The management of the regional informatization

The main objectives of the regional policy of the social and economic development can not be solved without the proper information management and the use of modern information technology to help the process of regional management becomes more effective. Improvement of the management processes at all levels should be based on an orderly, strictly organized system of information support the use of information resources in the region.

The concept of using information technologies in the federal bodies of state power by 2010 the Government approved the order of the Russian Federation of Island 27.09.2004 № 1244-r. The concept of the regional information up to 2010 was approved by the Government of 17.07.2006 № 1024-r. Both concepts determine the priorities, principles and directions of the state policy in the field of information technology in the federal and regional government bodies in accordance with the objectives of modernizing state administration.

But in 2006, Ministry of Economic Development of RF has sent to the government a report about the changing for the better was of the state governance through the use of information and communication technologies. In it, in particular, noted that the mere growth of technical equipment of state and municipal government does not lead to a simplification and improvement of decision-making, and stated that the computerization of the State does not yet improve the quality of public administration.

It should be recognized that this is a long-standing conclusion is quite applicable to the process of information held by the government of the Arkhangelsk region. Note that, according to official data1, until 2009 in the region annually updated rating readiness for the information society is in the first third of the regions of Russia, and in 2009-2010 passed several positions, moving to 34th place2 (table 1).

Table 1

The place of the Arkhangelsk region in the ratings of the readiness to the informative society

Region	The place in the ratings of the preparing for the informative society
	2004-2005	2005-2006	2007-2008	2008-2009	2009-2010
Arkhangelsk region	22	29	25	26	34

Advantage of the region is relatively high level (63.3%) of households equipped with personal com- puters (12-th place in Russia on this indicator). This tells about the high level of computer literacy of the population, reducing the need for access points.

In recent years in the area created backbone fiber-optic communication channels in 90% of the district centers of municipalities. Developing access to the Internet through the development of 2G and 3G-networks, 45.78% of households have access to the Internet (8th place in the Russian Federation), that is, half of households with a personal computer.

Informatization of the Education sphere of the region takes place below the Russian average, and the share of educational institutions that have a website and an electronic library, the region occupies the bottom of the rankings.

The level of the informatization in the culture of the region - the average in the country, but only 41.65% of the libraries have PCs, and only 17.68% of the libraries have access to the World Wide Web. It is significant that in the region there are 284 public access points to the Internet, including libraries - 43. Only in public areas used by more than 500 computers, which averages to more than 3000 people a month (or six people on the computer).

The level of the informatization in the medicine is slightly above average, with a fairly high level of equipment in Russian hospitals computers and low on access to the Internet.

Computerization of the government goes from the "top". Thus, the primary needs of the regional government are satisfied with computers, a local computer network, and computer equipment essential personnel governments reached 100%. At the same time, the local government of municipalities, only half the staff of key staff has a personal computer, with the mayor's office in the regional center of the figure is also close to 100%, and municipal equipment in remote areas of the region is poor.

And finally, in the Russian average level of ICT use in business. It may be noted the low level of use of the software for the management of sales and purchases of goods (38th place in the Russian Federation) and the almost complete lack of online stores in the region.

It seems that this situation was caused by the neglect of the authorities in the region to the informatization of all areas of the society. Only this can explain that in the region there is practically no legal basis information, normative legal regulation of its proceedings are conducted on the basis of the secondary legislation. Currently, the incompleteness of the legal framework is one of the main problems of information, which is hampering the development and effective use of information technologies and systems at both the region in general, and on the municipal level. Need to develop regulations governing the relations in the field of ICT.

At this stage in the Arkhangelsk region there are two key documents in this regard: 1) The concept of informatization of the Arkhangelsk region up to 2012, approved by the Administration of the Arkhangelsk region from 18.06.2008 № 102-ra/17 3 ; 2) long-term target program "Electronic Arkhangelsk region" for 2011-2013, approved by the Government of the Arkhangelsk region of 19.10.2010 № 328-PP 4 .

