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Performance Indicators for Public Administration Reforms in Russia: Possible Approaches 
 
Performance Indicators for Public Administration 
Reforms in Russia: Possible Approaches  
 
Yelena Dobrolyubova 
World Bank 
November 4, 2004 
Moscow 
36144
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Performance Indicators for Public Administration Reforms in Russia: Possible Approaches 
Yelena Dobrolyubova 
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November 4, 2004
 
Table of Contents 
 
Introduction....................................................................................................................3 
1.  Approaches to Monitoring Governance Reforms: Review of International 
Experience......................................................................................................................4 
2. Approaches to Developing a Performance Indicators for Public Administration 
Reforms in Russia..........................................................................................................9 
3. Implementation of Public Administration Monitoring System in Russia: Issues and 
Approaches to Possible Solutions................................................................................19 
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Performance Indicators for Public Administration Reforms in Russia: Possible Approaches 
Yelena Dobrolyubova 
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November 4, 2004
 
Introduction 
 
The paper was prepared per request of the Government of Russia and the 
Ministry for Economic Development and Trade in the framework of the Bank’s 
program for technical assistance to civil service reform in Russia.  The paper was 
prepared by Yelena Dobrolyubova (ECSPE).  Valuable comments were provided by 
John Litwack (ECSPE), Alexander Morozov (ECSPE),  Neil Parison (ECSPE), Nick 
Manning (SASPR), and Gordon Evans (Consultant, ECSPE).  
The paper is based on the approaches to assessment of governance reforms 
developed by the World Bank, examples of public sector performance indicators used 
in the UK and the US, as well as application of a number of governance performance 
indicators during the preparation of a three-year programmatic adjustment program in 
Bulgaria.  Besides, the paper built upon the draft “logical framework” prepared by the 
Donor Secretariat, as well as the program documents approved by the President and 
the Government of the Russian Federation (
Concept for Civil Service Reform in the 
Russian Federation 
approved by the RF President on August 15, 2001; Program 
Reforming the Civil Service of the Russian Federation (2003 
–
2005) 
approved by the 
Presidential Decree No. 1335 dated November 19, 2002; Presidential Decree No. 824 
On Measures for Implementation of the Administrative Reform in 2003 – 2004 
dated 
July 23, 2003; 
Concept for
 
Reforming of Budget Process in the Russian Federation 
(2004 – 2006)
 approved by the Government Resolution dated May 22, 2004). 
The paper proposes draft formulations for objectives and tasks of the public 
management reform; these formulations need further discussion, clearance, and 
approval.  The following core principles served as a basis for development of the 
reform objectives and performance indicators: 
ƒ
Principle of interrelation of various reforms in the area of public 
management; 
ƒ
Possibility to separate certain reform areas (administrative, civil service, 
budget reforms) so as to take into account the implementation of the 
approved strategic/program documents and those under preparation; 
ƒ
Possibility to conduct cross-country comparison of governance 
indicators. 
The proposed system of objectives and indicators is intended to be used for the 
federal executive bodies, but it can be adopted for the regional and municipal levels.  
The list of the proposed output and outcome indicators is not exhaustive and can be 
supplemented and adjusted in accordance with the possible changes in objectives and 
tasks of certain reforms, availability of data for performance measurement, etc.  More 
detailed monitoring and evaluation systems may be developed for certain areas of 
public management reforms. 
The paper concludes with a number of issues related to development of public 
management reforms monitoring systems.  Resolution of those issues requires 
additional research.  
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Performance Indicators for Public Administration Reforms in Russia: Possible Approaches 
Yelena Dobrolyubova 
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November 4, 2004
 
