Organizational culture in the civil service system

Sushko Valentina Afanas'evna PhD in Sociology Associate Professor; Department of Sociology of Public Administration; Lomonosov Moscow State University, Faculty of Sociology 119992, Russia, Moscow, Leninskie Gory str., 33, building 1 valentina.sushko@gmail.com Other publications by this author

Introduction

The shortage of professional staff has become a serious challenge for modern organizations, negatively affecting their performance. Government agencies are actively studying the successful business experience in this area, introducing advanced techniques. The formation of a favorable corporate environment can significantly enhance the efficiency of work and achieve the goals of the organization. That is why improving the culture of the organization in the public sector is becoming a priority area of development.

Management specialists are particularly interested in the phenomenon of organizational culture of civil servants, which is still poorly understood. In the context of the effectiveness of government agencies, a systematic approach to the development of their organizational culture, including motivational mechanisms, coordination of actions and control, plays a key role. That is why considering the organizational culture of civil servants as a management project is becoming increasingly important in modern conditions. Cultural values are a fundamental element of this system.

The effectiveness of civil servants is a key indicator of the quality of public service. The organizational culture among government civil servants is a set of time-tested behavioral norms and value orientations. These rules, which have proven their effectiveness, are passed on between employees as important professional experience, forming a unified corporate environment. In the Russian public administration system, the analysis of the specifics of organizational culture is of particular importance. The improvement of the state management system is impossible without the effective work of civil servants.

A set of unspoken principles and behavioral standards that guide civil servants in various work situations shapes their organizational culture. It includes a set of informal rules, traditional customs, and value orientations that define the behavioral patterns of modern representatives of the civil service.

Literature review. Theoretical and methodological framework and legal regulation.

The analysis of the literature demonstrates the significant interest of researchers in the study of organizational culture in the public civil service system. Organizational culture is a phenomenon first described by Helmut von Moltke, a German military figure. Studying the interaction between officers, their traditions and rules of conduct in the 1870s led him to create the term. Today, this concept covers the entire range of behavioral norms, values and attitudes adopted in the organization ^[1]. A significant contribution to the study of this phenomenon was made by Emil Jakus, who published in 1952 a study entitled "The Diversity of factory culture", which became one of the first fundamental works in this field.

There are still discussions in scientific circles about the unambiguous interpretation of the terms "organizational" and "corporate culture", which are considered identical concepts ^[2]. Despite the lack of consensus in the scientific community, researchers unanimously acknowledge the existence of this phenomenon. Special attention should be paid to the interpretation describing this phenomenon as a set of collective attitudes and aspirations of the company's employees. It is these attitudes that create behavioral standards and directives that significantly affect both the entire team and individual employees.

Academic sources often discuss how corporate norms affect staff actions. When evaluating events and making decisions, moral attitudes play a key role, which determine the acceptable limits of behavior - these are the values of organizational culture. It is important to note that the concepts of "corporate" and "organizational" culture are used as equivalent terms denoting a set of principles and standards adopted by the company's staff and forming models of behavior of its members ^[3]. Creating a favorable corporate environment is a key factor for achieving the company's strategic objectives and its flexible adaptation to external changes. Numerous scientific papers confirm the direct relationship between the culture of the organization and its effectiveness.

Borisenok A.L. defines organizational culture as a set of the most important assumptions accepted by the members of the organization and expressed in the values declared by the organization, giving people guidelines for their behavior and actions. These value orientations are transmitted by the individual through "symbolic" means of the spiritual and material intraorganizational environment" ^[4]. In his work "Rituals as elements of corporate culture in an organization" ^[5], A.V. Kirillov considers rituals as an important element of corporate culture. In his opinion, "thanks to rituals and customs, employees become familiar with the values of the organization and feel like a necessary part of it." Other authors diagnose corporate culture based on the "culture bulb" model, exploring its various aspects. The elements of the upper organizational level include symbols, paraphernalia, branded clothing, and special jargon. The deep level is symbolized by traditions, rituals, heroes, norms and rules ^[6].

