3. PERFORMANCE ASSESSMENT INDICATORS

In order to determine the effectiveness of the social program, final analytical and financial reports are provided for the completed activities and other events implemented within the program, showing the following indicators:

Quantitative indicators are determined by:

Number of supported programs in the field social protection, healthcare, education, youth initiatives, culture, etc.;

The number of concluded contracts (based on financing according to estimates);

The number of events carried out during the implementation of programs (events include: conferences, seminars, trainings, consultations, etc.);

The number of people who took part in the implementation of program activities (number of men and women, labor veterans);

The number of organizations and institutions that received support for initiatives (indicate the name, number of employees and main type of activity);

The number of organizations of all forms of ownership involved in the implementation of supported programs (indicate the organization, manager and type of activity).

Qualitative indicators are determined by:

Profile of newly created public associations, non-profit organizations;

Conditions of the new jobs created (indicate for what professions and how many places, type of payment and work);

The composition of those who took part in various training events;

The nature of the scientific research performed on various program activities (direction of research, quantitative and qualitative results, authors).

Currently, there is no unified system of methods for assessing the effectiveness and quality of institutions. social services or social service systems in a certain territory. All proposed assessments are not comprehensive, covering only one aspect (or some aspects) of the activity of the object under study.

Thus, quantitative indicators of population coverage with social services, accessibility of institutions, and the range of their functions do not give an idea of ​​​​the qualitative side of the object; Subjective assessments by clients of the activities of social services are quite important, but, as management theory has long established, they mainly reflect their emotions (complaining or admiring most often are those who have discovered some deviations for the better or worse, or persons with a special character). Finally, the degree to which the population perceives the need for social services significantly influences the nature of the assessment given by clients. Therefore, although constant research into the opinions of clients is a mandatory part of the activities of social services, professionals social management should be well aware of the relativity of the results obtained using such tools. Among the assessment methods, social expertise should also be mentioned.

Assessing the current state of a social facility involves solving the following problems:

Analysis using selected evaluation criteria of the strengths and weaknesses of activities, characteristics of the management system of a social facility, its material base, determination of the degree to which an institution or body is staffed with professional personnel, expansion prospects, etc. (diagnostic tasks);

Ranking of shortcomings in the institution’s activities: shortcomings that can be eliminated within the system itself, by the employees of this facility; deficiencies that cannot be eliminated by the employees of this facility;

Determining the place of a social object in the social structure of the subordinate territory; modeling its connections with other objects or systems of the social sphere involved in the transformation process.

The stage of assessing the current state of a social object in the process of preparing a program for its transformation is one of the key ones. The result of such an assessment and the conclusions formulated on its basis constitute the final baseline position for the entire subsequent design procedure. In this regard, conclusions must be reliable, objective and complete. They are designed to motivate the manager to act, to create in him an idea of ​​the real prospects for the development of a social object, to demonstrate what can be achieved in a specific situation, what problems cannot be solved without involving other resources of the social system.

The economic management subsystem is a set of economic levers with which to achieve economic effect. In contrast to the organizational and administrative subsystem, the economic management subsystem involves the development of general plans - economic indicators and the means to achieve them. This is a kind of economic mechanism in economic relations. As a result of increasing the effectiveness of economic levers and incentives, conditions are created under which the workforce and its members are encouraged to efficient work not so much by administrative influence (orders, directives, instructions, etc.), but by economic stimulation.

Targeted programs have a great effect in economic management. Solving primarily economic problems, targeted programs in connection with this and on the basis of this solve many different social programs. Social activities of any target program are aimed at improving people's living conditions; they are designed to prevent or reduce social tension and prevent social conflicts.

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"HR Officer. Personnel Management", 2008, N 10

The most important tool for managing an organization’s social programs is the internal and external assessment of the effectiveness of social programs, on the basis of which the organization’s management makes a decision either to prepare new social programs in the implemented areas in the event of their successful implementation, or to determine new priorities for social programs in the event of their ineffective implementation.

We propose to evaluate the effectiveness of an organization’s social programs in three aspects:

1. based on a combination of quantitative and qualitative indicators;
2. on the ratio of costs, benefits and long-term impact of the results of social programs;
3. if possible, apply methods to achieve the effectiveness of the organization’s activities as a result of the implementation of corporate social programs.

Dictionary of personnel management. An organization's social programs are sets of measures linked by resources, implementers and implementation deadlines that provide an effective solution to priority corporate social problems (internal corporate social program) or external social problems of the host territory (external corporate social program).

Assessment - based on a combination of quantitative and qualitative indicators

All areas of social programs should be assessed primarily by a combination of quantitative and qualitative indicators (Table 1).

Table 1

Indicators for assessing the effectiveness of the organization’s social programs in the main areas

N p/p	Direction social programs organizations	Indicators of effectiveness of social programs within this direction
1.	Staff development	- number of managers and specialists, those who have undergone retraining; for training and retraining of personnel; - average level wages personnel; - number of workers who have undergone training; provision social package and bonus payments to staff; - number of training hours per person employee
2.	Health and safe conditions labor	- number of employees who received vouchers to rest homes, sanatoriums, dispensaries, etc. at the expense of the organization; - the amount of funds allocated by the organization for employee medical care at the enterprise; - the amount of funds allocated by the organization on occupational health and safety; - the amount of funds allocated by the organization to maintain sanitary and hygienic and ergonomic working conditions; - the amount of funds allocated by the organization to support motherhood and childhood
3.	Socially responsible restructuring	- number of retrained employees from among those released from the organization; - the amount of funds allocated by the organization for severance pay; - the amount of funds allocated by the organization for retraining of laid-off employees; - the amount of funds allocated by the organization to facilitate the employment of released employees
4.	Environmental activities and resource saving	- number of landscaping campaigns carried out, cleanup days and other similar events; - the amount of funds allocated by the organization to organize an environmentally friendly production process; - the amount of funds allocated by the organization for the construction of treatment facilities
5.	Local development communities	- the amount of funds allocated for participation in charity events; - the amount of funds allocated by the organization for carrying out support programs and events socially vulnerable segments of the population; - the amount of funds allocated by the organization to sponsor local cultural, educational and sports facilities and events; - the number of people who received in one or another form of assistance from the organization; - the amount of funds allocated by the organization to support childhood and youth; - the amount of funds allocated by the organization to support housing and communal services and objects of cultural and historical significance; - the amount of funds allocated by the organization to support socially significant research and campaigns
6.	Conscientious business practice	- the amount of funds allocated by the organization to publish information about the organization for business partners, clients and others parties (corporate website, information brochures, etc.); - the amount of funds allocated by the organization to conduct cooperation programs with authorities public administration, associations consumers, professional associations and other public organizations; - the amount of funds allocated by the organization for training of suppliers, business partners and others interested in the activities of the organization parties; - the amount of funds allocated by the organization to carry out small business assistance programs

It should be noted that the sequence of the named indicators reflects their significance from the point of view of providing information about social programs.

It is possible to identify general economic trends in the development of the above indicators in Russian Federation, which differ significantly from foreign trends due to the specifics of development market economy and Russian mentality. Organizations should take into account the following trends not only when assessing, but also when forming their social programs, since even the most large-scale expenditures on internal and external social programs may turn out to be ineffective due to their irrational distribution within each direction or misrepresentation when assessing their economic and social efficiency.

For example, in the direction of personnel development, the indicator of the number of employees who have undergone retraining is currently coming to the fore, and the indicator of the amount of funds allocated for retraining is relegating to the background. This situation means that organizations abandon the stereotype of assessing the effectiveness of investments only by the volume of invested funds. At the same time, such an indicator as the number of workers who have undergone training should be considered unimportant, since this shows an undesirable tendency to hire unqualified personnel. Also, the number of hours of training per employee is not paramount, since organizations may receive different returns from different types and training programs, including their duration. As for the indicator of the average salary level in an organization, at the present stage it is important when we are talking about middle and lower-level personnel, since the salary level of top management is very individual and depends on a number of objective and subjective factors.

In the area of ​​health and safe conditions Labor indicators of the total amount of funds allocated for medical care at the enterprise are less important than, for example, indicators of the number of employees who received vouchers for treatment in sanatoriums and dispensaries at the expense of the organization.

In the direction of socially responsible restructuring, the indicators of the number of retrained employees from among those released from the organization, the amount of funds allocated by the organization for severance pay, and the amount of funds allocated by the organization for the retraining of released employees are approximately equal in importance.

In the area of ​​environmental protection and resource conservation, one indicator is characterized by the predominance of one indicator - the number of landscaping campaigns, community cleanups and other similar events - over the rest. This confirms the fact that investments in organizing an environmentally friendly production process, wastewater treatment plants and other investments have not yet taken their rightful place in the costs of environmental activities of organizations and are assessed by the public and stakeholders as secondary.

The direction of development of the local community is characterized by the allocation of an indicator of the volume of funds for participation in charitable events; this type is most developed within this direction in Russian organizations, since it is the most valuable from the point of view of local authorities. At the same time, the indicator of the volume of funds allocated to support housing and communal services facilities, which in Russia were previously attached to industrial enterprises, occupies an ambiguous position. On the one hand, organizations realize the importance of this indicator, but on the other hand, they accept it as a burden from which they have recently successfully gotten rid of.

Finally, in the area of ​​good business practice, the priority indicator is the information openness of the organization and, therefore, the amount of funds allocated to the publication of information about the organization. But it should be noted that Russian organizations still approach the assessment of their information openness rather formally, and the quality and depth of the information provided leaves much to be desired. In general, this area in the Russian Federation is much less popular than, for example, the area of ​​personnel development, and therefore is rather poorly developed.

In general, when assessing the effectiveness of a social program based on a set of quantitative and qualitative indicators, taking into account the identified trends, the following can be noted. The greater the quantitative significance of the most significant indicators of each direction, the more effective this social program is from the point of view of the parties interested in it and the existing features of the economic development of society at the present stage.

Evaluation - based on cost, benefit and long-term impact of results

In addition to comparing the indicators described above, it is advisable to evaluate the organization’s social programs based on the ratio of costs, results and long-term impact of social programs on the organization’s activities.

The organization's expenses for social programs include:

• financial resources;
• temporary resources;
• material resources (equipment, telephones, Internet, etc.);
• volunteer work and donations from the organization's employees.

The results obtained during the implementation of social programs include:

• attracted additional resources (for example, budget funds, private donations, resources of program implementation partners);
• concrete positive results in solving current social problems;
• benefits received for business development (all those specific benefits that we talked about in the first chapter of the study).

The long-term impact of the results of social programs is manifested in:

• positive changes in public opinion and situation;
• contribution to the strengthening and development of the business as a whole.

The peculiarity of assessing the effectiveness of social programs is that if the results can be assessed within one year, then the assessment of the results is possible only after the completion of the program. At the same time, long-term impact requires careful analysis of all investments made in the program, as well as the direct and indirect results identified in the years after its completion.

Analyzing these results, the organization’s management must evaluate the effectiveness of the social program:

1. from an economic point of view;
2. from a social point of view;
3. from the point of view of benefits for business development and decide on the advisability of implementing social programs in these areas in the future.

Assessment - if possible, applying methods to achieve the effectiveness of the organization’s activities as a result of the implementation of corporate social programs

In this aspect, it is possible to assess how the results and long-term impact of the organization’s social program influence the achievement of the organization’s performance through indicators of its core activities: financial indicators, reduction of operating costs and development of personnel policies and corporate culture.

1. Improvement financial indicators.

Effective social programs, as a rule, do not have a direct impact on profit growth. An organization's social policy and social programs are, by definition, non-profitable in nature and therefore should not be based on the main argument of increasing profitability.

However, numerous studies conducted in the USA and European Union countries (in particular, monitoring by Business for Social Responsibility in the USA and London Benchmarking Group in the UK) confirm that organizations that have implemented a well-thought-out social responsibility policy show higher profits compared to competitors operating in the same market segment.

Russian corporate social practice also shows that effective social programs influence an increase in the organization’s capitalization, profit growth, and cost reduction when expanding a business, including geographically.

Brands of organizations known for their social programs evoke positive associations, a positive image, which affects sales growth, and also influences such an important factor as the stability of demand, the attachment of consumers (especially the population) to this or that brand, this or that product of the organization.

Several factors can be identified that influence the improvement of an organization’s financial performance, which are directly related to the organization’s social programs. An assessment of these factors in comparison with the volume and content of social programs shows the level of relationship between the quality of social programs and improved financial performance. Among these factors are:

• increasing trust in the organization from partners and consumers;
• increasing the trust factor when choosing a product or service;
• "patriotism" of consumers, commitment to the organization's products;
• recommending goods or services of this organization to other consumers;
• increasing worker productivity due to reduced social tension;
• growth in the value of the organization's shares;
• reducing the vulnerability of the organization, the number of conflict situations with the authorities, the press, and non-profit organizations;
• competitive advantages when participating in tenders.

1. Reduce operating costs.

As a rule, most Russian organizations perceive the costs of social programs as increased costs and forced expenses. However, mechanisms have already been developed and are being implemented to significantly reduce these costs and even, in some cases, bring social programs to self-sufficiency.

These include, for example, grant programs.

Most organizations in Russia receive dozens and hundreds of requests for help every year. Answering these requests takes a significant amount of time for the organization’s employees, and large structures are forced to employ special workers whose task is to analyze requests for help. At the same time, more than 90% of requests, as a rule, are refused, which negatively affects the image of the organization and reduces trust in it on the part of consumers and the population as a whole.

One of the alternatives to analyzing the flow of requests was the creation of Russian organizations’ own grant programs.

The grant program, which involves the allocation of funds for social programs on a competitive basis, changes, first of all, the very philosophy and principles of allocating funds. Funding for the organization is received not by those who applied earlier or brought more signatures of local authorities on their letter, not by those who were more convincing in the manager’s office, but by those organizations and people who were able to prove that they can solve the problem better, cheaper and more efficiently than others . The approach of the grant competition, which implies financing not a problem, but its solution, not only coincides with the general philosophy of business: the desire for success, the creation of a new product, but also helps reduce the costs of implementing social programs.