The most cursory analysis shows that the first document was very similar to the above order of the government of the Russian Federation from 17.07.2006 № 1024-p, following its ideology and logic. True, he has appeared in just two years after its prototype. The second document was adopted two years later and, it seems, is to develop and implement the ideas of the first. However, a comparison of texts provides no basis for such a life-affirming assumptions. We see that the problems are not solved for years, and their description is transferred from one document to another.

Thus, in the concept of the 2008 is written: "Since 2006, the executive states of the Arkhangelsk region is working to establish a regional information-analytical system of (further - RIAS). This system is intended for informational and analytical support management decision making on the socio-economic development of the Arkhangelsk region. "Open the target program-2010, says: "Since 2006, the executive authorities of the Arkhangelsk region is working to establish a regional information-analytical system of (further - RIAS). This system is intended for informational and analytical support management decision making on socio-economic development of the Arkhangelsk region. 5.

Study of the concepts of information and improve the systems of the regional governance leading ICT regions reveals that their main task is to create a regional information-analytical system with distributed sources of information, distributed users and distributed components - local databases.

Indirect sign of impending failure are indicators of the target program. Thus, in the results, we find that the proportion of reports over the RIAS in 2012 is planned to only 40% and in 2013 - only 60%. The share of the regional governments and local authorities connected to the RIAS will be, respectively, in 2012

- 30 and 4%, in 2013 - 50 and 50%. It is clear that such a system would give misleading information, and that's the most important subsystem of e-government in the region, as a pre-written concept of the regional information.

The author admits that the phrase "information and analysis" with respect to this information system simply the name service that accompanies it, and uses in its work. Set of technological possibilities it usually does not go beyond the group work together on documents, search for information and reference databases. I think, given the current level of ICT development, it is appropriate to advise the regional services in the information and analysis to follow the principles of distributed information resources. This means that the service itself directly creates and maintains on its own technical resources it needs only for the current job information resources, and to all the other organizes access.

Big disadvantage is the enclosed work. January 31, 2008 in the administration of the region was held a conference "Creation of the «e-government "in the Arkhangelsk region." The conference drafted a resolution „6, in which the administration of the region recommended to develop in 2008 a long-term regional target program "Electronic Arkhangelsk Region" with the participation of all interested parties to enter into the composition of the Coordination Council for Informatization of the Arkhangelsk representatives of municipalities, to establish a working group with the Coordination Council for Informatization of Arkhangelsk development of e-government.

In two years in the target program-2010 we can read: "As part of the governor's administration and parliament was created the Council for Information of the Arkhangelsk region, the aim of which is to coordinate and organize the interaction of the executive bodies of the Arkhangelsk region, territorial bodies of the federal executive authorities, local self-government of municipalities region, organizations located in the region, for information and information management. But for many reasons organizational functioning of this Council for Informatization difficult and ineffective. However, the presence in the region, the current council for information is a requirement of the government of the concept of the regional informatization.

It is known that in practice, that the management solutions do not always have sufficient analytical work, economic and legal grounds. Insufficient the level of the system design of large information systems, and the potential, in particular the Institute of Information and Space Technology of NArFU, is not used.

Informational interests of the persons, who are decision makers in the government area and defines the problems solved by them, but experience shows that for effective information management can not be extended beyond the request of the first persons to be informed. The need to integrate scientific, expert, predicted forces of the region and to coordinate their activities is evident in terms of the governance and resource security.

Understanding the scale of the problems and the limited resources, it is impossible to maintain a staff of the professional experts in all fields. Therefore, the governments are very important to have a

"hand" of experts in various fields, opportunities and resources to quickly bring them to discuss the problems, a one-time consultation. Such a question presupposes that the government of people, professional credentials include the formulation of problems, the organization analyzes, coordination of experts, the implementation of procedures and technology expert, a synthesis7.

During the study of the target program is striking into the eyes the strange distribution of the fund for the program through the years of the implementation (Table 2).

