье в течении года или до нового
назначения в пределах этого года.

Всем служащим выдавалось жалованье и столовые деньги 1 раз в месяц.
Ситуация, в которой в наша дни часто оказываются российские служащие
(невыплата зарплаты за несколько месяцев), в дореволюционной России
была не мыслима. Значительные расходы государство несло на обеспечение
чиновников, служивших в отдаленных местностях, таких как западные
губернии и Царство Польское.

Закон четко запрещал «приношения начальствующим лицам от общества и
сословий, как в совокупности, так и отдельно» Архипова Т.Г., «История
государственной службы России XVIII-XX века» / М.:1999г..230 с.

К числу выгод и преимуществ государственной службы с полным
основанием можно отнести и особую защиту государством своих служащих,
также через службу чиновник мог получит потомственное дворянство. К
числу весьма немаловажных преимуществ государственной службы относилось
получение пенсий. По общим правилам срок выслуги для получения пенсии
определен был в 35 лет беспорочной службы. Прослуживший не менее 25 лет
получал 50 % пенсионного оклада. Исходя из средних показателей
поступления на службу после получения специальности в 20 лет, можно
сделать вывод, что только к 60 годам должностное лицо могло выслужить
пенсию, что, кстати, превышало среднюю продолжительность жизни в стране.
Поэтому часто, пенсию получала семья, а не сам служащий.

В XIX веке окончательно сложилась система чинопочитания, когда
чувство лично достоинства уступило месту достоинству положения в
иерархии чинов и должностей. Например, старший по чину и должности в
письме к младшему собственноручно подписывал только свою фамилию. Если
же младший писал старшему, то обязан был собственноручно, помимо
подписи, называть свои звания и чин. Наличие в таком случае только
подписи считалось грубым нарушением правил и рассматривалось как
оскорбление. Вторая половина ХIХ в. знаменуется существенными
изменениями в общественном и государственном строе. Реформа 1861 г.
освободив крестьян, открыла дорогу развитию капитализма в городе, хотя и
поставила на его пути определенные препоны. Крестьянин получил земли
ровно столько, чтобы она привязывала его к деревне, сдерживала отток
рабочей силы, нужной помещикам, в город. Вместе с тем надельной земли
крестьянину не хватало, и он вынужден был идти в новую кабалу к прежнему
барину. Общинная организация деревни несколько притормаживала классовую
дифференциацию деревни и с помощью круговой поруки обеспечивала
взыскание выкупных платежей. Новая классовая структура общества, где все
большее значение приобретали противоречия между рабочими и
капиталистами, складывалась в рамках старого сословного строя.

Развитие социально-экономических процессов не могло не оказать влияния
на государственную сферу. Россия делает решительный шаг по пути
превращения феодальной монархии в буржуазную. Это проявляется
преимущественно в среднем и низших звеньях государственного механизма,
где земская и городская реформы допустили буржуазию к управлению.
Судебная реформа проводит довольно последовательно буржуазные принципы
судоустройства и процесса. Военная реформа вводит всесословную всеобщую
воинскую обязанность. Вместе с тем либеральные мечты о конституции
остаются только мечтами, а надежды земских деятелей на увенчание системы
земств всероссийскими органами встречают решительное сопротивление
царизма.

Глава II Государственная служба в современной России

2.1 Понятие «государственная служба», ее цели и функции

В Федеральном законе от 31 июля 1995г. Дается краткое и строгое
определение понятия «государственная служба». В нем государственная
служба определяется как профессиональная деятельность по обеспечению
исполнения полномочий государственных органов. Об основах
государственной службы Российской Федерации: федер. Закон от 31 ибля
1995г. №119-ФЗ// Собрание законодательства Российской
Феденрации.-1995.-№31.-Ст.2990.-п.1ст.2 (Далее как ФЗРФ от 31 июля
1995г.)