1. Development of personnel policy and corporate culture.

According to representatives of recruitment agencies, Russia is currently experiencing a recruiting boom: a highly qualified specialist who is in demand on the labor market often receives several offers at once and can choose the organization himself. Moreover, in this situation, he is interested not only in the size of the salary (the cost of a specialist in the market is relatively standardized), but also closely studies the organization as a whole: mission, values, attitude towards society, relationships in the team, working conditions and training opportunities, relations with competitors and partners, labor protection, environmental concerns, etc. In other words, a potential employee studies the organization's social responsibility policies, rightly believing that in this way he will be able to determine how comfortable he will feel in a new place.

Western companies have been considering their HR strategy through the prism of social responsibility for several years now, having become convinced of the effectiveness and economic benefits of this approach. It is multifaceted and includes a number of aspects: from the development of corporate culture and ethics to issues of respect for human rights and production safety, but the main thing is that all the stated principles of the organization’s activities are a guide to action, they actually contribute to strengthening the team, and are not declarative in nature. In some Russian organizations, the situation looks exactly the opposite - everything is spelled out and officially accepted - right down to the corporate colors of employee clothing, and staff turnover does not decrease.

Research shows that there is a clear relationship between employee loyalty and the size of his salary, but most experts do not agree that loyalty is simply bought: sometimes people move to a new job with a decrease in wages. The level of loyalty consists of various factors and largely depends on the employee’s sense of personal comfort in the organization. That is why social programs aimed at increasing loyalty must work comprehensively, without being limited to a system of gradual salary increases.

International practice shows that social programs in the implementation of which employees of an organization are involved can become an important additional tool of personnel policy, with the help of which management can positively influence each employee, developing and securing him in the organization. If we continue the bright and laconic definition of the concept of corporate culture as social glue, then social programs are one of the important components of this unique corporate tool. An effective social program does not waste money, but brings profit to the organization by attracting and retaining the best talent.

"Experimental field" of the reader

Viktor Agafonov, HR Director, AMO ZIL

• To be competitive, any organization must implement social programs, and, of course, we have them. These are programs for training and development of personnel, health protection and creation of safe working conditions for workers, cultural development, environmental protection, etc. We know how much money we invest in a particular program, we keep certain statistics and, of course, analyze the effectiveness of our investments. Sometimes this is not difficult to do, for example, when it comes to a program for health protection and the creation of safe working conditions - here any investment pays off as necessary (for example, for the purchase of funds personal protection), and additional (maintaining your own health center), all of them work on prevention and can be measured quantitatively (the number of industrial accidents, diseases, etc.). There is no doubt that the program works. Or let’s take a personnel training and development program - we can name the number of managers and specialists who have undergone retraining, and the number of training hours per employee. The effectiveness of the program lies primarily in the fact that we provide our production with the necessary specialists, but in general the educational level of the organization increases, which indicates its potential. Some programs have quick results, others are designed for long-term impact and are aimed, as the author says, at strengthening and developing the business as a whole. And of course, one cannot but agree that an organization’s personnel policy in the field of social responsibility is an important factor in resolving employment and employment issues.

Of course, it would be interesting to trace some direct dependence of the economic indicators of an organization on the implementation of a particular social program and investments in it, in order to possibly redistribute funds, but this is a wish for scientists - to develop and give us, practitioners, such an algorithm.

Literature

1. Information openness of social policy Russian companies. - M.: Association of Managers, 2004.
2. How to fulfill a social order? Guidelines. - Perm: Agency "Style-MG", 2000. P. 100.
3. Konovalova L.N., Korsakov M.I., Yakimets V.N. Management of the company's social programs / Ed. S.E. Litovchenko. - M.: Association of Managers, 2003.

N. Nenashev

State tax inspector

Federal Tax Service of Russia for the Kaluga Region

As a rule, the social and socio-economic effect of social programs is expressed in improving the quality of life of citizens and society as a whole. Ultimately, in the process of implementing social projects/programs, pressing problems of a social nature are most often solved: reducing poverty, mortality, reducing the number of homeless people, etc.

Monitoring program at all stages of the cycle is an important condition for the success of the program, which is a kind of accompanying assessment. The main purpose of monitoring is to provide information for making adequate management decisions during the program. But to answer the question “Why did it happen this way or that way?” or “What now?” It is not enough to monitor the situation on a daily basis; in this case, it is advisable to aggregate information and analyze the data more deeply. To draw a conclusion about the effectiveness and efficiency of a social program, it is necessary to evaluate its impact across different criteria-indicators : as indicators, such indicators as a decrease in morbidity, an increase in the educational level, a decrease in the number and composition of risk groups, an expansion of the scope of activities of persons with disabilities, an improvement in the quality of the natural environment and others are often used (there are different indicators process, results, influence). In general, developing indicators for social programs requires a clear understanding of the program's goals and in-depth knowledge of the problem. For example, the following indicators were used to evaluate the poverty reduction program in Tanzania: the ratio of boys to girls in primary school, literacy of the population under the age of 15, the proportion of the population with access to drinking water and etc.

Before evaluating a program, a number of questions must be identified to which it is planned to answer: - what are the actual results? - the main achievements of the program? - are there prospects for continuing work on this direction?

Thus, the information content and high degree of significance of the assessment results are ensured (their relevance in the future).

As a rule, government programs have complex problems, which serves as the basis for the complex structure of both the program itself and the evaluation system. For example, the problem of poverty can be divided into three components: economic, social and environmental. Thus, performance indicators should also be structured along three dimensions. The long-term nature of social programs (5-7 years) leads to the need to provide for some flexibility and, for example, revise some indicators or methods of collecting information in accordance with the changing situation.

The evaluation mechanisms for most of the programs are only at the development stage, or are not capable of objectively assessing the program according to all the necessary parameters. The problem that most program developers face is the qualitative lack of content of quantitative characteristics, indicators, and performance indicators.

Introduction

Conclusion

Bibliography

Applications

Introduction

The relevance of the problem under study is explained by the importance of using modern tools for analyzing the effectiveness of budget expenditures in the social sphere, as well as the value of the results obtained for state and municipal governments, solving the problem use of limited budget funds.

The peculiarity of assessing the effectiveness of social programs is that if the results can be assessed over a certain period of time, then the assessment of the results is possible only after the completion of the program.

It is no secret that among the most pressing problems in the social sphere, the problem of underfunding of both existing and developing programs is most often mentioned. At the same time, it is forgotten that, despite the relevance of this problem, financing is just a resource necessary to achieve the final result - reducing social tension in society, increasing the well-being and economic independence of needy families. Opacity of budgets and exclusive attention to resources can be considered the most serious factors affecting the effectiveness of policy decisions and the ability of municipalities to improve the quality of social services. Even if the actual results of service or provision of social assistance are known to a municipal institution, social worker or employment service employee, management bodies, as a rule, do not require a report from them and, therefore, do not pay for the result, but at best for the process or - at worst - for demonstrating the process. At the same time, there are no effective mechanisms for motivating the service or assistance provider to achieve results, as well as ensuring his responsibility for achieving them.

social program Russian politics

One of the available tools for changing the current situation and shifting attention to the effectiveness of budget expenditures is the evaluation of social programs. The assessment not only attracts the attention of municipal authorities to diagnosing the results achieved and the effect obtained (both qualitative and quantitative methods), but also improves the analytical base and improves the culture of municipalities. It allows you to ask the right and timely questions, develop analytical approaches to decisions about spending budget funds and developing or adjusting social policies.

The object of research is social programs.

The subject of the study is criteria for assessing the effectiveness of social programs in Murmansk.

The purpose of the study is to evaluate the effectiveness of social programs and find ways to improve the efficiency of their implementation.

This goal involves solving the following tasks:

) determine the essence of social policy;

) identify the most important theoretical aspects drawing up socially significant projects and programs;

) explore the regulatory framework on the basis of which social projects and programs are developed in the Russian Federation, regions and municipalities;

) to study the practice of the Committee for Health and Social Support of the Population of the Murmansk City Administration in drawing up, implementing and monitoring socially significant projects and programs; analyze available methods;

) identify ways to improve the process of assessing the effectiveness of social programs implemented in the city of Murmansk.

The scientific research methodology is as follows:

a systematic approach that allows you to study social programs as a system consisting of established principles, successive stages, methods, means and techniques for implementation and monitoring of implementation;

humanistic principle aimed at recognition in modern society a person as a basic value, and a social program as a means to improve the quality of his life;

a structural approach that regulates the composition of successively implemented steps aimed at achieving the goal of drawing up social programs;

a functional approach that allows one to adequately assess the true usefulness and quality of the implementation of social programs.

The following methods were used during the research:

synthesis, which makes it possible to combine disparate elements of social programs into a single whole;

analysis, on the basis of which it is possible to decompose the goal-setting process (decompose the whole of each of the social programs into its component parts), highlight the stages of design, drafting, implementation, implementation and control;

a generalization that made it possible to group the existing principles for drawing up social programs, methods for drawing them up and available techniques for monitoring their implementation at the municipal level;

comparison, on the basis of which the main difference in the definitions of “project” and “program” was established, an analysis of existing social programs was carried out;

differentiation, which made it possible to identify types of social projects and programs;

integration, on the basis of which social programs take the form of a single whole and can be combined into groups - depending on their goals.

Theoretical basis research was the works of A.G. Voronina, V.B. Zotova, V.N. Ivanova, E.A. Utkin and others, who studied in detail the problems of theory and practice of municipal management and management, including in the social sphere; N.N. Znamenskoy, V.E. Rokhchina, M.V. Sviridenko, based on systematic approach developing technologies for strategic planning of a standard program for the comprehensive socio-economic development of a municipal formation-settlement, which includes as mandatory subsections: “Quality of life of the population”, “Support for low-income citizens” (pensioners, disabled people, large families, single-parent and young families, the unemployed); A.V. Kuzmin, who deals with the practice of researching the effectiveness, evaluation and monitoring of social projects and programs.

The information base for the study was regulatory documents, in particular, the Constitution of the Russian Federation, the Budget Code of the Russian Federation, Federal Laws of the Russian Federation: “On State Social Assistance”, “On Social Protection of Disabled Persons in the Russian Federation”, “On the Fundamentals of Social Services for the Population”, "On social services for elderly citizens and disabled people", "On the budget of the social insurance fund in the Russian Federation for 2008 and for the planning period of 2009 and 2010"; "On placing orders for the supply of goods, performance of work, provision of services for state and municipal needs"; Law of the Murmansk region "On municipal service in the Murmansk region", Resolutions of the administration of the city of Murmansk: "On approval of the regulations on the committee for health care and social support of the administration of the city of Murmansk", on approval of departmental and municipal target programs, etc.

It is advisable to include the following provisions for defense:

The most important direction for improving the quality of life of the population of a municipality in the context of administrative and social reforms is the development of social programs - with a subsequent transition to social services in the form of placement and implementation of municipal social orders on the principle of payment for services actually provided (based on results).

The main problem of existing social programs is the lack of content of their quantitative characteristics and performance indicators, therefore, improvement of the development and compilation methodology should be carried out, first of all, in the block of assessing performance indicators and monitoring.

The practical significance of the study lies in the possibility of using recommendations by managers and specialists of the Committee for Health and Social Support of the Population of the Murmansk City Administration in the development and implementation of social programs and monitoring their implementation.

The work structurally consists of: introduction, three chapters, conclusion, bibliography, appendices.

The first (theoretical) chapter examines the theoretical aspects of drawing up social programs, in particular: it characterizes the regulatory framework, types of social projects and programs, and identifies the role of municipal procurement as a form of providing social services to city residents on a contractual basis with guaranteed sources of financing.

The second (analytical) chapter is devoted to the methods of drawing up social programs used in the activities of the committee for health and social support of the Murmansk city administration to develop social programs, technology for evaluating social programs, their monitoring and audit.

The third (recommendatory) chapter contains the results of an analysis of the work of the Committee on Health and Social Support of the Murmansk Administration in developing social programs, assessing their effectiveness, and suggests ways to improve the assessment of the effectiveness of social programs.

Chapter 1. Theoretical aspects of assessing the effectiveness of social programs

1.1 The essence and purpose of social policy in the Russian Federation

Social policy is usually understood as a set (system) of specific measures and activities aimed at supporting the livelihoods of the population. Social policy is a system of measures aimed at implementing social programs, maintaining incomes, living standards of the population, ensuring employment, supporting sectors of the social sphere, and preventing social conflicts.

The goal of social policy is to create a favorable social climate and social harmony in society, conditions that ensure the satisfaction of the basic vital needs of the population.

Social policy is a multifaceted process and a structurally complex phenomenon. Based only on one or two indicators and criteria, albeit very important ones, for example, the level of wages, unemployment, etc., it is problematic to give a real and comprehensive assessment of its condition.

The main elements of social policy, included in a large single complex - the social and labor sphere, are sectors of the social sphere (education, healthcare, culture, sports, tourism, housing and communal services, etc.); labor market, employment, unemployment; social partnership; social protection; wages and labor protection; social insurance; pension system, etc.

Social policy at the federal level, at the level of the subject of the Federation and the relevant government bodies is more of a framework, normative-setting nature (relevant laws, decrees, resolutions, etc. are worked out and adopted). Real, specific social policy is carried out “face to face with a specific person,” as a rule, at the district, municipal and corporate level. It is here that it finds its final embodiment and records its effectiveness and impact.

For many years, social policy in Russia remains the weakest link in government at all levels, causing discontent among various segments of the population, political parties, and social movements. This is largely due to its focus on social management technologies in the aspect of real social policy. This policy can be characterized:

) as a concept and program of action of the state and officials representing it (president, chairman of the government, regional leaders, etc.) and legal entities (legislative and executive bodies authorities at all levels, specific social systems and services), parties, movements, individual political leaders;

) as an actually implemented complex social technology in a given social time and specific territorial-legal space (administrative-territorial entity: country, region, region, city, etc.).