Table 2

The distribution of funding CPU "Electronic Arkhangelsk region" for 2011-2013

Sources and the directions of the funding	The amount of funding over the years, thousands of rubles
	ВСЕГО	2011	2012	2013
Total	1 050 372,00	50 000,00	478 558,00	521 814,00
From the regional budget	1 050 372,00	50 000,00	478 558,00	521 814,00

It is surprising, firstly, a tenfold increase in funding between the first and second years of implementation, that just shows the character of a non-system works, and secondly, the lack of municipal and extra budgetary funding, which would be quite appropriate for such program. I think that if there would be a public examination of the opportunity to create a more optimal structure of the budget target program with the involvement of municipal and non-budgetary funds. In addition, the money could have been used in the first place, the infrastructure of information exchange with the municipalities. This is the most urgent task, as exemplified by the decision of the government of the Russian Federation from 08.06.2011 № 451 "On the infrastructure that provides information technology interaction of information systems used for public and municipal services in the electronic form." 8». From the entire document I want to cite only one paragraph: "The interaction of the information systems of the executive authorities of the subjects of the Russian Federation, local self-government, as well as organizations involved in the delivery of public and community services said authorities in the territory of one of the Russian Federation, is performed using regional system of interagency cooperation, created in the region of the Russian Federation and to be connecting to a single system of interaction (the interaction of the regional system). "

In the field of the system of interagency of the electronic interaction (SMEV) as an infrastructure sub-system of e-government is preparing to be created.9.

Its aim is to ensure the efficient electronic process of the Information interaction. The first phase of SMEV is to provide the basic functions of e-government: interdepartmental cooperation between state and local authorities.

Guidelines for creating the departmental systems, the requirements to specialists or integrators to create interactive services, as well as the methodology of the organizational issues planned to develop and provide to the representatives municipal administrations responsible for the organization of translation services in electronic form, during the training seminar, was scheduled for the fourth quarter of 2011. As of May 2012, a series of training workshops have not yet been completed.

We should remember that by the order of the Russian Government of 15.04.2011 № 654-r "On the basic state of the information resources" approved list of the basic information resources used in providing state and municipal services. From 1 July 2011 the competent authorities, including the Pension Fund, the Federal Tax Service of Russia, Rosreestr, Federal Migration Service of the Russian Federation and the Ministry of Internal Affairs of the Russian Federation, provided the concerned authorities and organizations at their request electronically information on persons or objects and identifiers. Interested bodies and organizations that date is not recommended to independently collect and store information about people or objects contained in the relevant basic share, in respect of which they are not authorized agency.

For our region the situation is complicated by the fact that the federal agencies at the local level are, as a rule use the inter-municipal character. Thus, the tax office or branch of the Pension Fund serves the territory of two or three areas. In these conditions are particularly relevant two positions: a) the accuracy and reliability of the database of federal agencies b) a reliable system of information exchange. Otherwise forthcoming deployment network of multifunctional centers on the principle of "one window" will result in financial losses and hassle for residents of the Northern Province.

Of course, the regional government is to establish a roster of the regional information resources. It was believed that in 2009 in the regional register of the state and municipal information resources and systems were registered in 127 information systems and databases in the bodies of the Arkhangelsk region and 44 - in the municipalities of the Arkhangelsk region. But the author could not find in the public domain, this registry, so give here more relevant information on the roster is not possible. Allow use as an example the register of information systems in the Arkhangelsk10, posted on the official website of the municipality (table 3).