В Федеральном законе от 27 мая 2003г. Дается более широкое определение,
под государственной службой понимается «профессиональная служебная
деятельность граждан Российской Федерации по обеспечению исполнения
полномочий: Российской Федерации; Федеральных органов государственной
власти, иных федеральных государственных органов; Субъектов Российской
Федерации; Органов государственной власти субъектов Российской
Федерации, иных государственных органов субъектов Российской Федерации;
лиц замещающих должности, устанавливаемые Конституцией Российской
Федерации, Федеральными законами для непосредственного исполнения
полномочий федерального государственного органа; лиц, замещающих
должности, устанавливаемые Уставами, Законами субъектов Российской
Федерации для непосредственного исполнения полномочий Государственных
органов Российской Федерации». О системе государственной службы
Российской Федерации: федер. Закон от 27 мая 2003г. №58-ФЗ// Собрание
законодательства Российской Федерации.- 2003.-№22.-Ст. 2063.-п.1 ст.1
(Далее как ФЗРФ от 27 мая 2003г.)

Государственная служба не только отражает задачи, Функции и основные
черты государства, но призвана обеспечивать их практическое
осуществление. Поэтому государственный служащий в рамках полномочий по
замещаемой должности всегда выступает от имени и по поручению
государства.

Государственная служба как вид профессиональной деятельности означает
непрерывное, преемственное и компетентное обеспечение исполнения
полномочий государственных органов лицами, находящимися на
государственных должностях. Государственная служба – это профессия для
государственных служащих, которая требует специальной подготовки,
получения специального образования. Поэтому принимаются «на постоянную
работу», им присваиваются квалификационные разряды, звания, ранги.
Ноздрачев А.Ф. Государственная служба: учебник для подготовки
государственных служащих/ А.Ф. Ноздрачев.- М.: «Статут», 1999.- С.37

Государственные должности государственной службы подразделяются на
группы, кроме этого государством устанавливаются перечни специализаций
должностей и квалификационные требования к лицам, замещающим данные
должности.

Причем можно отметить, что в квалификационные требования включаются,
во-первых, требования к уровню профессионального образования с учетом
группы и специализации должностей. Во-вторых, для лиц замещающих
государственные должности федеральной или претендующих на их замещение,
Указом Президента от 30 января 1996г. в целях обеспечения их высокого
профессионализма, единства предъявляемых к ним квалификационных
требований установлены требования по стажу и опыту работы. Эти
требования различаются в зависимости от группы должностей.

Таким образом, создан своего рода аналог петровской Табели о рангах,
который позволит установить существовавшую в прежние времена
чересполосицу должностей в различных ведомствах, когда одинаковые
функциональные обязанности мог исполнять как «специалист 1 категории»,
так и «ведущий», а то и «главный». Титов Ю.П. Хрестоматия по истории
государства и права России/ Ю.П. Титов.-М.: «Проспект»,1999.- С.204
Система категорий и групп государственных должностей закрепленных в
законодательстве, способствует улучшению всего управленческого процесса,
расстановке кадров в соответствии с их заслугами, стажем и опытом работы
по специальности, а также унификации денежного содержания по замещаемой
должности. Эта система является исходной для должностного продвижения и
профессионального роста государственных служащих.

Как уже отмечалось выше государственная служба – особый вид
профессиональной деятельности, и заниматься этой деятельностью можно
лишь в государственных органах, только государственные органы наделены
правом иметь государственных служащих. Под государственным органом
понимается составная часть государственного аппарата, образуемая в
установленном законом порядке и наделенная государственными
полномочиями, необходимыми для осуществления функций государственной
власти. Возникает вопрос об определении круга государственных органов,
профессиональная деятельность в которых считается государственной
службой. Следует ли к их числу относить лишь федеральные государственные
органы, а также соответствующие органы субъектов федерации либо добавить
и подведомственные им структуры, имеющие статус юридических лиц и
осуществляющие определенные управленческие функции, в частности в
регионах.