It is characterized by:

low causality and pronounced situationality. As a result, the actions taken are primarily aimed at solving crisis or pre-crisis social situations. They are largely aimed at mitigating the socio-political resonance caused by these situations;

secondary to the economy and socio-economic processes, due to which its direct dependence on financial and economic resources;

focus on maintaining existing state power, and therefore preferential support for stable social interests of classes, social groups and layers on which the stability of power depends;

dependence on the understanding of the essence and content of real social policy by government leaders and civil servants;

relatively insignificant dynamism;

the predominant use of a program-targeted mechanism for managing the social sphere, focused on relatively short time implementation of programs.

The main ways to implement real social policy are to use legal, economic, financial, socio-psychological, organizational, technical and information means and levers to provide citizens with minimal social guarantees, prevent social explosions, mitigate possible negative consequences of reforms in various spheres of people’s lives, carried out by the current government.

Without detracting from the importance of real social policy, it should be recognized that such an approach does not allow building state management institutions that are primarily aimed at preventing, anticipating crisis situations, social risks, the occurrence of which leads to the need for large-scale social assistance, support and protection. In this regard, strategic planning should become relevant for Russia and its individual regions - the process of selecting goals and decisions necessary to achieve them in a distant space-time dimension. In this process, long-term social programs take on a leading role.

1.2 Concept and purpose of socially significant projects and programs

When identifying the essence and purpose of socially significant projects and programs, it is first necessary to note the relatedness of the concepts they describe. This similarity of concepts, which almost all researchers point out, obviously gives rise to the first difficulty that developers of social programs at the municipal level face.

A project is a developed plan, a preliminary text of a document. In a more modern understanding, a project is not only the plan itself, but also the activity to implement the specified plan in real conditions. A program (from the Greek programma - announcement, order, order) is a plan of activity, work, the content of the main provisions and goals, and this activity itself, aimed at achieving a specific goal (changing a certain situation) in a limited time and using predetermined resources.

These definitions, as we see, very vaguely delimit the concepts they describe; There is no clear difference between the concepts of “social project” and “social program”. A social project is both an activity for drawing up a socially significant program within the framework of strategic planning for the socio-economic development of an urban settlement, and, in fact, a product of this activity, created on the basis of a systematic approach and designed on the basis of established methodological concepts.

Social program - a program aimed at solving one or another social problem. As a rule, the social and socio-economic effect of social programs is expressed in improving the quality of life of citizens and society as a whole. Ultimately, in the process of implementing social projects/programs, pressing problems of a social nature are most often solved: reducing poverty, mortality, reducing the number of homeless people, etc.

The main distinguishing feature of a social program is that the basis of any of them is the principle of goal setting. The goal of the social program is to achieve scientifically based predictable results, determined qualitatively, quantitatively and in time.

The goal being pursued is to improve the quality of life of the population of the municipality. In this regard, the definition of “targeted social program” seems relevant.

A targeted social program is a set of activities linked by resources, implementers and deadlines, developed in order to meet the municipal social needs of the city through full or partial financing from the city budget and city extra-budgetary funds, etc.

Further, within the framework of the subject of this study, it seems advisable to clarify the existing difference between the concepts of “social project” and “social program”: it is necessary to consider the first of the given definitions as private in relation to the second: a social program can contain several different in degree of significance and carried out at different times social projects. At the same time, within the framework of the social program, various activities provided for by its objectives are carried out.

There is a difference between a project and a social program. It lies in the fact that the draft social program is just a phase, a stage of its construction. At the project stage, the social program is proposed to the relevant competent authorities for consideration. In the future, if the draft social program is approved, the social program itself is drawn up on its basis - for its subsequent implementation within the established time frame.

The above allows us to formulate a “working” (basic) definition for this study: a social program is a forecast and project document containing a set of activities and projects aimed at achieving the main goal of maintaining the necessary quality of life for socially vulnerable segments of the population and linked by resources, implementers and deadlines implementation.

The purpose of the social program is as follows:

solving the most important social problems of the population of the municipality through the formation of a coordinated system of measures;

ensuring the achievability of the intended goals of additional social security for the population in the near future, determined, as a rule, by a time horizon of 1-3 years;

ensuring the rational implementation of the interests of various subjects of management and social policy in the municipality in the process of socio-economic development of the settlement based on compliance with the principle social partnership.

The timing of the social target program may be different: respectively. The program can be short-term or long-term.

Article 179 of the Budget Code of the Russian Federation (hereinafter referred to as the Budget Code of the Russian Federation) provides for long-term target programs. Based on clause 1 of Article 179 of the Budget Code of the Russian Federation, long-term target programs are developed by the executive body, local government body and are subject to approval by the relevant legislative (representative) body, representative body of local government.

The formation of a list of long-term target programs is carried out by the executive body, local government body in accordance with the forecast of socio-economic development of the Russian Federation and the forecast of socio-economic development of the corresponding territory and the priorities determined on the basis of these forecasts. Table 1 presents the characteristic requirements (conditions) for the implementation of the given scientific principles for drawing up social programs.

Table 1

Conditions for the implementation of the given scientific principles for drawing up social programs

No. Formulation of the principle Conditions for the implementation of the principle 1. Purposefulness The starting point in program development is the selection and justification of a system of goals for social assistance to the population for the future established by the program. 2. Complexity 1) The need to take into account when developing a program the totality of conditions, factors and restrictions of an internal and external nature that influence the development of the settlement. 2) Identifying and balancing the interests of all participants in program work at various stages of program development and implementation. 3) The need to link program activities by resources and timing of their implementation. 3. Efficiency As a result of implementation, the program should be inexpensive and cost-effective. 4. Predominantly social orientation of development; priority of goals related to improving the quality of life of the population of the settlement, balanced with economic goals. 5. Continuity Reliance on the strategic plan, goals and priorities of improving the quality of life of the population. 6. ManageabilityCreation of an organizational apparatus and instructional documents regulating the procedure and responsibility of participants in program work. 7. ProfessionalismParticipants in program work have the necessary qualifications to effectively solve the tasks assigned to them in developing and implementing the program8. GlasnostThe need to involve scientists and specialists, representatives of various professional groups, the public in the consideration and examination of draft program documents, the results of their implementation, representatives of various professional groups, the public, informing the population about the progress of program work, including through public hearings. 9. Balance of interests The need to ensure interest in the implementation of the program of government structures, local communities, large and small businesses, entrepreneurial and financial structures. 10. Multi-channel financing The obligation to attract the financial resources necessary for the implementation of the program not only and not so much from budgetary resources, but also from extra-budgetary sources.

The customer of a long-term target program can be a state authority or a local government body for municipal target programs.

A long-term target program proposed for approval and financing from budgetary funds or funds from a state extra-budgetary fund must contain certain established blocks (Fig. 1):

A social program is a forecast and project document containing a set of activities and projects aimed at achieving the main goal of maintaining the necessary quality of life for socially vulnerable segments of the population and linked by resources, implementers and implementation deadlines.

The social program is built on the basis of a systematic approach, the main scientific principles of the formation of a long-term social program are: purposefulness, complexity, efficiency, predominantly social orientation of development, continuity, manageability, professionalism, transparency, balance of interests, multi-channel financing.

1.3 Characteristics of the regulatory framework for drawing up social programs

The regulatory documents that are basic in the development and preparation of social programs are: The Constitution of the Russian Federation (Article 39 is in force, guaranteeing social security by age, in case of illness, disability, loss of a breadwinner, for raising children and in other cases established by law, in in particular, clause 3 of article 39, which encourages the creation of additional forms of social security; clause 2 of article 41, on the basis of which federal programs for the protection and promotion of public health are financed in the Russian Federation), the Budget Code of the Russian Federation (Article 179 is in force, on on the basis of which long-term target programs are developed, the Federal Law “On General Principles of the Organization of Local Self-Government”).

Developers and compilers of social programs (depending on the profile of the projects being created) rely on the following Federal laws of the Russian Federation:

"On the general principles of organizing local self-government in the Russian Federation";

"On municipal service in the Russian Federation".

It is important to emphasize that when developing and drawing up social programs, the provisions of the main federal laws regulating the mandatory provision of social assistance and protection to the most socially vulnerable members of society, social support and services for this group of people are taken into account, in particular: “On State Social Assistance”, “ On social protection of disabled people in the Russian Federation", "On the basics of social services for the population", "On social services for elderly citizens and disabled people".

Municipal social order is carried out in the Russian Federation on the basis of the Federal Law "On placing orders for the supply of goods, performance of work, provision of services for state and municipal needs." An important document that determines the beginning of the financing of social programs is the Federal Law “On the budget of the social insurance fund in the Russian Federation for 2008 and for the planning period of 2009 and 2010,” which establishes the possibility of allocating budget funds for the period to which the social program is limited.

At the municipal level there are: Decree of the Murmansk city administration: “On approval of the regulations on the committee for health care and social support of the Murmansk city administration”, on the basis of which specialists develop and draw up social programs that comply with the Decree of the Murmansk city administration on the approval of departmental and municipal target programs, proposed for consideration in the analytical chapter of this study.

The information basis for the development of a social program is, first of all, the materials of the concept of integrated socio-economic development of the settlement adopted by the elected body for a strategic perspective of up to 15 years, as well as the entire set of federal, regional and municipal programs and projects that are in effect or planned for implementation in the settlement territory, other forecasting and analytical documents on solving complex or individual problems of social support for the population of a municipality.

For example, social programs implemented in the city of Murmansk are based on the “Basic provisions of the economic development strategy of the Murmansk region for the period until 2015.” At the same time, the main program goals coincide with the goals contained in the adopted concept of their development for a strategic perspective. At the same time, when creating a social program, it is customary to allocate a time echelon corresponding to the time horizon of program work (usually in a long-term program - up to 5 years). At the same time, the main program goals can be directly borrowed from the concept of strategic integrated socio-economic development of the settlement adopted in the established order, which, of course, does not exclude their clarification and adjustment if necessary.

The program may include activities and projects, the implementation of which has already been adopted by the relevant decisions of state and municipal authorities.

Thus, in 2010, the departmental target program “Additional measures of social support individual categories citizens" for 2010" the implemented municipal program "Additional measures of social support for certain categories of citizens for 2009" was supported and optimized.

It is also important to note that the social programs planned and developed in the regions and municipalities of the Russian Federation are focused on a number of federal programs for the development of social infrastructure: the Housing Program for 2002-2010; Program "Social development of rural areas until 2012"; Program "Culture of Russia (2006-2010)"; Program "Social support for people with disabilities for 2006-2010"; Program "Prevention and control of socially significant diseases for 2007-2011"; Program "Socio-economic and ethnocultural development of Russian Germans for 2008-2012"; Program "Economic and social development of indigenous peoples of the North until 2008" (current, with changes and adjustments until 2011).

To summarize, the following conclusions must be drawn:

In the Russian Federation (at the federal, regional and local levels) it has been developed normative base, on the basis of which social projects and programs are drawn up and implemented in practice.

The regulatory framework for drawing up social programs at the municipal level in the context of ongoing social and administrative reforms needs constant updating and adjustment, taking into account the real situation in society of its most vulnerable representatives.

1.4 Types of social projects and programs implemented on the territory of the Russian Federation

The most important points related to the specific purpose of social projects and programs seem to be significant. It is precisely this purpose that distinguishes the conventionally identified types of social projects and programs. The conditionality of the allocation is an objective factor, determined primarily by the attribution of the social program to one or another category of the population of the municipality.

The identification of types of social programs is determined by the fact that they must be of a clearly targeted nature; this is their main difference from documents that represent consolidated plans. In other words, program developers should focus on achieving a system of goals aimed at various categories of the population of the municipality.

Since, as already indicated, the goal of the social program is to achieve scientifically based predictable results, determined qualitatively, quantitatively and in time, two characteristics are distinguished:

) qualitative and 2) quantitative.

The meaning of the relationship between the characteristics and their correlation with the target setting (according to A.V. Zorenko and A.O. Vernikova) can be generalized and presented in the form of a fairly simple diagram (Fig. 2).

It cannot be emphasized enough that in the course of program work the main goals of the social program must be decomposed in the indicated manner, without which it is impossible either to put into practice the formation of a system of targeted measures and projects that form the core of the social program, or to organize effective management implementation of the developed program.

Fig.2. Interrelation and correlation of characteristics with the purpose of the social program

The presented decomposition of the main program goals occurs in the process of developing problem and supporting sections and can be carried out, in particular, using a methodological technique that involves identifying and processing problems associated with achieving the intended goals. Moreover, the problem is understood here as an obstacle to achieving the main goal of settlement development.

Support for low-income citizens can be expressed in providing them with certain types of social benefits through the organization of health care and social support, in particular: the provision of free (at reduced prices) medicines, medical equipment and food (depending on categories of the population).

Types of social programs are presented in the diagram (Fig. 3):

The main purpose of this study involves considering only social programs that can be developed and compiled by specialists from the committee for health care and social support of settlement administrations.

Fig.3. Types of social programs

Therefore, it is advisable to highlight the following objects of analysis as the basis for social programs developed on the basis of health care and social support committees of municipalities:

health indicators of the population of the municipality, medical and demographic factors, causes of morbidity in the population, level of permanent disability - disability, etc.;

main characteristics of the state and development of medical services for the population of the municipality;

indicators characterizing the social condition of the population of a municipality (this or that category of the population, depending on the identified/identified problem that the social program is aimed at solving);

characteristics of the existing level of provision of social assistance and support to the population of the municipality (of one or another category of the population).

To summarize, the following conclusions must be drawn:

When developing social programs, it is necessary to focus on achieving a system of goals aimed at various categories of the population of the municipality.

Depending on the categories allocated, on the basis of the health and social support committee of a particular municipal entity, they can be developed and compiled different kinds social programs - both short-term and long-term.

Social programs of various types contain, as a rule, a number of projects and activities carried out by a certain deadline.