1.  Approaches to Monitoring Governance Reforms: 
Review of International Experience  
Analysis of approaches to public management reforms monitoring demonstrates 
that the international practice can offer more diagnostic tools for evaluating the status 
of the public management system than the instruments allowing to perform on-going 
monitoring of the reform progress in this area.  The diagnostic tools
1
include anti-
corruption diagnostic, country procurement assessment reviews, country financial 
accountability assessments, as well as a number of sector-specific tools.
2
.
While 
diagnostic tools help to create an adequate information base to evaluate the initial 
status of the public management system and allow to identify certain bottlenecks and 
deficiencies in this system, i.e. identify the areas of the future reforms, the monitoring 
instruments are intended for a regular measurement of implementation progress and 
impact of the reform activities aimed at eliminating those bottlenecks and 
deficiencies.   
Two main approaches used by international organizations to monitor 
governance reforms may be conditionally identified.  The approach developed by the 
Organization for Economic Cooperation and Development (OECD) program for 
Support for Improvement in Governance and Management (SIGMA) is based on 
assessment of the reform progress as compared to the baseline status in the following 
areas: 
ƒ
Civil service; 
ƒ
Management of Policy-Making; 
ƒ
Public Expenditure Management; 
ƒ
International Financial Control; 
ƒ
External Audit; and 
ƒ
Public Procurement. 
Assessment is based on comparison of the progress in each area with the OECD 
recommendations and often 
–
especially in case of EU accession countries – with the 
EU standards.  
In the 1990s, the World Bank Institute developed alternative approach to 
assessment of governance development progress using an integral governance 
indicator (Governance Research Indicator Country Snapshot - GRICS).  This 
indicator evaluates governance efficiency based on 
6
indices
 reflecting 6 parameters 
of governance: voice and accountability; political stability and lack of violence; 
government effectiveness; regulatory quality; rule of law; and control of corruption
3
.
1
For more information on available diagnostic tools see 
PREM Notes. The Public Sector Governance 
Reform Cycle: Available Diagnostic Tools. No.88 July 2004 
http://www1.worldbank.org/prem/PREMNotes/premnote88.pdf
2
For instance, revenue administrations diagnostic tool developed by the World Bank was used during 
the preparation of the Second Tax Administration Modernization Project in Russia. 
3
For more information about this and other integral governance indicators see reference materials 
prepared by the Donor Secretariat 
Integral Indicators Of The Efficiency Of State Governance Reform
,
2004, as well as the web-based database at 
http://info.worldbank.org/governance/kkz2002/
.
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Performance Indicators for Public Administration Reforms in Russia: Possible Approaches 
Yelena Dobrolyubova 
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GRICS indicator has been applied widely
4
,
since it allows for cross-country 
comparisons.  The indicator has been calculated every two years since 1996.  
GRICS indicator as well as other integral governance indicators allow for a 
general assessment of public management systems in a specific country.  However, 
this indicator does not allow to identify specific aspects of legal and regulatory base 
or specific government practices which result in a certain value of the indicator.  To 
allow for a detailed analysis of the public management status
,
“second generation” 
indicators have been developed.  These indicators can be characterized by the 
following specific features:  
ƒ
They allow to monitor and evaluate public management systems without 
a
linkage to specific program (reform) goals; 
ƒ
They are intended to monitor performance of the executive, but may also 
be applied to other branches of power; 
ƒ
They allow for cross-country comparisons (among a certain number of 
countries and with due account to methodological differences in the 
national statistics);  
ƒ
They combine qualitative and quantitative performance indicators;  
ƒ
They are linked to the Millennium Development Goals (MDGs).  
However, application of integral indicators (such as GRICS) to monitoring the 
progress of a particular set of public administration reform is associated with a 
number of limitations: 
ƒ
Such indicators are largely based on expert assessments; though in the 
case of GRICS indicators a broad range of various sources is used to 
construct the indices, there may be a certain influence of subjective 
factors involved; 
ƒ
Such indicators as GRICS, as well as various country ratings which are 
from time to time prepared by international organizations are of 
a
comparative 
nature.  For example, GRICS indicator evaluates the status 
of public management in a certain country as compared to other 
countries.  Thus, in case a number of countries make a comparable 
progress in the area of governance, the value of GRICS for these 
countries may remain the same.  On the contrary, should for some 
reason the quality of governance sharply deteriorate in a number of 
countries, the value of this indicator for a third country may unjustifiably 
grow; 
ƒ
The number of countries included during the calculation of integral 
indicators may change; as a result a rating of a given country may be 
affected without any linkage to specific activities related to public 
management development undertaken in this country; 
4
For instance, this indicator is used as one of the conditions for provision of funds from the 
Millennium Development Fund.  
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Performance Indicators for Public Administration Reforms in Russia: Possible Approaches 
Yelena Dobrolyubova 
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November 4, 2004
 
Box 1. 
Examples of “Second Generation” Governance Indicators  
-
Constraints to the Executive  
o
Formal horizontal 
(Delay in presentation of external audit of budget implementation 
to Parliament; number of citizens and businesses that has litigated against executive 
entity); 
o
Informal horizontal 
(Political appointees in the civil service) 
 
o
Inter-governmental vertical
 (Budgetary autonomy of sub-national government, e.g. 
sub-national expenditures (revenues) as a share of GDP) ;
 
o
Vertical checks from electorate 
(Literacy rate)
 