Возможность создания таких органов предусмотрена Конституцией РФ, где
указано, что федеральные органы исполнительной власти для осуществления
своих полномочий могут создать свои территориальные органы. Конституция
Российской Федерации. Принятая всенародным голосованием 12 декабря
1993г.// Рос. Газета.-1993.-25 дек.-ч.1 ст.78 (Далее как КРФ) Правовой
статус их в законе не указан. По мнению А.Ф.Ноздрачева, поскольку эти
органы создаются для осуществления полномочий исполнительной власти, их
правомерно именовать государственными органами, а профессиональную
деятельность по реализации их задач и функций следует считать
государственной службой. Ноздрачев А.Ф. Государственная служба: учебник
для подготовки государственных служащих/ А.Ф. Ноздрачев.- М.: «Статут»,
1999.- С.38

Каждый государственный орган уполномочен российским государством
осуществлять строго определенные задачи и функции. В этих целях
государство наделяет свои органы властными полномочиями. Сущность этих
полномочий состоит в том, что государственные органы имеют право
принимать общеобязательные решения. Властные полномочия государственных
органов находят свое воплощение в компетенции, закрепленной в
соответствующем нормативно-правовом акте и производной непосредственно
от государства.

Таким образом, согласно действующему законодательству государственная
служба осуществляется в государственных органах, правовой статус которых
определяется Конституцией РФ и законом, государственными служащими,
правовой статус и властная деятельность которых также детально
регламентируется законом и иными нормативными актами. Все это придает
государственной службе параметры крупнейшего публично-правового
института, имеющего решающее значение для формирования
государственности, осуществления государственной власти и воплощения
социальной роли государства в обществе.

В наиболее общем виде функции государства – это определяемые
конкретно-историческими условиями существования государства основные
направления его деятельности по управлению делами общества,
осуществляемой в присущих именно данному типу государства формах и с
помощью специфических методов.

Функции государства выполняют все государственные органы, реализующие
государственную власть. Соответственно выделяются виды государственной
деятельности, отличающиеся своим назначением, субъектами, методами и
формами осуществления государственных функций.

Под функциями государственной службы понимаются самостоятельные и
относительно обособленные основные виды государственно-служебных
действий.

Правоприменительная функция – это реальное претворение в жизнь
Конституции РФ, законов и иных нормативных правовых актов государства.

Правотворческая функция – это разработка и принятие нормативных актов.
Государственная служба проявляет себя также в процессе подготовки
законов в Федеральном Собрании и парламентах субъектов РФ.

Правозащитная функция – это обеспечение прав и свобод граждан.

Регулирующая функция – это разработка и реализация государственной
политики во всех областях жизни общества. Государственная служба
проявляет себя при подготовке разнообразных конкретных программ
государственной деятельности, принятии всех основополагающих
политических решений и при их реальном осуществлении.

Организационная функция – это обеспечение практической реализации
компетенции государственных органов, внутренней согласованности, их
стабильного функционирования и эффективного влияния на процессы в
обществе.

. Все функции реализуются в публично-правовой форме. Государство придает
общеобязательное значение государственно-служебной деятельности и
государственно-служебным полномочиям и доводит эти установления до всего
общества посредством законов и иных нормативно-правовых актов.
Государственная служба реализует свои функции в конкретных
правоотношениях, используя правоприменение и правоохрану. Таким образом,
весь механизм публично-правового регулирования выступает формой
реализации функций государственной службы.

2.2 Принципы и задачи государственной службы

Принцип – центральное понятие, руководящая идея, основание системы,
представляющее обобщение и распространение какого либо положения на все
явления той области, из которой данный принцип абстрагирован.

Государственная служба основывается на основополагающих принципах
организации и деятельности государственного аппарата, однако ей присущи
и специальные принципы, которые закреплены в Федеральном законе от 27
мая 2003г. ФЗРФ от 27 мая 2003г. Ст. 3

Все федеральные органы и органы государственной власти субъектов РФ
обязаны проводить в жизнь эти принципы. Государственные служащие обязаны
руководствоваться ими в своей работе.