Municipal social order is identified as a special type of social program and a separate area of ​​research. Municipal social order as a form of providing social services to city residents on a contractual basis with the provision of guaranteed sources of financing is considered autonomously - in paragraph 1.4 of the final qualifying work.

1.5 Assessing the effectiveness of the implementation of target programs

The background and purpose of an evaluation may vary and occur at different stages of program implementation. In general, the subject of assessment is individual key parameters of the program. Such parameters can be:

Program effectiveness;

Efficiency of the program execution mechanism;

The socio-economic effect the program has on the development of the city;

Compliance of the program with the interests of society, and so on.

The effectiveness of program implementation evaluates the ratio of results and resources spent to achieve them. It is the analysis of effectiveness that is the key goal in assessing the implementation of programs, since it allows one to judge not only the effectiveness of the implementation of the program, but also calculates the cost of the results achieved, which provides more complete and balanced information regarding the feasibility of implementing the program at the preliminary stage of evaluation and the results of implementation at the final stage .

In a number of works, in order to systematize approaches, the concept of effect implies the difference between benefits and costs incurred, while efficiency is understood as the ratio of these values. Thus, the effect and effectiveness of programs is assessed based on objective quantitative criteria - indicators of effect and effectiveness, respectively. Due to the fact that budget target programs are aimed at implementing the expenditure obligations of the state (municipality) in the field of socio-economic development of society, the benefits from the implementation of the program are understood as a set of socially significant (hereinafter referred to as social) results. According to other classifications, the effect of targeted programs is understood as a set of social effects, and efficiency is the difference or ratio of social effects and budgetary allocations aimed at their implementation.

The social effect of the implementation of budget target programs means direct and indirect socially significant results obtained during the implementation of activities of budget target programs.

Thus, effect indicators are a limited set of socio-economic indicators that are selected separately for each of the evaluation parameters. According to generally accepted approaches, performance indicators must meet a number of requirements, which in modern scientific literature include:

measurability - the indicator can be measured in constant units;

validity - the indicator reflects as fully as possible what needs to be assessed;

unambiguity - the indicator has a clear, generally accepted definition and units of measurement;

stability - during the assessment, time (dynamic) data slices on the indicator are available;

accessibility - the data necessary to calculate the indicator is available in traditional sources of information;

achievability - the set target value of the indicator can be achieved using available resources;

attachment to a specific reporting period;

specificity and concreteness - the indicator relates to a specific organization or program.

In order to systematize indicators of social effect, it is possible to classify indicators by assessment stage and define two classes: general (universal) indicators and specific indicators. General indicators for assessing the effect of target programs are a set of indicators expressed in natural, monetary or conventional units, which have the property of universality and comparability and are used to compare programs. In most cases, general indicators of social effect reflect the degree of achievement of general socio-economic goals of the implementation of state and municipal policies. The purpose of assessing overall social impact indicators is to compare and rank target programs. In this regard, this type of assessment occurs at the intermediate stage of program monitoring. Particular indicators of the social effect of the implementation of target programs correspond to the specific goals and objectives within the framework of each target program, reflecting its specifics and industry affiliation. Particular indicators are used to analyze the effectiveness of specific target programs and estimate the cost of obtaining these results based on performance indicators. Particular indicators are determined during the implementation of budget programs at the intermediate and final stages.

Another common classification of indicators is related to the level of program implementation:

Final effect indicators;

Indicators of private final effects;

Indicators of immediate results.

In generally accepted terminology, the final effect indicator is an indicator that quantifies the change in the state of the target group to which the activities of state and municipal government are directed. This type indicators most fully and objectively reflects the need and priority of program implementation.

Indicators that assess the effectiveness of program implementation taking into account industry specifics are defined in the literature as indicators of private final effects that reflect changes in the state of the target group in specific aspects.

The effectiveness of the implementation of a set of activities of the target program is assessed by indicators of direct results, which, according to some sources, reflect statistical, sociological and other reporting data characterizing the volume and quality of implementation of activities aimed at achieving the final socio-economic effect of the target program. In the works of other authors, direct outcome indicators evaluate the product produced during a certain period or the service provided during a certain period within the framework of a target program.

Summarizing the results of the first chapter of the qualifying work, it is necessary to formalize the results of the study of the theoretical aspects of the stated topic in the form of the following provisions:

In the first chapter, the relevance of the problem is substantiated in the light of the social and administrative reforms being carried out in the Russian Federation and it is revealed that the social program is in fact a forecast and project document containing a set of activities and projects aimed at achieving the intended goals of providing comprehensive socio-economic assistance to the population and linked by resources, performers and implementation deadlines.

Social programs implemented at the local level and conditionally distinguished by type - depending on their purpose, the category of the population to which they are aimed, should be drawn up on the basis of a systematic approach, focused on modern methodological developments, meet the needs of the population of the municipality.

Further, it seems advisable to study social programs, targeted social programs, and municipal orders carried out on the basis of the Committee for Health and Social Support of the Murmansk City Administration, with the main emphasis on the development and implementation of social programs.

Chapter 2. Analysis of assessing the effectiveness of social programs in the municipality of Murmansk (using the example of the activities of the committee for health and social support)

2.1 Methodology and methodology for drawing up social programs

It is important to emphasize that any social program based on Article 173 of the Budget Code of the Russian Federation is built on the basis of forecasting the socio-economic development of the territory based on the availability of funds provided for in the relevant articles of the city budget for the planned period.

Article 173 of the Budget Code of the Russian Federation states: “The forecast of socio-economic development of the territory is developed on the basis of data on the socio-economic development of the territory for the last reporting period, the forecast of socio-economic development of the territory until the end of the base year and trends in the development of the economy and social sphere for the planned financial year and precedes drawing up a draft budget. A change in the forecast for the socio-economic development of a territory during the preparation and consideration of a draft budget entails a change in the main characteristics of the draft budget."

An analysis of the practice of drawing up social municipal programs gives grounds to assert that the methodology used by most authors for their preparation is based on the “Methodological recommendations for the formation of the concept of socio-economic development of a municipality for a strategic perspective” (hereinafter referred to as “Methodological recommendations ...”).

The usual algorithm for drawing up a social program is presented in Fig. 4.

Fig.4. Algorithm for drawing up a social program

The foreign and domestic experience of existing effective social programs accumulated to date makes it possible to identify and formulate the fundamentals of the methodology for their preparation.

The most important stage of the program is the formulation of the problem and, on this basis, goal setting. The purpose of the program presupposes the presence of an existing problem/problems that this or that program (this or that section of it) is designed to solve.

1.Brief description of the problem situation.

2.Problem formulation.

3. Evaluation negative influence(damage) of an unresolved problem on the quality of life of the population of the municipality;

Preliminary formulation and quantitative assessment of the general social goals of the settlement’s development, arising from the essence of the identified problem.

Analytical generalization of problems allows us to form an array of problems on this basis general, which are most significant for achieving the intended main goals of improving the quality of life of the population of the municipality in need of social protection.

It seems necessary to carry out a mandatory operation of ranking problems that have a certain impact on the implementation of the main goals of the program, which makes it possible to clarify their qualitative and quantitative characteristics, on the basis of which second-level goals (“local goals”) are formed.

Taken together, the main and local goals of the social municipal program constitute a system of goals (“tree of goals”), towards the achievement of which participants in the program work are oriented.

"Methodological recommendations..." establish certain requirements for the structure and content of the municipal social program: it includes a summary section, as well as problem and supporting sections containing activities and projects aimed at implementing program goals.

The typical structure of a municipal social program is presented in the diagram (Fig. 5).

Fig.5. Structure of the municipal social program

I. The summary section summarizes in a condensed form the materials characterizing the social program.

The information basis for the formation of the consolidated section of the program is, firstly, updated data of the adopted concept of comprehensive socio-economic development of the settlement, including (aggregated) indicators characterizing the social sphere; secondly, the results of summarizing the materials contained in the problematic sections of the social program.

The summary section contains a set of tables (filled out software forms) and a text part, which is carried out in the form of the following subsections:

. "Starting conditions and initial prerequisites for the socio-economic basis of settlement development." This subsection includes a completed program form and a text part, which contains an integral assessment of the current socio-economic situation in the municipality, reveals the conditions, prerequisites, restrictions, factors of development and inhibition of the socio-economic development of the settlement.

. "Program goals and priorities of social development of the settlement." The subsection includes a completed program form containing targets and indicators of social development, a text part explaining the level of adopted goals and priorities for the social development of the settlement through. These priorities should include motivation for goals related to the implementation of specific measures to improve the quality of life of citizens in need of additional social assistance.

. "Strategic choice of settlement." The subsection includes a list of functions (activities) included in the strategic choice, analytical material revealing the essence of the strategic plan of the social program, and the main tasks that are planned for solution within the time horizon of the social program.

It is important to emphasize that when developing the above subsections of the consolidated section of the social program, it is recommended to use as a basis the materials of the accepted concept of strategic integrated socio-economic development of the settlement, clarified (if necessary) taking into account the changed conditions of development and the time horizon of program work.

II. The problem section includes as a mandatory subsection “Main program activities and projects that are of decisive importance for achieving the goals of social assistance and support for the population of the municipality outlined in the program,” which contains a specific indication of the forms, methods, means and techniques of social services for citizens. When forming this section, a special form and a text part are filled out, characterizing the activities and projects planned for implementation that are key in terms of achieving the intended program goals.

The information basis for the development of the subsection is the materials of the problem sections of the program.

III. The supporting section contains the subsection “Financial support for the implementation of the social program,” which includes completed program forms characterizing the volume of financial resources for the implementation of the program, indicating the sources. Thus, in the section “Financial support for the implementation of a social program” it is indicated at the expense of what funds and in what amount a particular program is being implemented, for example: “To implement the program, financial resources are required in the amount of 2,025.794 million rubles. The program is being implemented for funds account:

federal budget- 1,934.733 million rubles;

budget of the Murmansk region - 2,900 million rubles;

local budget - 58.734 million rubles;

enterprise funds N* - 4.427 million rubles."

The Program budget is presented in the Appendix to it.

When developing the problematic and supporting sections, one should take into account a circumstance that is of fundamental importance: the list of areas of activity of local governments for the implementation of the social program can be expanded at the discretion of the program developers - based on the real situation developing in a particular municipality in the context of the implementation of administrative and social reforms.

Among the activities that reveal the areas of activity of local governments in adopting and organizing the implementation of a social program, there may be both capital-intensive and organizational measures of the local administration itself (committees within it), not associated with serious costs (preparation of legal acts, organizational measures and etc.)

Examples of exceptionally literate, creative approach to the development of social programs, both abroad and in Russia, may be the products of the activities of the relevant competent bodies of local administrations, a brief description of which are given below.

One of the striking examples of a social program implemented in Mexico is the Progresa Program: Education, Health and Nutrition. The concept of the Progresa social program is: why poor families do not invest “enough” in human capital? These families may know the benefits of investing in human capital, but cannot afford to invest as much as they would like.

An external assessment of the impact of this program was carried out by the International Nutrition Research Institute on the following parameters: assessment of direct impacts (education, health and nutrition), potential impact of indicators (child and adult employment, consumption style, female status and transfers, ensuring child attendance educational institutions and regular medical examinations and the fact that benefits are given directly to the woman as head of the household).

The purpose of the social program: to combat poverty by investing cash transfers in the development of human capital, increasing family investment in human capital, the concept of which includes education, health and nutrition.

The program in question is financed annually from the federal budget, which the government allocates to fight poverty. The recipients of the social program are poor households living in marginal rural communities, and since 2008, urban communities. The program combines three different components: education, health, and nutrition.

Receipt of benefits is subject to the fulfillment of certain obligations by the receiving family.

The selection of participants in the social program is carried out in the following way: household poverty is determined not only by income level, but also on the basis of other characteristics, such as the level of comfort of housing, dependency relationships, the presence of durable consumer goods, animals, real estate and the presence of disabled people among household members.

The Mexican Government fully supports the implementation of the program and its expansion into urban areas.

A number of Latin American countries, such as Colombia, Jamaica, Honduras, and Argentina, have not only implemented Progresa-like programs; they also implemented an external evaluation model, in many cases with funding from institutions such as the World Bank and the American Inland Bank.

An example of a Russian social program developed in Volgograd is the comprehensive program “Start in Life”. The program is being implemented with the corporate assistance of socially responsible companies - members of the Regional Union of Philanthropists, the Education Committee of the Volgograd Region and the Dignity Foundation.

The social program provides assistance in finding employment for graduates of orphanages, organizing and conducting social action training to develop communication skills, forming positive life goals, which will help solve the problem of socialization and integration into society of this category of young people.

In Vladimir, the charitable social program “Legal Protection” is currently operating. The goal of the program is to organize free legal assistance to orphans, guardians of children, large families, single mothers, and people with disabilities since childhood. The program provides for the creation of a Legal Representative Office of the Dignity Foundation with the involvement of professional lawyers in it.

The purpose of the social program “Support”, developed in Yaroslavl, is to provide moral, material, legal and other types of assistance to orphans, children in orphanages and children in care, as well as to attract public attention to the problems of orphans and assistance in acquiring a specialty and employment.

Another charitable social program is successfully operating in Yaroslavl - “Birthday - Childhood Holiday”, the purpose of which is to provide guardians of orphans with one-time financial assistance for organizing the holiday and purchasing a gift for the birthday of the child in their care.

Thus, we can draw the following conclusions that the methodology for constructing a municipal social program involves solving the following problems:

Identification and development of the entire range of problems that exist at this stage of the socio-economic development of the settlement (within the established time period of program implementation).

Ranking of key problems (possible obstacles) to achieving goals, on the basis of which the so-called “second-level objectives” and measures to achieve them are determined.

Development of a system of measures for the implementation of a particular municipal program based on the priorities established by local socio-economic policy and determination of the appropriate amount of funding for the implementation of the program, indicating the sources of funding (budget funds at various levels: federal, regional (regional), local (municipal) , Money legal entities, as well as contributions individuals at personal request (charity events), etc.