-
Executive capabilities 
o
Process indicators 
(Central government wage bill/GDP; Average government wage 
to per capita GDP) 
ƒ
It may be problematic to identify the reasons for a particular dynamics 
of these indicators (with the extent of detail which allows to identify the 
problem areas in a national reform program); 
ƒ
Often international indicators are not calculated on an annual basis; 
some international indicators may be measured on an ad hoc basis
5
.
To sum up, GRICS and other 
broad 
aggregate perception based indicators, such 
as corruption perception index which is annually published by Transparency 
International might be helpful in illuminating at reflecting any general changes in 
public view of the state.  To identify actual improvements in specific institutional 
arrangements, a 
narrower
 and more objective set of “second generation” indicators 
has been developed. 
“Second generation” indicators system is based on the assumption that the 
executive operates in the system of certain internal and external constraints and has 
some capacity to carry out its operations.  This capacity may be evaluated through 
process and performance indicators.  Examples of the “second generation” indicators 
are presented in the Box 1.  
Noteworthy, the “second generation” governance indicators significantly vary 
as far as the time and extent of external impacts are concerned: while service delivery 
indicators are unlikely to be affected in the short term by institutional reforms, some 
“internal” measures (related to staffing numbers, financing, etc.) can reflect public 
administration reforms quite quickly but might have little resonance for the public. 
At the individual country level, governance performance indicators are usually 
of “target” nature and are linked to achievement of the national priorities in terms of 
delivering particular public services or introducing improved operational processes.  
In the UK, achievement of such priorities is expelled in a certain list of target 
indicators assigned to certain departments responsible for achieving those targets.  
Examples of objectives and performance indicators assigned to the Cabinet Office in 
the area of public management are presented in Box 2.  The practice of monitoring of 
performance indicators achievement in the UK could also be of some interest. The 
5
Corruption perception indices (CPIs) measured by the Transparency International on an annual basis 
present a notable exception to this statement. For more information see  reference materials prepared by 
the Donor Secretariat 
Integral Indicators Of The Efficiency Of State Governance Reform
,
2004.  
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Performance Indicators for Public Administration Reforms in Russia: Possible Approaches 
Yelena Dobrolyubova 
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November 4, 2004
 
Prime-Minister selects 30 
–
40 top priority indicators out of the total of over a 
hundred of national indicators and assigns the function of monitoring of achievement 
of those priority targets to the Prime Minister’s Delivery Unit.  Individual 
Departments responsible for the priority targets supported by the staff from this Unit 
develop an action plan to achieve those indicators.  The action plan should contain 
certain milestones (activities necessary for achieving the indicator) and intermediate 
values of the priority performance indicators which depend on how quickly the 
activities undertaken can translate into an ultimate policy impact.  Delivery Unit 
conducts regular monitoring of the action plan implementation through comparison of 
the actual dynamics of the indicator values with the planned indicator values (
the 
trajectory
).  Such analysis allows to introduce timely adjustments to the action plan or 
some changes into the government policy in a certain area.  
Besides, there is some experience in conducting comprehensive evaluations of 
government performance at a country level.  
The Government Performance Project 
in 
the US presents an example when based on surveys, documentary reviews, and 
interviews, all sub-national (state, city and county) governments were given certain 
performance ratings in the following areas: financial management, capital 
management, human resource management, IT management, and management for 
results.  The evaluation methodology allowed to identify “bottlenecks” in the sub-
national administrations performance and develop a set of measures for improvements 
in certain areas of their activity.  Noteworthy, performance evaluation was not 
exclusively based on the analysis of the government performance outcomes; rather, it 
took into account the linkage between the efficiency in managing the resources and 
the quality of public service delivery
6
.
6
For more information see 
Paths to Performance in State and Local Government. Government  
Performance Project. Maxwell School of Syracuse University 
http://www.maxwell.syr.edu/gpp/
Box 2.  Examples of Objectives and Performance Indicators for the UK Cabinet Office 
Performance Evaluation  
Strategic Objective of the Cabinet Office (Aim): support the Government’s delivery and reform 
program
Objective 2: Support the Government in transacting its business  
Performance Indicator (target)
:
ensure departments deliver better regulation through: 
o
Full compliance with the Regulatory Impact Assessment (RIA) process; and 
o
Delivering the commitments of the Regulatory Reform Action Plan, including over 
Regulatory Reform Orders by 2005 . 
Results achieved by January 1, 2003
:
o
Level of RIA compliance as of December 2002 accounts for 92% 
o
12 Regulatory Reform Orders have been enacted since 2001  
Objective 3: Help deliver key public services 
Performance Target: Ensure departments meet the Prime
-
Minister’s targets for electronic service 
delivery by Government: 100% capability by 2005 with key services achieving high levels of use  
Performance Indicators
:
o
Share of government services available on-line  
o
Percentage of adults using or accessing online government/official services 
Results
:
o
54% of government services are available on-line (March 2002)
 
o
10,4% of adults use or access online government/official services (4
th
 quarter of 2002) 
 