Все принципы органически взаимосвязаны и отражают сущность, содержание
формы осуществления государственной службы. Принцип федерализма
обеспечивает единство системы государственной службы и соблюдения
конституционного разграничения предметов ведения и полномочий между
федеральными органами государственной власти и органами государственной
власти субъектов РФ. Этот принцип выражается в то, что федеральная
служба находится в ведении РФ, а государственная служба субъектов РФ
находится в их совместном ведении. КРФ п. «т» ст. 71, п. «л», «н» ч. !
ст.72 В рамках разграничения этих предметов ведения объем полномочий РФ
должен быть достаточным для организации государственной службы как
единого организационно-правового института государственной власти.
Реализация этого принципа объективно требует единого правового
регулирования основ организации государственной службы и основ правового
положения государственных служащих РФ.

Принцип приоритета прав человека и гражданина это еще и конституционный
принцип. Признание, соблюдение и защита прав и свобод человека и
гражданина – обязанность государства. Отсюда и обязанности
государственных служащих признавать, соблюдать и защищать права и
свободы человека и гражданина придается ранг основного принципа
государственной службы. В конечном счете, этот принцип определяет
социальный смысл и содержание служебной деятельности государственных
служащих. С учетом этого при отборе кандидатов на государственные
должности особое внимание должно уделяться их способности и готовности
учитывать в своей работе интересы граждан. Важно, чтобы государственный
служащий не только на словах, но и на деле защищал права и свободы
человека и гражданина.

Принцип равного доступа к государственной службе тоже является
конституционным. КРФ ч. 4 ст. 32 Он означает равный доступ граждан к
государственной службе независимо от пола, расы, национальности, языка,
происхождения, имущественного и должностного положения, места
жительства, отношения к религии, убеждений, и т.п.

Принцип профессионализма и компетентности обязывает государственных
служащих:

· быть постоянно готовыми к осуществлению должностных правомочий;

· хорошо знать предмет собственной государственно-служебной
деятельности;

· знать свои права и обязанности, активно, в полной мере и качественно
осуществлять функции и полномочия, предусмотренные законодательством
должностными положениями и инструкциями;

· владеть правилами и процедурами деятельности в органах государственной
власти;

· иметь общую и профессиональную подготовку;

· знать юридические и нравственно-этические нормы в сфере служебной
деятельности.

Осуществление этого принципа обеспечивается множеством законодательных и
иных нормативных правовых актов. Закрепляя этот принцип в качестве
ведущего начала государственной службы, закон признает, что положение
государственных служащих в значительной степени зависит от них самих,
поэтому они должны стремиться к достижению максимально высокого уровня
своей профессиональной деятельности.

Можно выделить еще такие не мало важные принципы, как законность,
взаимосвязь государственной службы и муниципальной службы, защита
государственных служащих от неправомерного вмешательства в их
профессиональную служебную деятельность как государственных органов и
должностных лиц, так и физических и юридических лиц.

Важен принцип верховенства Конституции РФ и федеральных законов. Как
было уже выше сказано, государственная служба субъектов РФ регулируется,
помимо федерального законодательства, законами и иными нормативными
актами субъектов РФ. Лишь опираясь на федеральное законодательство
субъекты Федерации, могут и должны иметь свое законодательство о
государственной службе. А в случаях, когда возникают коллизии в
законодательстве о государственной службе, следует руководствоваться
принципом верховенства Конституции РФ и федеральных законов над иными
нормативными правовыми актами.

ГЛАВА III ГОСУДАРСТВЕННАЯ ДОЛЖНОСТЬ ГОСУДАРСТВЕННОЙ СЛУЖБЫ, ИХ
КЛАССИФИКАЦИЯ.