The development and implementation of municipal programs is one of the main functions of the Committee for Health and Social Support of the Population of the Murmansk City Administration.

2.2 Functions of the Committee for Health and Social Support of the Population of the Murmansk City Administration for the development of social programs

In the city of Murmansk, the development and compilation of social programs is the responsibility of the committee for health and social support of the administration of the city of Murmansk.

The place of the committee for health and social support in the structure of the administration was determined on the basis of the Resolution on approval of the regulations on the committee for health and social support of the administration of the city of Murmansk dated 09.09.2009 No. 900, issued in accordance with Article 47 of the Charter of the municipal formation of the city of Murmansk, by decision of the Council of Deputies of the city Murmansk dated 06/25/2009 No. 7-83 “On approval of the structure of the administration of the municipal formation of the city of Murmansk”, by resolution of the administration of the city of Murmansk dated 07/10/2009 No. 597 “On the structure of the administration of the municipal formation of the city of Murmansk”.

Based on clause 1.1 "Regulations on the Committee for Health and Social Support of the Administration of the City of Murmansk", the Committee for Health and Social Support of the Administration of the City of Murmansk (hereinafter referred to as the Committee) is structural unit Administration of the city of Murmansk, implementing state and municipal policies in the field of protecting public health, additional measures of social support and social assistance for certain categories of citizens.

Location of the committee: 183038, Murmansk, st. Trade Unions, 20.

The structure of the health and social support committee of the Murmansk city administration is given in Appendix 1.

The main goals of the committee’s work include:

Ensuring the protection and observance of human and civil rights and freedoms in the field of health care and state guarantees related to these rights, within the limits of their powers.

Implementation of additional measures of social support and social assistance for certain categories of citizens, organization and expansion of an additional list of social services for citizens in difficult life situations, within their powers.

Fig.6. The main goals of the Committee on Health and Social Support of the Murmansk City Administration

Within the scope of this study, only those committee tasks that are directly related to the preparation and implementation of social programs are considered. To solve the following tasks, the committee performs certain functions:

In the field of organizing medical care, among other functions: participation in the implementation of federal, regional target programs, development and implementation of municipal target programs for the protection of public health, disease prevention; performing the functions of a manager of city budget funds for recipients; exercising control, within its powers, over the provision of medicines; development of tender documentation for placing municipal orders for the supply of goods, performance of work and provision of services for the needs of municipal healthcare institutions of the city of Murmansk, the customer of which is the committee.2. In the field of health protection and social support of citizens: monitoring the health status of the population of the city of Murmansk on the basis of approved state accounting and reporting forms of medical statistics; implementation of national projects in the field of healthcare in the city of Murmansk. The tasks of the committee for drawing up social programs are presented in the diagram (Fig. 7):

Fig.7. Tasks of the Health and Social Support Committee in drawing up and implementing social programs

From the above list of functions, it is advisable to form a consolidated list of those directly related to the preparation and development of social programs for residents of the city of Murmansk.

A generalized (consolidated) list of functions directly related to the development and compilation of social programs and decided by the health and social support committee is presented in Figure 8:

Rice. 8. Consolidated list of tasks for the development and preparation of social programs and monitoring their implementation

Thus, an analysis of the goals of the activities, tasks and functions performed by the committee shows that they are focused on the development and preparation of social programs necessary for residents of the city of Murmansk who need additional social support.

In order to socially protect Murmansk residents, primarily the low-income population, and provide the domestic market with food products of primary demand, the Committee on Health and Social Support of the Administration of the Murmansk Region has developed a number of social programs based on the use of an algorithm consisting of several successive stages (Fig. 9 ).

Fig.9. Algorithm for drawing up a social program

Examples of social programs developed in recent years, both already implemented and currently operating in Murmansk on the basis of scientifically based algorithms, are: “Help for large families”, “Cheap fish”, “Cheap bread”, “Cheap milk”, “Cheap vegetables". Currently, in the city of Murmansk there is a departmental target program “Additional measures of social support for people with disabilities for 2010”. These programs have been developed and are being implemented on the basis of the Murmansk City Administration.

The Committee for Health and Social Support of the Murmansk City Administration has drawn up and is implementing the following programs: “Additional measures of social support for certain categories of citizens” (2010); “Additional measures of social support for people with disabilities for 2010” (2010).

An analysis of social programs directly developed and compiled by the Committee on Health and Social Support of the Murmansk City Administration will be carried out in the appropriate section of the final qualifying work.

To summarize, the following conclusions must be drawn:

The methodology for constructing a municipal social program involves solving the following problems:

clarification of the main goals of the comprehensive socio-economic development of the settlement for the period of program implementation;

identification and ranking of key problems on the way to achieving the main goals in the context of the “problem” sections of the program, and on this basis the formulation of the “second level” goals and tasks for their achievement, the implementation of which should be the focus of the “problem” and “providing” activities " sections;

development of a system of measures aimed at implementing the set goals and objectives of a specific municipal program, taking into account the principles and priorities established by local socio-economic policy, and the appropriate amount of financial resources for the implementation of the program is determined, indicating sources of financing.

Practice shows that the development and preparation of social programs is entrusted to committees within the administration of municipalities - in accordance with the subjects of their jurisdiction and the availability of the necessary powers.

2.3 The procedure for the development and implementation of programs in Murmansk

The decision to develop a departmental target program is made by the subject budget planning in agreement with the Finance Department of the Murmansk City Administration and the Department of Social and Economic Development of the Murmansk City Administration.

The departmental target program should include:

a) a description of the problem, the solution of which is carried out through the implementation of a departmental target program, including an analysis of the reasons for its occurrence, the feasibility and need for a solution at the departmental level;

b) the passport of the departmental target program includes: the name of the subject of budget planning - the main manager of budget funds; name of the program; goals and objectives of the program; target indicators (indicators); characteristics of program activities; timing of the program implementation (achievement of target indicators and indicators); volumes of financing from the city budget (by quarter); expected final results of the program implementation and social indicators economic efficiency.

For each event, performers, deadlines, amounts of funding, and target indicators (indicators) of implementation results are indicated.

The developed draft departmental target program is agreed upon by the subject of budget planning with the department of socio-economic development of the Murmansk city administration and the finance department of the Murmansk city administration.

Departmental target programs are approved by the head of the municipal formation of the city of Murmansk no later than September 1 of the year preceding the year the departmental target program began.

After approval of the municipal budget of the city of Murmansk for the next financial year, if necessary, departmental target programs are adjusted in parts:

the volume of city budget expenditures on the implementation of departmental target programs;

composition of activities of departmental target programs;

planned indicators for achieving final results by year;

planned indicators of socio-economic efficiency.

Budget allocations for the implementation of the departmental target program are subject to annual adjustment in accordance with the departmental structure of the city budget for the next financial year and planning period.

The departmental target program is implemented by the corresponding main manager of budget funds.

If necessary, functions for the implementation of individual components of the program are carried out by municipal institutions subordinate to the main manager of budget funds, which submit a monthly report on the implementation of departmental target programs to the main manager of budget funds.

In the process of annual monitoring of the implementation of departmental target programs, the degree of achievement of goals, objectives, target indicators (indicators) of the socio-economic efficiency of the implementation of departmental target programs is analyzed.

Based on the results of the annual monitoring of the implementation of departmental target programs, the department of socio-economic development of the Murmansk city administration submits a summary report on the implementation of departmental target programs to the head of the municipal formation of the city of Murmansk by March 10 of the year following the reporting year.

A decision on early termination of departmental target programs may be made in the following cases:

liquidation of the main manager of budget funds;

exclusion of powers within the framework of which the departmental target program is implemented from the powers classified as issues of local importance of the urban district;

the impossibility of achieving the final results of a departmental target program due to the provided amounts of funding for internal or external reasons.

2.4 Assessing the effectiveness of social programs

The drawing up and development of social programs presupposes a mandatory procedure for their evaluation to ensure high-quality control and recording of the results achieved. These results are taken into account and subsequently taken into account when developing additional blocks and sections (if necessary), in the process of drawing up new programs. Evaluation of results is important in reporting to relevant authorities, regulatory developers and program writers. Thus, the Committee for Health and Social Support of the city of Murmansk reports quarterly to the Ministry of Health and Social Development of the Russian Federation on the progress of social programs according to agreed indicators.

Monitoring the program at all stages of the cycle is an important condition for the success of the program, representing a kind of accompanying evaluation.

The main purpose of monitoring is to provide information for making adequate management decisions during the program. But to answer the question “Why did it happen this way or that way?” or "What now?" It is not enough to monitor the situation on a daily basis - in this case it is advisable to aggregate information and analyze the data more deeply.

Following this, indicators are given that characterize the basis for financing a specific social program. So, for example: “The basis of financing (the name of the specific Program is given) is made up of funds from the federal budget (the percentage of total funding is given).”

To draw a conclusion about the effectiveness and efficiency of a social program, it is necessary to evaluate its impact according to various indicator criteria: certain indicators are often used as indicators (Table 2):

table 2

Approximate list of criteria-indicators for evaluating social programs

No. Formulation of criterion1. Reduced morbidity2. Reducing the number and composition of risk groups3. Expanding the scope of activities of persons with disabilities4. Improving the quality of the natural environment

There are indicators of the process of drawing up a social program, the results of its impact, the impact on other areas of impact carried out in parallel (the results of other social programs), etc. In general, the development of indicators for social programs requires a clear understanding of the goals of the program and in-depth knowledge of the problem. As a rule, municipal social programs have a complex nature of problems (they are linked to tasks in the field of disease prevention, health protection of the population of the municipality, etc.), which serves as the basis for a complex structure of both the program itself and the evaluation system.

For example, in the problem of population poverty, when developing indicators, three mandatory components can be distinguished: economic, social and environmental. Accordingly, indicators of the effectiveness of the social program should also be structured in the above three areas. Before conducting a program evaluation, a number of typical questions should be identified that are expected to be answered:

What are the actual results of the social program?

main achievements of the social program?

Are there any prospects for continuing work in this area?

Thus, the information content and high degree of significance of the assessment results are ensured (their relevance in the future).

The long-term nature of social programs (5-7 years) leads to the need to provide for some flexibility and, for example, revise some indicators or methods of collecting information in accordance with the changing situation.

In order to provide the regulatory body with the necessary reporting, the Committee on Health and Social Support of the Administration of the Murmansk Region monitors the program according to relevant indicators (Table 3):

Table 3

Social program evaluation indicators

No. Formulation of the assessment indicator1. Share of national interest in the total project volume. 2. The share of objects in satisfactory condition in the total number of objects of federal significance. 3. Percentage percentage represented in the total. 4. Average. 5. Increase in interest compared to the previous year. 6. Share of interest in the total volume. 7. Increase in percentage (in terms of 1000 people) compared to the previous year. 8. Share of new interest in the total. 9. Increase in interest compared to the previous year. 10. Increase (in terms of 1000 people).

The practice of the committee shows that in order to ensure control and analysis of the progress of the social program, indicators of the effectiveness of the implementation of program activities are formulated. These assessments may not be used when making decisions if:

) the user's policy or strategy changes;

) assessment issues cease to be of interest;

) there is no loss of clear goal setting for the user;

) the data does not find its place;

) there is an attitude towards monitoring and evaluation as a “exemplary review”;

) there is a real lack of need for improvement.

Thus, the analysis shows that at the moment a kind of general model (template) of the process of evaluation and control of social programs has been formed.

Based on this general model, various private technologies for evaluating programs are being developed, depending on the specific goals and objectives being solved at the level of a particular municipal entity.

To carry out monitoring of the social program, professional evaluators (in the relevant subject areas) may be involved (if such a need arises).

Modern technologies assessment (monitoring) include special requirements for expert appraisers (Table 4):

Table 4

Requirements for experts when monitoring a social program

No. Statement of requirement 1. Ability to analyze 2. Ability to behave non-directively3. Ability to prepare reports4. Resistance to manipulation

A step-by-step approach is used, dividing the expert’s work into three parts. The three stages of an expert's work are:

Preparatory stage (familiarization with the approved project application, program plan, preparation of questions raised by the specifics of the project, determination of the timing of the assessment, selection of forms and methods, establishing contacts with project implementers, familiarization with project reporting, technical preparation of materials).

Conducting the actual assessment of the social program (or part thereof).

Preparation of an expert report (evaluation opinion).

To summarize, it is necessary to state:

Features of the evaluation of social programs are: a) combining elements of monitoring, evaluation and audit; b) the ability to process the results of experts’ work using software methods.

2. A social program can be assessed if there are pre-developed indicators and general standards (for example, minimum standards for social services). There cannot be one “correct” list of indicators for all cases of life. What is right and what is wrong is decided by program developers, involving experts in the relevant subject areas as necessary.

The practice of drawing up and implementing social programs indicates the presence of numerous problems faced by both their developers and the authorities monitoring their implementation. The “stumbling block” is that in a social program it is not enough to determine the meaning of indicators; it is necessary to think through the channels for transmitting this information to decision makers. Care must also be taken to ensure that the information reaching decision makers is converted into a format that is easy to understand.

Another difficulty lies in the fact that the program monitoring system itself is very complex and quite cumbersome. To build a program monitoring system, it is necessary to carry out work in the following areas (Table 5):

Table 5

Components of the monitoring system

No. Formulation of the process of necessary actions1. Determine measurable indicators (indicators) by which the progress of the program can be monitored. 2. Establish sources of information for monitoring (organizations, departments, individuals or groups of people, documents, etc.). 3. Select methods for collecting information. 4. Determine the frequency and schedule for collecting information5. Assign those responsible for receiving necessary information and agree with those who will provide this information6. Determine the technology for processing and analyzing the information received. 7. Plan how and to whom monitoring data will be transferred, as well as who will use it and how. 8. Include in the program budget the costs necessary for monitoring.