Source: UK Treasury web-site 
http://www.hm-treasury.gov.uk/performance/Cabinet_Office.cfm
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Performance Indicators for Public Administration Reforms in Russia: Possible Approaches 
Yelena Dobrolyubova 
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November 4, 2004
 
The countries implementing broad public administration reforms face a 
challenge of monitoring the implementation progress of the reform programs 
themselves which requires development of 
focused 
performance indicators linked 
specifically to program measures and objectives.  In Bulgaria, such performance 
measurements were formed in compliance with the strategic guidelines laid down in 
the 
Strategy of State Administration 
–
from Accession to Integration, 2003 – 2006
 
(Box 3). 
For overall assessment of the governance improvement progress, such 
focused
 
indicators tracking the specific changes promised by a national reform program have 
been introduced should be complemented by a 
broader
 set of indicators that identify 
whether government actions have led to any lasting changes in the public sector 
performance.   Hence, given the need to monitor and assess a set of large scale public 
management reforms that are currently being implemented in Russia, it seems 
expedient to develop a comprehensive approach that would allow to link various 
reform programs and evaluate their efficiency vis-
ΰ-vis the strategic objectives set by 
the Government.  
Box 3: Monitoring State Administration Reforms in Bulgaria: Examples of Performance 
Measures 
Strategy Area: 
Planning and Implementing the Strategic Goals of Administration’s Activity
 
Performance measures used to assess progress:
-
Share of public administration bodies that have clear strategic frameworks for goals and 
results; 
-
Share of territorial administrations that have clear strategic frameworks; 
-
Share of public servants aware of the priorities pursued by the public administration bodies 
they are working in; 
-
Share of strategic goals attained; 
-
Number of public administration bodies which changed their organic rules during the past 
year; 
Number of functions transferred to other administrative level.
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Performance Indicators for Public Administration Reforms in Russia: Possible Approaches 
Yelena Dobrolyubova 
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November 4, 2004
 
2. Approaches to Developing a Performance 
Indicators for Public Administration Reforms in 
Russia  
The recent empirical research suggests that governance quality influences the 
inflows of foreign investment
7
while transparency of public institutions and efficient 
mechanisms of external accountability are closely related to the economic growth 
rates
8
.
Finally, there is a correlation between the quality of public services and 
poverty levels
9
.
Thus, improving public management efficiency becomes one of the 
pre-conditions for a sustainable social and economic development and improving 
welfare of the population. 
A
number of reforms aimed at improving the quality of public management 
both at the federal and at the sub-national level are currently being prepared and 
implemented in Russia.  The magnitude of change in the public sector, a large number 
of interrelated activities, simultaneous implementation of reforms in various areas of 
state governance complicate the task of monitoring and assessment of the reform 
outcomes.  Therefore, for the purpose of developing a public management reform 
monitoring system, it was proposed to differentiate between the key areas of the 
reforms: administrative reform, civil service reform, and budget reforms.  In 
accordance with such differentiation, the key objectives of public management 
reforms at the federal level were formulated (Figure 1).  It should also be noted that 
there is a number of sectoral modernization programs which contribute to 
development of public institutions in certain spheres (modernization of the treasury, 
tax administration, etc.) 
Strategic Goal
:
Improve public management efficiency so as to support the objectives of social 
and economic development
 
Objective 1: 
Develop
 
an 
optimal structure of 
federal executive bodies 
and allocation of 
functions between them 
to ensure efficient 
performance of public 
administration and 
improve quality of public 
services 
 
Objective 2: 
Reduce the 
level of state 
regulation in 
the economy
 
Objective 3: 
Improve 
professionalism, 
prestige, and 
competitiveness of 
the civil service 
 
Objective 4: 
Improve 
efficiency and 
effectiveness of  
budget 
expenditures 
 
Objective 5: 
Strengthen 
transparency and 
external 
accountability of 
public 
administration 
 
Administrative Reform 
Civil Service 
Reform 
Budget Reform 
Budget and 
Administrative 
Reforms 
Figure1. 
Objectives of Public Administration Reforms in Russia  
Taken into account the limitations of international integral governance 
indicators outlined in the previous section, it seems expedient to analyze such 
7
Public Sector Transparency and the International Investor. 
OECD. 2003
.
8
Kaufmann. Rethinking Governance. Empirical Lessons Challenge Orthodoxy. 
World Bank 2003 
9
Making Services Work for Poor People? 
World Development Report 2004. World Bank.
 