Table 3 The structure of the automated information system of the Municipality «City of Arkhangelsk»

№                            The name of the automated informational system

Automated information system of the budget process in Arkhangelsk "Electronic Treasury" (AIS BP) Automated information management system of the municipal property "Property" (AIS UMI) The complex background of the legal support (CAS) "Consultant", "guarantee", "Code"

Automated system of the corporate document in the municipality "City of Arkhangelsk" (ASKD)

Geographic Information System MO "The city of Arkhangelsk" (GIS)

Automated information system of town planning activities "Monitoring" (AIS JRT)

Automated information system of the municipal order of Arkhangelsk (AIS MOH)

Local area network of the City Hall (LVSM)

Automated information system of the municipal services "Monitoring emergency housing municipality" City of Arkhangelsk "(AIS GC)

An automated system for reporting information to the public "Internet portal to the official infor- mation the municipality" City of Arkhangelsk "

Automated information system "Population" (AIS H)

The software package "Accounting and control orders mayor of Arkhangelsk" (PC UPM)

Considering, that the Arkhangelsk region, is not just the municipality and the administrative center of the Arkhangelsk region, it must be admitted that his information policy closely be linked with regional. 11. For the development of effective information it would be prudent to create a coordinating body on the basis of the regional and city administrations. Such a structure is logical obliged the following functions:

formation and implementation of common policies and the city information, take into account the interests of the government and appealing to all members of various urban and regional programs and projects;

formulation of principles and establishment of a common information-telecommunications space with a trend towards unification of technologies and requirements for ensuring the integration of municipal, regional and other information resources;

establishment and maintenance of information security, regulation of access to information resources; the development of common eligibility criteria, rules views, forms, reports and other formal requirements for the materials;

administration, regulatory and legal maintenance of the information systems.

Electronic Journal "State Management" June 6, 2011 published an analysis of traffic portals of public services in the country12. Marked an increase in attendance of the public services portal of individual subjects of the Russian Federation. On the other hand, traffic portals of the state and municipal services to the majority of subjects stayed at extremely low level. Typical is the average of the daily attendance of the portal 0, 0002 -0, 0004% of the subject. For a member of the Federation with a population of 1.5-2 million people in attendance at the portal of 500-600 people per month is more a rule than an exception. Among the examined subjects are identified three top portals:

1st place - The Portal of the state and municipal services of the Novgorodskiy Region.In May 2011, the portal has registered 130, 882 visitors, accounting for 3,9 % of the Novgorodskiy region; 2nd place - the portal of the state and municipal services in the city of St. Petersburg: 84,383 visitors, or 1.8% of the population;

One more 10-15 subjects of the Russian regions have portals, attendance of which is in the framework of any decency.

Internet users simply ignore most of the public services portals, because studies show that in the many regional portals of the state and municipal services are useful to the public and business information

available. These portals are made just for the record (or for any other purpose), the conclusion comes to the magazine. Unfortunately, more recent data on attendance of the public services portal has been found.

Since October 2010, the regional portal and the reestr of the state and municipal services of the Arkhangelsk region functinioned13. At the beginning of May 2012 on the site there is the evidence of 173 and 419 services regulations execution services14. Counter portal visits from October 2011 to May 2012 has registered more than 18,000 visits.

In 2011, the Government of the layout was shown the service "provision of grants to pay for housing and communal services" fully electronic authentication using electronic map resident of the Arkhangelsk region. It was promised¹⁵, that In July 2011, will be given the opportunity to provide five services electronically to the maximum phase, and after the pilot operation phase will be carried out "Replication Services" (September 1 - December 30, 2011), following which it will be possible to provide in electronic form 58 services to the highest possible stage of the translation. From 1 January 2012 it was planned to start the production of the universal electronic cards, but according to the reports, to let them have not started .

Continuous improvement of the information systems of the region, the promotion of the development, condition monitoring, quality, relevance, tracking information links, the use of the system in the practice of the management requires an organizational structure.

In the structure of the administration of the governor and in the government in 2010 established the Department of Information Technology, which is competent to develop and implement a unified strategy of informatization. The Department of Information Technology has become the management of seven experts.

It would be truer to say that the administration simply renamed the department. It seems that this is not the answer. The fact that the concept of information of public authorities of a section VI «regional information management"16. It says that the enforcement program requires information of the authorized body of the Arkhangelsk region, performing the functions of the state customer of the program and the chief administrator of budget funds to ensure program implementation, coordination of its implementation.