I would like to pay special attention to the last (8) point. The operation of any subsystem in a program requires resources. If the costs of monitoring and evaluating a program are not taken into account at the design stage, it will not be implemented. Unfortunately, this is exactly the mistake that authors of projects and programs often make: all budget items related to the implementation of the program are calculated in detail, but the costs of monitoring and evaluation are not taken into account. According to international organizations, monitoring and evaluation costs can range from 2-3% to 6-10% of the total program budget. “Building in” a monitoring system into a program at the stage of its implementation seems methodologically incorrect. It is necessary to develop a monitoring and evaluation system at the stage of program creation, however, as a rule, developers and compilers do not have enough funds for this.

The above allows us to draw the following conclusions:

Problems in the evaluation of social programs are associated primarily with the fact that the standards for this evaluation have not been developed in detail and in full anywhere in the world, including in Russia.

2. In the Russian Federation, strict regulation of activities, the principle of distributing public funds according to items of economic classification, reduces control over budget execution to control over the targeted (by type of expenditure) use of budget funds and makes their spending ineffective.

The complexity of assessing social programs is due, to a large extent, to the fact that the existing budget legislation of the Russian Federation is not the responsibility of either financial authorities or the main manager of budget funds to check the efficiency and effectiveness of state and municipal expenditures.

The considered technologies for evaluating social programs may be used incorrectly, because ignoring other factors outside the scope of monitoring or evaluation issues can lead to ineffective and ineffective implementation of the program.

Chapter 3. Ways to increase the effectiveness of social programs implemented in the municipality of Murmansk

3.1 Disadvantages in the development of social programs and justification for the need to improve the assessment of the effectiveness of social programs of the Committee on Health and Social Support of the Murmansk Administration

An analysis of the available data shows that over the past fifteen years, the Committee on Health and Social Support of the Murmansk Administration has accumulated experience and there are positive results in the preparation and development of social programs.

The results were summarized: there is evidence that in 2009, due to the operation of all social programs, the total savings of money for the population of the city of Murmansk in 2009 amounted to more than 50 million rubles. Providing Murmansk residents with basic food products at fixed and preferential prices is under constant control in the consumer market development department of the Murmansk city administration.

With the participation of the Committee for Health and Social Support of the Murmansk City Administration, several social programs have been created in recent years, financed by specially allocated funds from the local budget, among which the most effective ones have been identified. Such social programs include, in particular, (Table 6).

Table 6

Social programs of the social support sector of the population committee for health and social support of the administration of Murmansk

No. Name of the program Implementation time frame1. "Additional measures of social support for certain categories of citizens for 2010" 20102. "Additional measures of social support for people with disabilities for 2010" 2010

It is important to note that two social programs have been approved for 2010:

. “Additional measures of social support for certain categories of citizens for 2010” (based on the resolution of the Administration of the city of Murmansk “On approval of the departmental target program “Additional measures of social support for certain categories of citizens” for 2010” dated 02.09.2009 No. 842).

. “Additional measures of social support for disabled people for 2010” (based on the resolution of the Murmansk City Administration “On approval of the departmental target program “Additional measures for social support for disabled people” for 2010” dated September 2, 2009 No. 843.

The strengths of the methodology for developing and drawing up social programs by specialists from the Committee on Health and Social Support include:

the use of algorithms (a “step-by-step” method of developing a social program);

application of technologies for evaluating social programs. At the same time, the features of monitoring, evaluation and audit of the social program are examined.

Of course, the weaknesses of the methodology for developing and drawing up social programs by the specialists of the Committee on Health and Social Support are:

insufficiently strict adherence to indicators (both during compilation and at the reconciliation stage). Developing indicators for social programs requires a clearer understanding of the program's goals and in-depth knowledge of the problem;

the problem of optimal distribution of funds allocated for the implementation of the program from the local budget;

conducting a mainly quantitative analysis of the results, to the detriment of qualitative ones, which makes it possible to assess the dynamics of changes in the quality of life of residents of the municipality, whose needs the social program is aimed at.

To summarize, we can draw the following conclusions:

The Committee for Health and Social Support of the Murmansk City Administration uses a certain methodology when developing and drawing up social programs, various options of which are reviewed and discussed by the committee’s specialists, and then the most effective ones are selected. At the same time, we use the highest quality programs operating in other regions of the Russian Federation.

When developing a social program, a certain sequence of reasoning (algorithm) is used:

a) the program (called) for a period (the time period for the development and operation of the program is indicated) aims to:

preservation of a certain concept, which consists in (the conceptual provisions that the social program develops are given);

the formation of a unified social space of the city, the creation of conditions to ensure equal access of the city population to economic and information resources of various groups of citizens, the creation of conditions for the preservation and development of the potential of the urban population;

ensuring adaptation of the social sphere to market conditions;

providing conditions for (the realities, the contingent of citizens covered by the social program are indicated), etc.;

b) in order to implement the goals and specific objectives of the social program, a number of sequential actions are taken (actions are indicated and activities are prescribed)

3.2 Main directions for improving the methodology for developing and assessing the effectiveness of social programs

Specialists of the Committee for Health and Social Support of the Murmansk City Administration are recommended to further use the applied methodology to assess the economic efficiency of the social program, including an assessment of the economic efficiency of the most significant activities, the cost and efficiency of use of facilities. The need to improve the applied methodology is motivated by identifying its weakest aspects that need correction.

Since the weakness of social programs developed on the basis of the Committee on Health and Social Support is the lack of strict adherence to the criteria for the quality of implementation of the social program, when monitoring the program it is necessary to more carefully monitor the following indicators:

) use of resources (compliance of spent resources with the plan);

) the process of program implementation (compliance of the content and timing of activities with the work schedule; compliance with technologies, methods, procedures);

) results (to what extent it is possible to achieve the set goals);

) influence (how the program influences the situation, what this influence consists of).

If, as a result of the implementation of the program, it is necessary to construct a pattern of consumption by a certain contingent of citizens of products intended for sale under the social program, then it is necessary to determine in advance the parameters of the results and the elements of which they should consist.

Every time a program is developed, specialists from the Committee on Health and Social Support must ask themselves the main question: how is the monitoring system for this social program built?

Let us note an important point: before you start building a monitoring system, it is necessary to determine not only what you need to know about the system (program), but also why this information is important.

Thus, the next step in building a monitoring system is to determine the frequency of obtaining information about the system (program). This also requires careful argumentation. The cost of the monitoring system will ultimately depend on the frequency of obtaining information.

) extremely carefully select measurable indicators (indicators) by which it will be possible to monitor the progress of the program;

) more clearly establish sources of information for monitoring (organizations, departments, individuals or groups of people, documents, etc.);

) choose more specifically the methods of collecting information;

) more accurately determine the frequency and schedule of information collection;

) appoint in advance those responsible for obtaining the necessary information and negotiate with those who will provide this information;

) optimize the technology for processing and analyzing the information received;

) clarify and plan in advance how and to whom monitoring data will be transferred, as well as who will use it and how.

) take into account in the program budget the costs necessary for monitoring.

It would be advisable for specialists of the Committee on Health and Social Support to propose a system for optimizing measures related to the evaluation of social programs, based on the methodology of “Program Evaluation as a Process Oriented to the Practical Use of Results” by Michael Paton (USA).

I would like to emphasize that this methodology is linked to the concept of the administrative reform being carried out in the Russian Federation, one of the results of which should be the evaluation of work performed in state and municipal administration based on their results. A version of the scheme for evaluating a social program for residents of Murmansk, adapted for the Committee on Health and Social Support, could look like this (Fig. 10):

Fig. 10 Scheme for evaluating a social program for residents of Murmansk

The main part of the “Task for conducting an assessment” (hereinafter referred to as the Task) for conducting an assessment is a list of questions that must be answered. These questions must be logically related to the purpose of the assessment. Questions Assignments should be general and not too numerous:

) What are the actual results of the Program and to what extent do they correspond to the goals of the Program?

) What are the prospects for continuing work after the end of the Project?

At the planning stage, it is determined which methods will be used to collect information.

In the very general view all existing methods must be divided into four groups: observation, study of documentation, questionnaires and interviews. In order to collect the necessary information, it is necessary not only to choose a method, but also to prepare the appropriate tools:

) develop and test a questionnaire;

) formulate questions for the interview;

) determine what to pay attention to when observing and how to record the results of observation.

At the planning stage, the work schedule and the necessary resources are also determined.

) Gathering the necessary information. At the stage of collecting information, the most important thing is to impartially record the facts and refuse to try to interpret them. The main idea of ​​separating the stages of information collection and subsequent analysis is that conclusions should be based not on individual facts, but on their totality. Monitoring data may be used to collect information.

) Analysis of information. At the stage of information analysis, the main sacrament is performed: a complete picture is compiled from a mosaic of disparate facts.

Based on the data obtained, conclusions are drawn and recommendations are formed regarding the adoption of the very management decision with which it all began. Conclusions are answers to the questions of the Assignment. The answers obtained as a result of the assessment are transmitted to those who make decisions. It is important to keep in mind that, depending on the purpose, the assessment can be formative (its results can influence the course of the program) or final, summative (based on its results, lessons can be learned for the future, but nothing can be changed in the program) . The concepts of formative and summative assessment were introduced by Michael Scriven (USA), whose use is recommended by specialists of the Committee on Health and Social Policy. Committee specialists should keep in mind that there are standards for program evaluation that are adapted to the specific conditions of state and municipal government in the Russian Federation in the context of administrative and social reforms.

The standards aim to ensure that assessment is useful, feasible, fair and accurate. Below is a description of the standards that can be used by committee specialists when developing parameters for evaluating social programs (Table 7)

Table 7

Description of standards adapted for specialists of the Committee for Health and Social Support of the Murmansk City Administration)

No. Standard name Short description standard1. Utility standards Determine the focus of the evaluation of a social program on serving the information needs of relevant users. 2. Feasibility Standards Ensuring that social program evaluation is realistic, reasonable, diplomatic, and cost-effective. 3. Standards of LegalityEvaluating a program in a manner that is lawful and respectful of those involved in the evaluation process and who are affected by its results in an ethical manner. 4. Accuracy standards Availability of technically adequate information about the characteristics of the program under consideration.

Committee staff should be aware that program monitoring and evaluation may include:

) independent specialists who are not related to the program (external assessment).

) employees of the organization who do not participate in the program ( internal assessment).

) program participants (in this case, the process would be more accurately called self-assessment).

It is necessary to take into account that the methodology, principles and tools for evaluating social programs should be determined not so much by the fact that the programs are implemented by government agencies, but by the features of the programs as such.

Social programs developed and implemented by the Committee on Health and Social Support must be aimed at solving complex problems and be long-term and large-scale; these programs must:

assume significant amounts of funding;

be developed and implemented taking into account the national and cultural characteristics of the country or region;

have political significance.

It should be borne in mind that the cost of error in programs with significant amounts of funding is very high. That is why in such cases it seems advisable to first carry out small pilot projects, carefully monitor their progress and analyze the results. Only then, taking into account monitoring and evaluation data from pilot projects, do they adjust the program and make a final decision on large-scale funding.

Naturally, government programs are developed taking into account local national and cultural characteristics. It is advisable to evaluate such programs with the participation of local specialists. Knowledge of language, history, local traditions, norms of behavior and features of the current situation allows local specialists to obtain data.

Naturally, there may be other options, which in many cases will be inaccessible to the professionals of the health and social support committee of the Murmansk city administration. You can use the help of foreign specialists.

The use of mixed groups seems useful. Foreign consultants bring international experience, methodology and tools, and professional standards. Local specialists - own experience and cultural context. In such mixed teams, the qualifications of local personnel are improved.

The political significance of social programs means that evaluation reports become, in a sense, political documents. This increases the requirements both for the quality of the reports themselves and for the qualifications of the people conducting the assessment. The “politicization” of programs often creates great problems with making independent, objective judgments.

It is necessary to take into account the following trends in the development of program evaluation that have emerged in recent years in the Russian Federation:

assessment is receiving increasing attention all over the world, including leading international organizations and agencies (especially in the last 5-6 years);

increasing the number of specialists involved in assessment; an active process of creating national and regional professional associations (more than 30 over the last 5 years), the International Network “Program Evaluation” was created in the CIS in 2000;

development of international cooperation, creation of international organizations in the field of assessment;

development and use of assessment standards and principles (including taking into account national and cultural characteristics);

integrating monitoring and evaluation systems into programs and projects at the development stage;

differentiation different approaches to assessment ("schools") and development of appropriate methods and tools;

active development of the “participatory evaluation” methodology and its widespread use, in particular, in the evaluation of programs in rural areas and programs for the development of local communities;

assessment orientation towards practical use.

3.3 Ways to improve the assessment of the effectiveness of a social program using the example of the social program “Additional measures of social support for people with disabilities for 2010”

1. Characteristics and relevance of the problem.

Disability, along with indicators of morbidity and physical development, is an important indicator of the state of public health of the population. Problem social adaptation people with disabilities does not lose its relevance at the present stage of development of society. One of the main directions of the state's social policy is the rehabilitation of disabled people, aimed at eliminating or, as far as possible, more fully compensating for disabilities in order to restore the social status of the disabled person, achieving financial independence and access to all social infrastructure facilities.

According to changes in the legislation of the Russian Federation, the implementation of powers in the field of social protection of the population is within the competence of state authorities of the constituent entity of the Russian Federation. In accordance with Article 20 of the Federal Law of October 6, 2003 N 131-FZ “On the General Principles of the Organization of Local Self-Government in the Russian Federation,” local government bodies have the right to establish, at the expense of the municipal budget, additional measures of social support and social assistance for certain categories of citizens, regardless of on the presence in federal laws of provisions establishing this right. The financing of powers provided for by this part is not the responsibility of the municipality, is carried out if possible and is not the basis for the allocation additional funds from other budgets of the budget system of the Russian Federation.

The administration of the city of Murmansk, understanding the significance of the social problem, has been exercising the right since 2007 to provide additional measures of social support for certain categories of citizens - residents of the city of Murmansk at the expense of the municipal budget.