Savelova E. V. in her work "Mythological foundations of modern corporate culture" examines the concepts of "myth" ^[7] and "myth-making" from the standpoint of Roland Barthes' semiotic concept, analyzing the most important manifestations of myth in corporate culture. The legendary-historical component of the myth, its chronotope, information design, and the system of canonical texts are considered using specific examples. The conclusion is made about the relevance and relevance of the mythological component in modern corporate culture, since thanks to it, the most important function of ideological influence is carried out — the function of external management of a social group. Edgar Shein's work ^[8] describes a system of approaches and tools aimed at successful business development. The author has structured cultural elements on three levels: artifacts, values/beliefs, and basic assumptions. He evaluates their role in the successes and failures of organizations, suggests methods of cultural construction, implementation and development, analyzes national, ethnic and corporate cultures. Also among the works that have made a great contribution to the conceptualization and description of theoretical and practical approaches regarding the importance of studying the civil service, it is necessary to note the works of such authors as Vasiliev V.P. ^[9], Dekhanova N.G. ^[10], Kholodenko Yu.A. ^[10] and others.

The most important role in this process is played by the regulatory and legal regulation of organizational culture in the public service system.

Decree of the President of Russia No. 809, adopted on November 9, 2022, "On Approval of the Foundations of State Policy for the Preservation and Strengthening of Traditional Russian Spiritual and Moral Values," can serve as a key guideline in determining priority values for government authorities. The study of this document made it possible to systematize and identify specific objects of value regulation. Purposeful management of the processes of creation, preservation and transfer of organizational values is an integral part of the formation of an organization's culture. Of particular importance is the document "On the approval of the Foundations of state Policy for the preservation and strengthening of traditional Russian spiritual and moral values," which provides a list of fundamental values.

Table 1 - Traditional Russian spiritual and moral values

Regulatory acts, including Presidential Decree No. 885 of 08/12/2002 and Federal Law No. 79-FZ of 04/27/2004 (with subsequent amendments 19-FZ and 419-FZ), establish basic behavioral norms and ethical standards for government employees. These documents are the foundation for building an organizational culture in government structures, which should be based on the values set out in the presidential decree.

The decision of the Presidium of the Council under the President of the Russian Federation on Combating Corruption dated December 23, 2010 approved the Model Code of Ethics and Official Conduct for government and Civil Servants of Russia. Effective regulation of the behavior of government employees is ensured by the high-quality theoretical framework laid down in these regulations. The formation of organizational values takes place under the direct influence of the established traditions of the institution, its historical path of development, as well as the personal qualities and actions of the management staff.

Discussion of the results. Principles and functions of organizational culture.

Each company has its own special set of rules and principles. At the same time, the fundamental corporate values recorded in official documents form the basis of the organization's culture. The unique traditions of the collective naturally develop around this foundation, which must be harmoniously combined with the traditional spiritual foundations of Russian society.

The regulated nature of a civil servant's work creates an ambivalent situation. On the one hand, strict control and clear rules should ensure that officials faithfully perform their duties for the benefit of the state. However, this same overregulation can become a convenient excuse for passivity and unwillingness to take any initiative. In this regard, the key task is the deep integration of the values prescribed in regulatory documents into the decision-making system and behavioral attitudes of government officials.

When forming a culture in government agencies, it is important to influence both the emotional perception and the rational thinking of employees. These two aspects of the development of organizational culture are complementary and of equal importance. To achieve maximum effect, it is necessary to develop comprehensive programs that harmoniously combine both approaches. At the basic level of the organizational culture of government agencies, the use of special methods of influence is required, taking into account the peculiarities of rational perception.

The organization has various mechanisms for regulating employee behavior. Managers conduct a dialogue with staff, discussing work goals and providing feedback on the quality of tasks performed, taking into account corporate standards. HR tools play an important role, including programs for the adaptation of new employees, assessment of competencies and professional development. The activities of employees are regulated by documents that establish rules of conduct and performance criteria. Additionally, motivational schemes and reward systems are used to direct staff activity in the right direction.

The introduction of corporate values into the minds of employees consists of two key phases. First of all, management must ensure that the staff fully understands the basic principles and ideology of the company. After that, it is necessary to reach a mutual agreement between management and employees regarding ethical standards, behavioral standards and criteria for evaluating work results. The ultimate goal is not just to inform, but to form employees' internal motivation to follow the values accepted in the organization when performing their duties.

The application of corporate values directly affects the employee's performance of his official duties. This allows the specialist to evaluate their own results and plan the workflow in accordance with the company's ideology. Each employee gets a clear understanding of how to implement corporate principles within their authority. Staff performance indicators are formed on the basis of organizational standards.