Any scientific methods can not explain this distribution of powers, as it is observed in the data sheet long-term target program "Electronic Arkhangelsk region" for 2011-2013:

• >    the state client coordinator: the administration of the governor and the regional government;

• >    main developer: the administration of the governor and the regional government;

• >    among the performers of the program: the administration of the governor and the regional government;

> control over the implementation of the program: the administration of the governor and the regional government.

By the way, the creation of one of the best systems for information security management Administration of the Yaroslavl region in strict compliance with the regional law "On information support government of Yaroslavl region," and the decision of the Governor "on politics in the field of information." The network of public authorities led by an independent department of information and analytical support for the Yaroslavl region17.

In addition, in the concept of informatization of the organs of the state power of the Arkhangelsk region indicated that providing the information program requires public authorities carrying out the functions of the state customer activities in the field of information in different fields. For effective regional information necessary to create structures and units responsible for supporting the individual subsystems of electronic government.

We know that only five of the executive bodies of the state power of a department of information technology (3-5 experts) in the field of the executive works on one of skill in the field of information technology. Organizationally, these are the specialists (about 40 people) who doesn’t subject to the department of information technology, which makes it difficult to coordinate their actions.

E-government - is a new form of organizations of public authorities, secured by the increased use of information and communication technology a new level of speed and convenience of obtaining organizations and citizens of the government services and information on the performance of government agencies. E-Government takes the interaction between society and the state to the next level, as a substitute for visits to government agencies, phone calls and sending paper mail.

The center for Applied Economics commissioned by the electronic journal "State management"18, it created the rating of the Russian regions in terms of e-government, as of January 1, 2012 (Table 4). During its development, firstly, emphasized the special services that are required to implement in accordance with the decree of the Government of the Russian Federation № 1993-r. All these services are located on the portal, check. Secondly, consider the implementation phase of service, but does not match the level of services, to the developer portals. Thirdly, take into account the stability of the portals and the attendance of the state and municipal services, the availability of the MFC and kiosks per 10 000 population.

Table 4

Rating in terms of the RF subjects of e-government On the 1 of January 2012 (North –Western Federal Subject)

№	Federal Sunject	The place in the region		The place in the RF			Grades
North –Western Federal District
1	Republic Karelia	4	4	35	48	116,25	57,25	3,00	0,00	48,00	8,00
2	Republic Komi	2	3	24	30	133,50	70,00	13,50	0,00	48,00	2,00
3	Arkhangel region	5	8	38	64	115,00	51,50	8,50	15,00	38,00	2,00
4	Nenezkiy Autono-	11	11	78	78	53,50	11,50	0,00	0,00	38,00	4,00

17 URL:

18 URL:

mous Districtг 5 Vologodskiy region 7 6 57 59 92,75 45,50 7,25 0,00 33,00 7,00 6 Kaliningradskiy Region 10 10 77 75 56,25 15,25 0,00 0,00 28,00 13,00 7 Leningradskiy Region 6 5 46 54 101,25 31,00 8,25 15,00 38,00 9,00 8 Murmansk Region 8 7 62 62 88,50 26,50 6,00 25,00 23,00 8,00 9 Novgorodskiy Region 3 2 25 26 133,25 69,75 9,50 10,00 33,00 11,00 10 Pskovskoiy Region 9 9 63 72 88,00 48,00 0,00 0,00 38,00 2,00 11 Saint Petersburg 1 1 3 4 210,50 49,00 7,50 65,00 68,00 21,00 In the present ranking of the Arkhangelsk region is not at the worst position, but on the basis of conducted analysis in this article, I must say that some questions require more serious and detailed study. Particular attention should be paid to the institutional component, as often to develop a plan or program is no mechanism to implement them, so that many of the plans are only good intentions, and most of their points without changes included in the new "promising" programs.

Reviewer – Zalivskiy Nikolai Pavlovich, Doctor of Economy, Professor.