The current economic situation dictates the need to maintain the volume of provision of additional measures of social support to certain categories of citizens at the same level. The implementation of the activities of the departmental target program “Additional measures of social support for people with disabilities” for 2010 (hereinafter referred to as the Program) will allow the municipal formation of the city of Murmansk to participate in the implementation of similar programs at the federal and regional levels.

The relevance of the problem is determined by the presence in the social structure of society of a significant number of people who have signs of disability. As of the first half of 2009, 311.2 thousand people live in the city of Murmansk, of which about 13 thousand are disabled, including more than 600 children.

Social and everyday adaptation makes it possible to maintain the ability of disabled people to self-realize vital needs by increasing physical activity, normalizing mental status, and restoring the ability of disabled people to self-care. To achieve greater efficiency, it is necessary to develop and implement measures that cover all aspects of the life and rehabilitation of people with disabilities.

The implementation of a program-targeted approach to solving the issues of organizing additional social support for people with disabilities makes it possible to more comprehensively address issues of social protection of people with disabilities, and to increase the effectiveness of existing activities by expanding the list of services provided. In this regard, the development of a program of additional measures of social support for people with disabilities in the city of Murmansk seems relevant and timely.

The program defines a system of additional measures of social support for citizens with disabilities, aimed at the social integration of disabled people into society, providing them with equal opportunities to participate in economic and public life along with other members of society.

Program Passport.

The name of the subject of budget planning - the main manager of budget funds - is the Committee on Health and Social Support of the Murmansk City Administration.

The name of the Program is the departmental target program “Additional measures of social support for people with disabilities for 2010.”

Goal of the Program: reducing the impact of the main socio-economic problems of citizens with disabilities.

Consequences of achieving the goal: increasing the level of social integration of disabled people into society, providing them with equal opportunities to participate in economic and social life along with other members of society.

Objectives of the Program: creating conditions to ensure equal opportunities for people with disabilities, their social integration into society.

Target indicators (indicators):

number of events;

the number of disabled people (families) who received financial (one-time financial) assistance;

number of tickets purchased;

number of children who attended social camps;

the number of public organizations that received assistance in the social and labor rehabilitation of young disabled people;

number of strollers purchased;

the number of trainers and instructors invited to work;

number of automated jobs created;

the number of purchased thematic publications, diagnostic, gaming aids and correctional and developmental automated programs;

the share of disabled people who received additional social support measures out of the total number of applicants.

Characteristics of program activities - a set of measures that define a system of additional measures of social support for people with disabilities, aimed at their social integration into society, providing equal opportunities to participate in economic and public life along with other members of society (the list of activities is presented in Appendix 2).

The period for implementation of the Program (achieving target indicators and indicators) is 2010.

Amounts of funding from the city budget by quarter:

quarter - 537.50 thousand rubles;

quarter - 937.50 thousand rubles;

quarter - 237.50 thousand rubles;

quarter - 1497.50 thousand rubles;

total - 3210.00 thousand rubles.

Expected final results of the implementation of the Program and indicators of socio-economic efficiency - maximum satisfaction of the need for additional measures of social support for people with disabilities - at least 90% of the total number of requests from people with disabilities, families raising children with disabilities, public organizations dealing with issues of people with disabilities.

Increasing the social status of disabled people, their level and quality of life. An increase in the proportion of disabled people (up to 7%) covered by the Program’s activities, which will allow them to develop and improve their capabilities in everyday, socio-cultural, and sports activities.

The implementation of the Program's activities will ensure coverage of at least 15% of the total number of disabled people living in the city of Murmansk.

Assessing the effectiveness of a social program

) Design for evaluation of the social program "Additional measures of social support for people with disabilities for 2010"

Assessment Issues

The innovative nature of the program set a number of challenges for the city administration management tasks. In particular, it was important to analyze how:

implement the goal set for the program “to reduce the impact of the main socio-economic problems of citizens with disabilities”;

increase the effectiveness of the program, including in terms of creating conditions to ensure equal opportunities for people with disabilities;

improve the efficiency of program administration.

The assessment questions were also formulated in accordance with these objectives.

Question No. 1. To what extent is the program able to create conditions to ensure equal opportunities for people with disabilities and their social integration into society?

Question No. 2. What program factors influence the successful increase in the level of social integration of people with disabilities into society?

In particular:

The creation of a system of multi-level integrated education is impossible without a system of special teacher training aimed at developing skills in dealing with people with disabilities, with the participation of people with disabilities and on the basis of resource centers created at specialized schools (or on their basis).

Consider general shape employment as the best way to employ disabled people. Try to overcome discriminatory, information and other barriers.

What is the nature of the work received by program participants?

Question No. 3. Has the assistance in the program been targeted?

Targeting means not so much compliance with the rules of the program (that is, the provision of assistance, as provided for by the rules, only to disabled people, families raising disabled children, public organizations, dealing with disability issues) as much as concentrating its resources on supporting people with disabilities.

Question No. 4. What are the ways to optimize budget expenditures for the program?

In particular:

How do the resources allocated to implement the program compare with the program design requirements?

Are there opportunities to reduce program costs without compromising its effectiveness?

) Data collection methods.

To obtain the most objective possible assessment of the program, it is necessary to diversify the sources and nature of the information under consideration as much as possible. In particular, this means using not only municipal data or, on the contrary, not only data from a sociological survey of participants - otherwise the results may be incomplete.

The monitoring system includes two types of indicators: intermediate and resulting. Interim indicators characterize the process of program implementation and reflect mainly the level of financial and administrative costs, both current and one-time. Data for monitoring intermediate indicators are collected by social protection authorities implementing the program in Murmansk. The resulting indicators characterize the degree to which the program achieves its goals. Examples of resulting indicators are indicators of the duration and employment status of program clients, salary levels and participation in social programs, etc. Data for their monitoring should be based, among other things, on a feedback mechanism from the population.

Thus, the data collection system for the assessment became a combination of the following methods:

.Analysis of administrative data, which included applications from program participants, documents on social services received, training completed, work experience and job searches.

2.Structured in-depth interview with one of the social protection officials who worked with program clients.

.Structured in-depth interview with the employee responsible for working with clients of the program.

.Preliminary focus group with program participants - used to collect information necessary to compile a questionnaire.

.A questionnaire survey of program clients conducted in their homes (clients who participated in the preliminary focus group are excluded from the number of respondents).

.Observation - one of the members of the independent evaluation team has the opportunity to observe the procedures and progress of the program at various stages of its implementation.

3) Conducting surveys

When conducting surveys of program participants, students from the Department of Social Work can be used as interviewers who have undergone detailed instructions, which included an explanation of the goals, objectives and main aspects of the program, explanations for each question in the questionnaire and an analysis of existing opportunities for checking information during the interview - identifying logical contradictions in statements and repetitions of information, comparison of the received data with other sources of information (for example, program rules), etc.

The questionnaire could, for example, consist of four main sections that ask for the following information:

-demographic and socio-economic characteristics of program participants and their families, education and previous work experience of participants (including last specialty), sources of information about the program, convenience of procedures and clarity of program rules, range of social services received before and after participation in the program, general satisfaction with the work of social services involved in the program, etc.;

-information about the participants’ employment (the questions were addressed only to those participants who managed to find a job): the nature, degree of responsibility of the work received, the level of wages and factors that, from the participants’ point of view, influenced finding a job, etc.

-information about the reasons for unemployment or job loss (for those participants who found work during the program, but were unable to stay in a new place): reasons for dismissal, personal opinion of participants about the factors that led to job loss, likelihood of finding work in the future, motivation participants find a job, their efforts to find a job (receiving job offers and reasons for refusal);

-assessment of the income level of families of program participants: the share of the family budget spent on food, the total monthly income of all family members.

4) Conducting interviews

Interviews with specialists from social protection agencies and employment service employees. In the structure of the interview, three key aspects of the program can be distinguished:

1)the effectiveness of the program in terms of administration, costs of its implementation, accuracy of target group selection, services provided by the program, and the contribution of the employee himself;

2)factors, in the opinion of social protection specialists, influencing positively or negatively the social integration of disabled participants during the program;

3)the degree of understanding by specialists of social protection authorities of the final goals and objectives of the program.

Interviews with specialists from employment centers directly serving program participants should also reveal the specialists’ awareness of the goals and expected results of the program, their assessment of the accuracy and correctness of the choice of the target group. In addition, specialists can express their opinions on problems encountered during the implementation of the program.

Thus, assessing the effectiveness of social programs can be of an economic and social nature.

Cost-effectiveness is assessed as the sum of costs incurred under the municipal target program at the time of assessment, divided by the overall performance index. If this result exceeds the expenses planned at the time of assessment, the cost effectiveness of the municipal target program is negative, which requires an analysis of the state of the municipal target program and management decisions.

To summarize, we cannot fail to emphasize the following:

The development of a social program and evaluation of its effectiveness, based on competent methodology, is an activity aimed at achieving a specific goal (changing a certain situation) in a limited time and using predetermined resources.

When developing a program, it is necessary to carefully plan the process of its implementation - the sequence of “steps” that will lead to the desired change in the situation. To carry out these steps, resources are needed: people, materials, equipment, environment, technology. High-quality implementation of the program is impossible without monitoring the progress of work and analyzing the results obtained. These functions are called monitoring and evaluation.

The essence of monitoring and evaluation is the same - tracking the progress and results of a program and providing information to decision makers. The differences between monitoring and evaluation can be simplistically formulated as follows: monitoring answers the question “How are things going?” This is routine, everyday monitoring of the situation, comparison current situation business with a plan; assessment answers the questions "So what?" and why?". Assessment involves a more in-depth analysis of what is happening compared to monitoring. Assessments are carried out from time to time.

Evaluation of the effectiveness of a social program can be economic and social. In the first case, initial costs and a performance index are taken into account, in the second - conducting surveys of target groups.

I would like to draw the attention of specialists from the Committee on Health and Social Support of the Murmansk City Administration to the fact that the main purpose of monitoring and evaluating the social program is to provide information for making further management decisions. Therefore, information must be sufficient, timely, reliable, and reliable.

Conclusion

In conclusion of the study, it is necessary to emphasize that its goal was achieved, all the assigned tasks were completed, in particular, during the study, the most important theoretical aspects of drawing up socially significant projects and programs were identified.

The main theoretical conclusions were the following:

) social program - a program aimed at solving a particular social problem. As a rule, the social and socio-economic effect of social programs is expressed in improving the quality of life of citizens and society as a whole. Ultimately, in the process of implementing social projects/programs, pressing problems of a social nature are most often solved: reducing poverty, mortality, reducing the number of homeless people, etc. - this definition is supposed to be considered basic (in connection with the specified subject of research);

) targeted social program - a set of activities linked by resources, implementers and deadlines, developed in order to meet the municipal social needs of the city through full or partial financing from the city budget and city extra-budgetary funds, etc.

In the process of work, the regulatory framework was examined, on the basis of which social projects and programs are developed in the Russian Federation, regions and municipalities.

The studied provisions of program documents regulating the principles, system and development of social programs require significant improvement in the course of administrative and social reform.

During the research process, the main types of social projects and programs were characterized.

Social programs implemented at the local level and conditionally identified by type - depending on their purpose, the category of population to which they are aimed, must be drawn up on the basis of a systematic approach, focus on modern methodological developments, and meet the needs of the population of the municipality.

The development of a social program and its evaluation, based on a competent methodology, is an activity aimed at achieving a specific goal (changing a certain situation) in a limited time and using predetermined resources.

Any social program is aimed at solving a particular social problem. Strictly speaking, program development begins with analyzing the problem and finding out what exactly needs to be changed. The end result of the program should be the desired change in the situation (solution to the problem): reducing the level of poverty, reducing the number of homeless people, improving the quality of education, improving people's health, etc.

When developing a program, the process of its implementation is carefully planned - a sequence of “steps” that will lead to the desired change in the situation. To carry out these steps, resources are needed: people, materials, equipment, environment, technology. Implementation of the program is impossible without monitoring the progress of work and analyzing the results obtained. These functions are called monitoring and evaluation.

The work examined the practice of the Committee on Health and Social Support of the Population of the Murmansk City Administration in drawing up, implementing and monitoring socially significant projects and programs; available methods were analyzed, ways to improve the process of development, implementation and monitoring of social programs implemented in the city of Murmansk were identified.

It was concluded that the methods for developing and drawing up social programs in the Committee for Health and Social Support of the Murmansk Administration have both strengths and weaknesses. The considered assessments of the implementation of social programs may be used incorrectly, because ignoring other factors outside the scope of monitoring or evaluation issues can lead to ineffective and ineffective implementation of the program.

The development of a social program and evaluation of its effectiveness, based on competent methodology, is an activity aimed at achieving a specific goal (changing a certain situation) in a limited time and using predetermined resources.

Evaluation of the effectiveness of social programs can be of an economic and social nature. Cost-effectiveness is assessed as the sum of costs incurred under the municipal target program at the time of assessment, divided by the overall performance index. If this result exceeds the expenses planned at the time of assessment, the cost effectiveness of the municipal target program is negative, which requires an analysis of the state of the municipal target program and management decisions.

The assessment of the social effectiveness of the municipal target program is carried out by conducting surveys of the target groups that the municipal target program is aimed at. At the same time, for each specific case, a method for assessing social efficiency is determined, questionnaires and methods for conducting surveys are developed. The results of assessing the social effectiveness of a municipal target program can be both qualitative and quantitative.