The modeling of the worldview is largely based on mythological thinking. At the same time, traditions, symbols and rituals, along with corporate stories and legends, are key factors of emotional impact on organizational culture. Unlike the rational approach, these tools activate deep archetypes in the collective unconscious of a person, which allows for ideological influence through appeal to feelings and emotions, bypassing the logical mechanisms of perception.

In any organization, collective memory is formed through the historical and legendary component of corporate culture, which becomes a kind of "sacred chronicle," as E.V. Savelova notes. Through the stories of overcoming difficulties, the stages of development and formation of the company, a special narrative of the organization is created. The emotional unity of the team is maintained through a system of corporate customs, ceremonies and traditional events. Typical examples of such rituals are the solemn ceremonies for the admission of new employees and the celebration of professional holidays, which strengthen organizational values in the minds of the team ^[11].

It is critically important for an employee to feel like a part of a team and to feel an emotional connection with the team. This identification is achieved in various ways. Wearing corporate clothing, using corporate symbols and distinctive signs helps to externally demonstrate belonging to the organization. Various events, from sports competitions to cultural events and corporate celebrations, also contribute to strengthening team spirit.

There is a certain ambivalence in the process of corporate culture formation, which is noted by many researchers. They view it as a set of behavioral attitudes and organizational values, including aspects such as mutual respect and professional growth. Interestingly, the emergence of cultural norms in an organization can occur spontaneously, being a response to various situations in the life of the workforce. At the same time, the development of corporate culture is not always a planned and controlled process ^[12].

Organizational culture in government agencies should not be formed spontaneously, relying only on informal rules and unspoken traditions. Without purposeful management of values, an unhealthy atmosphere can develop that contradicts the moral principles of Russia and hinders the effective work of civil servants.

In order for the declared values to really work, and not just remain words on paper, their systematic implementation into the daily practice of government agencies is necessary. This will allow employees to make decisions based on clear moral guidelines and create a healthy work environment. Systematic work is required to develop and maintain organizational standards in the state apparatus.

In order to strengthen the traditional spiritual and moral values of Russia, enshrined in Presidential Decree No. 809 of 11/9/2022, it is necessary to introduce a system of public recognition of civil servants whose actions and achievements reflect these values. At the same time, the key role in the creation and development of corporate culture should be assigned to the first person of the government agency, who is personally responsible for these processes within the organization.

When recruiting staff, it is necessary to take into account the correspondence of the candidate's personal values to the corporate culture of the company. During the probation period, it is necessary to assess how successfully the new employee accepts and follows the established standards of behavior. This should be a key factor in deciding whether to continue cooperation. Career advancement should also be based on the employee's compliance with corporate standards - leadership positions should be trusted by those who demonstrate commitment to the company's values. Thus, value orientations become the main criteria for both hiring and further professional growth of employees^[13].

The formation of the management team should be based on the selection of managers whose personal beliefs meet corporate standards. It is important to evaluate not only the professional skills and leadership qualities of candidates for senior positions in government agencies, but also their ability to convey organizational values to the team. By his example, the head demonstrates a model of behavior that is an effective tool for strengthening corporate culture. At the same time, the organization has the right to evaluate employees and part with those who do not meet the established behavioral standards. This comprehensive approach to personnel management allows you to create a strong team of like-minded people.

Quoting Lord Kelvin's famous statement about measurability as the basis for improvement, it is important to introduce a system for analyzing the corporate atmosphere in government structures. The effectiveness of a manager should be determined through the prism of the work environment created by him, including the degree of satisfaction of the team and the depth of penetration of values into the organizational culture.

At the same time, it is necessary to develop coaching and mentoring skills among the management staff. Managers should master soft communication methods that allow them to effectively communicate work goals and provide constructive feedback that promotes professional growth of employees.

To develop and document the company's record, focusing on successes and outstanding employees at all levels. Create a recognition system for employees who, through their actions and achievements, embody organizational standards and ideals. To introduce symbolic elements, ceremonies and customs that strengthen employees' sense of unity with the Russian civil service, arouse professional pride and a sense of the importance of their work, based on the primordial moral and spiritual principles of our country.

The adoption of state-oriented decisions by the management staff will be possible due to the creation of a special corporate atmosphere, which is formed through the implementation of the described initiatives. Such an environment promotes the right choice in critical situations where the protection of state interests is a priority.