При определении административно – правового статуса государственных
служащих особо важное значение имеет правильное понимание правового
значения и классификации государственных должностей государственной
службы.

В общем виде под должностью понимается учрежденная в установленном
порядке первичная структурная (организационная) единица, отражающая
содержание и объем полномочий занимающего ее лица. Эта
организационно-правовая категория присуща только служащим: другие группы
населения работают по специальности (например, рабочие в промышленном
комплексе), учатся (студенты, учащиеся) и т.д.

В Федеральном законе от 31 июля 1995 г. «Об основах государственной
службы Российской Федерации» дано понятие государственной должности в
современном ее значении в отличие от всякой другой – негосударственной.
Государственной называется только должность в федеральных органах
государственной власти, органах государственной власти субъектов
Федерации, а также в иных государственных органах, образуемых в
соответствии с Конституцией РФ, с установленным кругом обязанностей по
исполнению и обеспечению полномочий данного государственного органа,
денежным содержанием и ответственностью за исполнение этих обязанностей.

К числу «иных» государственных органов, образуемых в соответствии с
Конституцией, относятся: Центральный банк России, Совет Безопасности,
Администрация Президента и его полномочные представители,
дипломатические представители Российской Федерации в иностранных
государствах и международных организациях, Счетная палата, Прокуратура,
Аппарат Правительства, должности Уполномоченного по правам человека,
Председателя, заместителя Председателя, секретаря и члена Центральной
избирательной комиссии РФ, занимающего должность на постоянной основе, а
также территориальные органы, создаваемые федеральными органами
исполнительной власти для осуществления своих полномочий.

Понятие государственной должности является стержневым, основополагающим
для определения не только понятия «государственная служба», но и для
определения правового положения государственного служащего, порядка
прохождения государственной службы (способ замещения должности,
присвоение квалификационного разряда, прекращение государственной службы
и т.д.). При этом принципиальное значение имеет установленное
Федеральным законом от 31 июля 1995 г. деление государственных
должностей государственной службы.

Должность определяет круг служебных обязанностей, права и пределы
ответственности государственного служащего, требования к его
профессионально-квалификационной подготовке. Она отображает содержание
выполняемой служащим работы, определяет его правовое положение.

В целях обеспечения реализации законодательства РФ о государственной
службе и повышения эффективности кадровой политики в государственном
аппарате рядом указов Президента утверждены перечни государственных
должностей федеральной государственной службы (категории «Б» и «В»),
которые считаются соответствующими разделами Реестра государственных
должностей государственной службы Российской Федерации. Такие перечни
учреждены для обеспечения исполнения полномочий Президента, членов
Совета Федерации, депутатов Государственной Думы, федерального министра,
судей, деятельности Совета Безопасности, федерального органа
исполнительной власти и др.

Государственные должности, включенные в Реестр, подразделяются на
группы: высшие, главные, ведущие, старшие и младшие.

К Реестру приложены перечень специализаций государственных должностей
государственной службы и квалификационные требования к лицам, замещающим
эти должности.

Разумеется, что каждой из этих групп свойственны специфические
элементы, определяющие особенности правового положения служащих,
замещающих соответствующие должности, а также их квалификационные
качества.

Не все указанные должности учреждаются в каждом государственном органе.
В каких органах и какие именно из указанных должностей учреждаются
Реестром государственных должностей государственной службы. Например,
Реестром государственных должностей федеральных государственных
служащих, утвержденным Указом Президента Российской Федерации 11 января
1995 года, не предусматривается учреждение в Конституционном Суде
Российской Федерации высшей государственной должности.

Применительно к группам государственных должностей государственной
службы служащим присваиваются разряды и классы по результатам
государственного квалификационного экзамена или аттестации
государственного служащего: действительный государственный советник
Российской Федерации 1, 2 и 3 класса — государственным служащим высших
государственных должностей; государственный советник Российской
Федерации 1, 2 и 3 класса — государственным служащим главных должностей;
советник Российской Федерации 1, 2 и 3 класса — государственным служащим
старших должностей; советник государственной службы 1, 2 и 3 класса;
референт государственной службы 1, 2 и 3 класса — государственным
служащим младших должностей.