Bibliography

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12 On approval of the regulations on the committee for health care and social support of the administration of the city of Murmansk: resolution of the administration of the city of Murmansk dated September 09, 2009 No. 900. - Access mode: [#"justify">.13. On approval of the departmental target program "Additional measures of social support for certain categories of citizens" for 2010": Decree of the Murmansk City Administration dated September 2, 2009 No. 842. - Access mode: [#"justify">.14. On approval of the departmental target program “Additional measures of social support for people with disabilities” for 2010”: resolution of the Murmansk City Administration dated September 2, 2009 No. 843. - Access mode: [#"justify">.15. On providing the population of the city of Murmansk with fish products under the social program "Cheap Fish": Decree of the Administration of the city of Murmansk dated April 30, 2009 No. 134. - Access mode: [#"justify">1.17. On the commission for social support of certain categories of citizens of the city of Murmansk": Decree of the Administration of the city of Murmansk dated September 28, 2009 No. 1002. - Access mode: [#"justify">.18. Basic provisions of the economic development strategy of the Murmansk region for the period until 2015 : Decree of the Government of the Murmansk Region No. 251-PP dated December 20, 2001. - Access mode: .

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Periodicals

1 Lushnikov, I.V.

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Achieving long-term goals of Russia's socio-economic development in the context of a slowdown in economic growth and increasing budget constraints requires the search for new solutions to improve the quality of budget services, the efficiency and effectiveness of the costs of their provision. For the social sphere, this task is especially relevant, since here, as a rule, there are no clear criteria for measuring the quality of services and assessing the final effect of their provision. Elena Igorevna ANDREEVA, Director of the Center for Fiscal Policy Research Antonina Sergeevna KOVALEVSKAYA, Director for Development of the Center for Fiscal Policy, scientific director of the “Fiscal Policy” direction, Ph.D. n.

Why evaluate the economic effectiveness of social programs

Any programs are implemented only because the social value of the benefits created exceeds the social value of the resources expended, and social programs in this sense are no exception. However, since there is no single, generally accepted methodology for measuring the results of social programs, the effectiveness of such programs is usually assessed inadequately. The situation is aggravated by the fact that public dissatisfaction with the quality of social services and their accessibility often requires large-scale reforms, and reforms inevitably involve increased costs, at least in the short term. Due to underestimation of effectiveness, such programs often receive less funding than economic development programs and projects, which can be a serious drag on social progress.

An assessment of the economic efficiency of social programs is necessary not only to justify the need to allocate additional budget funds in conditions where there is competition for them. It is also needed to attract funds from extra-budgetary sources. To finance programs in the social sphere, funds from extra-budgetary sources, for example private charitable foundations and international donors, for whom it is important that their funds not only go to a good cause, but also ensure the achievement of a measurable result that exceeds the resources expended. An assessment of the economic efficiency of social programs is also necessary to determine the budget implications of program implementation, to justify the required volumes of budget funds and other resources, to compare alternative programs and activities, and finally, to justify changes to previously adopted and implemented programs in terms of their financial support.

How to evaluate the economic effect of a social program

The methodological basis for assessing the economic efficiency of social programs has not yet been finalized. There is no uniform terminology and methods for determining indicators of the effectiveness of social programs, general approaches used in calculating the economic efficiency of social programs have not been developed, and the composition of the information necessary for carrying out calculations has not been determined. When making decisions regarding new programs or activities, it is not practiced to compare different options for achieving the goals set for each social program.

Meanwhile, general theoretical approaches to conducting such an assessment are known. It is necessary in one way or another to measure the result expected from the implementation of a social program and compare it with the amount of funds spent on its implementation. The main difficulty in this case lies precisely in measuring the final result. In the simplest case, to assess the economic effectiveness of reforms in the social sphere, in particular those involving changes in the composition of services addressed to target groups, it is enough to show that the social service system that will arise as a result of their implementation will be able to better meet the needs of target groups than the existing one, and Moreover, the current maintenance of the new system will cost the budget no more than the existing one. In cases where the reform is aimed at meeting new needs or covers new target groups that have not previously received budgetary services, it is necessary to show that these services will not only satisfy an existing need, but that the effect that will be obtained from their provision will justify an increase in budgetary expenditures . In addition, calculations should show that the cost of maintaining the social service system that will be created as a result of the reform will be feasible for the budget of future periods.

The main methods for assessing the effectiveness of social programs are predetermined by the peculiarities of assessing the results of the activities of non-profit organizations (hereinafter referred to as NPOs). In the non-profit sector, which includes both government and non-government organizations providing social services, performance results cannot be expressed in one universal indicator. To justify the need to develop and implement programs in the social sphere, the main goals of which are to improve the quality of life of individual target groups of the population or society as a whole, a special system for assessing the efficiency of spending funds should be created. The problem here is that the results of such programs may or may not be accurately quantifiable.

The result of the implementation of any programs, including socially oriented ones, is always the creation of new value. The decision to fund any program means that society values ​​its results higher than the resources spent. This value can be different in nature, including purely economic or market, purely social and socio-economic. The assessment methodology involves working mainly with the socio-economic value created as a result of the implementation of social programs, however, for completeness of the presentation it is necessary to characterize the entire range of possible results.

Economic cost. This is the creation of new value as a result of the use of economic resources. Examples of economic value creation are well known from private sector activities. Measurement methods are also well known: indicators such as added value, profit, profitability, capital productivity, payback period, etc. are used. During the implementation of socially oriented programs, problems may also arise economic value. For example, enterprises created to provide employment for people with disabilities may well be profitable, although they are not created for the sake of making a profit. The new economic value created by such projects consists of the enterprise's after-tax profits.

Social cost (public or social outcome). It is about making a positive difference in the lives of individuals, a target group or society as a whole. Social impact is often difficult to measure. For example, preserving forests improves the life of the entire society, but exactly how much life becomes better is difficult to measure, especially in monetary terms. The direct result of social (including environmental) programs, as a rule, is measurable - so many hectares of forest are preserved or so many public events are held, but the social value of these immediate results is not always measurable. Nevertheless, some social results are quite amenable to monetary measurement - for example, increasing the income of representatives of the target group.

Socio-economic cost. This is part of the social outcome that can be measured in monetary terms. As a rule, socially oriented programs lead to budget savings by increasing the independence of program participants from among socially vulnerable categories of the population and reducing the need for them state support. By increasing the independence of participants, such programs can lead to increased employment among representatives of the target group and an increase in their income, which is also an important socio-economic result and, in turn, leads to an increase in budget revenues through an increase in the tax base. Since socio-economic results are measured in the same monetary terms as the costs of implementing a program, the socio-economic effectiveness of social programs can be measured using the same principles that are used to evaluate the effectiveness of investment projects.

Examples of social programs aimed at achieving primarily socio-economic results are programs in the field of increasing employment, employment of people with disabilities, socialization and employment of graduates of children's boarding institutions, training programs, etc. As an additional or side effect, socio-economic results arise in many social programs that do not aim to achieve savings in budget expenditures or increase budget revenues. Taking into account such effects makes it possible to at least partially “justify” the costs of implementing social programs by considerations of budgetary savings or economic benefits. In addition, despite the fact that the calculated assessment of the socio-economic efficiency of social programs is incomplete and does not take into account all the social benefits generated by the program, it often makes it possible to prove the feasibility of spending on social programs, since the socio-economic value created by them turns out to be greater than the costs of their implementation.

Assessment of socio-economic effect

When assessing the socio-economic effect created as a result of the implementation of a social program, it is necessary to take into account all socially significant effects - the benefits that will be received by direct participants in the program, benefits and costs for the budget, benefits and costs for residents of the territory where the social program will be implemented , benefits and costs for society as a whole. Social costs include budget expenditures for program implementation. The loss of work by employees of liquidated social institutions can be attributed to society’s costs if society is obliged, by virtue of public or private agreements, to provide them new job. If such obligations do not exist, such a loss must be considered as a negative increase in household income as a result of the project.

As a rule, the budget is not responsible for employment or compensation for lost income for representatives of those professions who can find employment in open market(security guards, cooks, accountants, etc.), however, in relation to public sector specialists (teachers, doctors) who will lose their jobs as a result of re-profiling or liquidation budgetary institution, the attitude should be different: they may be offered compensation or participation in a professional retraining program for employment in a new place. Finding a compromise that suits all parties can be difficult, and often a compromise solution leads to a significant increase in budget costs, which is not entirely correct to attribute to the program. Rather, they should be separated into a separate program with a different target population, and when assessing the main program, they should be taken into account as a reference, only from the point of view of risk assessment.

Along with indicators of the socio-economic efficiency of costs for the implementation of a social program, the reduced net socio-economic effect, that is, the socio-economic gain minus costs, and the indicator of the net budgetary effect can be calculated. In this case, you need to be prepared for the fact that the net budget effect will be negative: budget expenses will not pay off due to the increase in budget revenues generated by the program and savings on unemployment benefits, although for the target group the effect will be significant.

Comparison of alternative program options

The results of assessing the socio-economic efficiency of costs for the implementation of socially oriented programs are very informative and important, but they do not allow us to judge whether this program provides best way meeting the needs of the target group. In the social sphere, where new programs are often aimed not at meeting new needs and serving new target groups, but at changing the composition of services offered to target groups that are already recipients of government support, it is important not so much to calculate an assessment of the socio-economic effectiveness of the program, but to evaluate its comparative socio-economic efficiency compared to using existing methods state support for the target population.

When comparing two or more alternative ways serving the same target population or different ways satisfying the same social need of the target group, there is no need to evaluate the main social effect of the program, be it providing decent living conditions for older citizens, raising children deprived of parental care, or organizing leisure time for veterans. Since service and support of the target population are recognized as necessary regardless of whether it will bring any economic benefit to society or not, one should only choose the least costly way for society to satisfy this need. This approach does not exclude the possibility of taking into account side cost effects if, for example, the provision of an alternative set of services will not only satisfy the target population’s basic need for government support, but will also lead to a reduction in the target group’s need for other budget services or, over time, will provide an economic effect in the form increased labor productivity of recipients of budget services. When making such comparisons, since the decision on choosing one or another development option has not yet been made, we can talk not about different programs, but about different scenarios for the development of the social sphere or the system of serving target populations.

Basic program requirements

The program must satisfy certain requirements, without which it cannot be used as a unit of budget planning and a tool for assessing the socio-economic efficiency of budget expenditures. A program is usually understood as a set of activities and services that lead to a certain quantifiable and socially significant result and require the allocation of certain resources for their implementation. As a rule, a program corresponds to a level of aggregation higher than an individual service, the result of which is measured by the number of consumers receiving the service. The socially significant result of the program must be expressed in an objectively measurable state of the target group. It does not matter whether the program is approved normative document or the various components of a program are combined for analytical purposes. The program must have a quantitatively measurable goal, and this goal must reflect a socially significant result concerning the state of society as a whole or individual target groups.

For government programs In the field of social protection of the population, formulating a program goal can be difficult due to the multiplicity and heterogeneity of the target groups to satisfy the needs of which they are aimed. Nevertheless, in order to formulate a list of services and activities aimed at meeting the needs of the target population, and to assess the effectiveness of the program as a whole and its individual subprograms, it is necessary to clearly define, if not all, then at least the main categories of citizens who will be provided with social support. If the program has already been approved, and the formulation of its goal does not contain measurable indicators, or if the goal is formulated in terms of tasks for performers and does not contain indications of the final socially significant result, then in order to assess the socio-economic effectiveness of the program it is necessary to assign (impute) a conditional goal to it , which would meet the necessary requirements, and select a quantitative indicator of the expected final result. The outcome indicator should reflect the change in the status of the target group or target groups, if there are several of them.

Very often, improving the well-being of the target group means increasing the independence of its members, acquiring additional skills, increasing productivity or reducing the need for government support, which can directly or indirectly lead to increased earning potential of program participants or their families. However, in many cases, improvements in the condition of the target group cannot be measured in terms of increased productivity. In relation to such programs, we can talk about assessing their socio-economic effectiveness not in an absolute, but in a relative sense, when methods of achieving the same fundamentally immeasurable goal in terms of budgetary costs are compared.

The program must include all activities necessary and sufficient to achieve the set socially significant goal, otherwise the assessment of the costs required to achieve it will be incomplete and as a result of implementing the program activities, the socially significant goal will either not be achieved or will be achieved at a different cost. It is for this reason that, as a rule, it is impossible to assess the effectiveness of individual social services: in order to achieve a socially significant result, it is necessary to consider not an individual service, but a whole range of services.

New approach

From a practical point of view, a system in which the provision of services of different composition to different recipients works to achieve the same goal requires a new approach to recording the services provided and assessing the effectiveness of the measures taken. Moreover, if at the stage of program development and planning the effectiveness of the entire complex of planned services can be assessed by experts, then at the program implementation stage it is necessary to be able to constantly monitor the real effectiveness of the measures taken. A system for recording measures taken and assessing the effectiveness (effectiveness) of new services should be built into the program in advance.

The need to include in one program all expenses leading to achieving the goal leads to blurring of the lines between current and capital expenses. Often the same goal can be achieved both by increasing current expenses, and through the implementation of a capital construction project. If capital expenditures are to be financed from non-budgetary sources, such as from charitable foundations, they should be included in the program as a means of co-financing the program from non-budgetary sources. This will not only allow us to estimate the total cost of the program, but will also show how much funds were raised from extra-budgetary sources for its implementation. The program must include all activities and services for which demand may increase or decrease as a result of program activities, regardless of which agency is responsible for providing the services or organizing the relevant activities.

Linking programs to final socially significant goals inevitably increases the planning horizon compared to the usual annual cycle, since achieving socially significant goals, as a rule, requires several years, in the social sphere - at least 3-6 years. Such a distance between the expected results and the expenses of the current period raises the question of the need to assess the average duration of the provision of social services and how much weight to take into account future budget savings or future revenue growth in comparison with the expenses that will need to be made to achieve these results in the current period.

An assessment of the socio-economic and budgetary effectiveness of program expenditures can be made both for the program as a whole and for individual activities (subprograms, projects), if these activities are necessary and sufficient to achieve the final socially significant goal. At the program planning stage, calculations to assess their expected effectiveness are usually carried out by the program developers, but to assess the actual results achieved, it is advisable to involve independent specialists who did not participate in the development and implementation of the program and are not responsible for general results implementation of program activities.