Мотиваций и критериев деления государственных должностей
государственных органов Закон об основах государственной службы не
содержит. Не усматривается также его связи с характером и объемом
полномочий государственных служащих, замещающих соответствующие
государственные должности государственной службы. Лишь частично эти
пробелы восполняются Положением о порядке присвоения и сохранения
квалификационных разрядов федеральным государственным служащим,
утвержденным указом Президента Российской Федерации от 22 апреля 1996
года № 578.

Однако несомненно, что каждой группе указанных должностей свойственны
элементы статуса, определяющие особенности правового положения
государственных служащих, замещающих должности данной группы, а также
требования к их квалификационному уровню.

Специализация предусматривает наличие у государственного служащего
соответствующего профессионального образования для исполнения
обязанностей по государственной должности государственной службы. Она
устанавливается в зависимости от функциональных обязанностей
государственных должностей государственной службы и особенностей
предмета ведения соответствующих государственных органов.

Квалификационные требования к служащим, замещающим государственные
должности государственной службы, включают следующее.

Во-первых, требования к уровню профессионального образования с учетом
группы и специализации должностей. Например, гражданам, претендующим на
высшие и главные государственные должности государственной службы,
необходимо иметь высшее профессиональное образование по специализации
государственных должностей государственной службы или образование,
считающееся равноценным, с дополнительным высшим профессиональным
образованием по специализации государственных должностей государственной
службы.

Во-вторых, для лиц, замещающих государственные должности федеральной
государственной службы или претендующих на их замещение, в целях
обеспечения их высокого профессионализма, единства предъявляемых к ним
квалификационных требований установлены требования по стажу и опыту
работы. Эти требования различаются также в зависимости от группы
должностей. Например, для замещения ведущих государственных должностей
требуется иметь стаж государственной службы на должностях, отнесенных к
старшим государственным должностям, не менее двух лет или стаж работы по
специальности не менее пяти лет и профессиональные качества
руководителя, необходимые для исполнения соответствующих должностных
обязанностей.

В-третьих, устанавливаются требования к уровню знаний федеральной
Конституции и федеральных законов, конституций, уставов и законов
субъектов Федерации применительно к исполнению соответствующих
должностных обязанностей. Кроме того, могут устанавливаться и другие
требования.

Существует и иная классификация. Государственные должности делятся на
три категории: «А», «Б», «В» (см. Рис.2.1.).

К категории «А» относятся государственные должности, устанавливаемые
Конституцией Российской Федерации, федеральными законами, конституциями,
уставами субъектов Российской Федерации для непосредственного исполнения
полномочий государственных органов Президент и Председатель
Правительства Российской Федерации, министры и др.).

К категории «Б» относятся государственные должности, учреждаемые в
соответствии с законодательством Российской Федерации для
посредственного обеспечения исполнения полномочий лицами, замещающими
государственные должности вышеуказанной категории.

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0c0c0c0c0c0c0c0c0c0c0c0c0c0c0c0c0102060403020101020c0c0c0808030308080808
080808080303030303030303030303030303030306060606060606060606060606060606
0501060d0104010602020202020202020202020202020202020202020202020202020202
020202020202020202020202020202020202020202020202020202020202020202020202
020202020202020202020202020202020202020202020202020202020202020202020202
020202020202020202020202020202020202020202020202020202020202020202020202
02020202020202020202020202020202020202020202020202020202020202000c000000
40092900aa000000000000007f01f40200000000040000002701ffff030000000000

Рис.2.1. Виды государственных должностей. Овсянко Д.М. «Административное
право» Учебное пособие для юридических институтов и факультетов – М.,
Юристъ, 1997г
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10d10dec090ffa21a26c0ff8d8a0a20c790f12602630b0c14d68e0009b8b701900bc1162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К категории «В» относятся должности, учреждаемые государственными
органами для исполнения и обеспечения их полномочий.

Должности категорий «Б» и «В» образуют государственные должности
государственной службы, с понятием которой и связывается служебная
деятельность лиц, замещающих такие должности. Государственные должности
категории «А» не признаются государственными должностями государственной
службы, следовательно, деятельность лиц, занимающих их, по осуществлению
полномочий соответствующих органов, не охватывается понятием
государственной службы.

Уяснение данного обстоятельства имеет принципиальное значение, ибо оно
указывает на то, что действие закона об основах государственной службы
не распространяется на лиц, занимающих должности категории «А» и они, с
точки зрения этого закона, не являются государственными служащими. Одним
из подтверждений этого может служить, то, что депутаты Государственной
Думы занимают должности категории «А», но они не могут находиться на
государственной службе (п. 3 ст. 97 Конституции Российской Федерации) и,
следовательно, не являются государственными служащими.

Представляется, что такое решение вопроса с депутатами следует отнести
к особому случаю. Что касается других лиц, занимающих должности
категории «А», то они являются государственными служащими, и их статус
должен быть урегулирован с учетом особенностей их должностного
положения.

Система должностей строится по иерархическому принципу, подразделяясь
на следующие пять групп:

а) высшие государственные должности государственной службы – пятая;

б) главные государственные должности государственной службы – четвертая;

в) ведущие государственные должности государственной службы – третья;

г) старшие государственные должности государственной службы – вторая;

д) младшие государственные должности государственной службы – первая
группа.

Применимо к группам государственных должностей государственной службы
служащим присваиваются разряды и классы по результатам государственного
квалификационного экзамена или аттестации государственного служащего:

а) действительный государственный советник РФ 1,2 и 3 класса –
государственным служащим высших государственных должностей;

б) государственный советник РФ 1,2 и 3 класса – государственным
служащим главных должностей ;

в) советник РФ 1,2 и 3 класса – государственным служащим старших
должностей ;

г) советник государственной службы 1,2 и 3 класса , референт
государственной службы 1,2 и 3 класса – государственным служащим младших
должностей.

ГЛАВА IV Понятие и виды государственных служащих

В соответствии с законом об основах государственной службы
государственным служащим является гражданин Российской Федерации,
исполняющий в порядке, установленном законом, обязанности по
государственной должности государственной службы за денежное
вознаграждение, выплачиваемое за счет средств федерального бюджета или
средств бюджета соответствующего субъекта Российской Федерации. Таким
образом, признаки государственного служащего сводятся к тому, что он:

а) гражданин Российской Федерации;

б) замещает государственную должность в государственном органе;

в) замещает в таком органе должность государственной службы;

г) выполняет обязанности, определяемые данной должностью;

д) получает за их выполнение денежное вознаграждение за счет средств
бюджета.

Лица, занимающие должности в государственных органах, а также на
государственных предприятиях, в учреждениях и организациях, но не
характеризующиеся указанными признаками, по Закону об основах
государственной службы, государственными служащими не являются.

Через государственных служащих реализуются полномочия государственных
органов во всех сферах жизни общества.

Однако состав государственных служащих неоднороден, их функциональное
назначение по реализации полномочий государственных органов разнообразно
и трудятся они в неодинаковых условиях. Поэтому их можно подразделить на
определенные группы по различным критериям (см. Рис 3.1.).

1. По масштабу деятельности органов государственной власти, где они
служат, государственные служащие могут быть разделены на федеральных
служащих и служащих субъектов Федерации.

Характер деятельности федеральных государственных служащих вытекает из
полномочий соответствующих федеральных государственных органов:
Администрации Президента, Аппарата Правительства, аппаратов палат
Федерального Собрания РФ и т.д.

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