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Yelena Dobrolyubova 
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November 4, 2004
 
indicators as a set based on the assumption that possible deviations in values of these 
indicators are not of systemic nature.  Besides, it should be noted that the values of 
these indicators are largely of 
reference 
nature, and analysis of these indicators 
without any linkages to the outcome and output level indicators may lead to 
misinterpretation and incorrect conclusions.  
Thus, monitoring and assessment of public management reforms should be 
largely based on outcome and output indicators constructed in accordance with the 
objectives and tasks of the reforms.  Table 1 presents some proposals on formulation 
of the objectives and tasks for the selected reform areas.  
Outcome-
level indicators are 
proposed to measure the progress towards reforms 
objectives,
 while 
output-level 
indicators have been constructed to gauge the success of separate reform 
tasks 
and 
activities.
 
The proposed structure of objectives and tasks is preliminary and requires 
further clarification once the appropriate conceptual and program documents in the 
area of administrative reform are approved.  The list of the proposed performance 
indicators is not exhaustive and largely builds upon international practices.  Certainly, 
diagnostic tools and country examples provide a much broader range of possible 
performance measures of public administration indicators.  The performance 
indicators included into the table were selected as (i) these seem to be more relevant 
to the country context; (ii) many of such indicators have been successfully used in 
other countries; (iii) the indicators are to be drawn from a variety of data sources, 
including internal data, surveys, self-assessment techniques, legal documents, etc., 
and therefore provide some objectivity of the assessment. 
 
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Page  18
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Page  19
Performance Indicators for Public Administration Reforms in Russia: Possible Approaches 
Yelena Dobrolyubova 
Page 19
 
November 4, 2004
 
3. Implementation of Public Administration Monitoring 
System in Russia: Issues and Approaches to Possible 
Solutions  
The system of objectives and performance indicators for public administration reforms 
presented in the previous section is neither exhaustive nor perfect.  However, the formulations 
of objectives and indicators proposed allow to draw a number of conclusions related to 
implementation of the public administration reforms monitoring system in Russia. 
Section 2 demonstrates that one of the key methodological challenges related to 
evaluating the impact of governance reforms as a whole is the difficulty in identifying a strong 
correlation between the improvements in the public administration and the strategic objective 
of the reforms 
–
supporting the achievement of socio-economic developmental objectives.  
Though there is some empirical evidence of correlation between the quality of governance and 
economic growth, defining the contribution of public management development into overall 
economic development may be a subject of a separate study. 
Complexity in identifying objective quantitative indicators is one of specific features of 
the public management reforms.  Therefore, quite a number of the proposed outcome 
performance indicators (as well as some output indicators) are based on the survey results 
(including surveys of population, public officials, businesses).  Though such data may be quite 
useful (since this data evaluates the changes more objectively), such indicators should be 
analyzed together with statistical data as well as the data obtained from ministries and 
agencies so as to obtain the most adequate picture of the reform progress.  The following key 
peculiarities associated with the use of survey data should be highlighted:  
ƒ
Public opinion (as well as that of businesses) on the quality of services provided 
largely depends on expectations.  There have been cases in the international 
experience when consumer expectations significantly exceeded the service 
providers’ capacity.  As a result even a significant progress in public service 
delivery was seen as marginal over time;  
ƒ
Conducting regular surveys implies additional budget expenditures for this 
purpose. 
Another specificity of governance reforms monitoring is a need for timely collection and 
processing of a large amount of data usually not collected by a national statistical office.  To 
resolve this issue, it is necessary to create a data collection system (especially as far as the 
federal executive bodies’ data is concerned, though when the monitoring system is adjusted to 
the regional level, there would be a need to collect information submitted by the regional 
administrations as well).  
Experience of other countries, especially that of Finland and the UK, also suggests a 
need to establish a system to manage the implementation of public sector reforms.  Such 
system should be in charge of monitoring and assessment of public management reforms 
programs and prepare regular internal and external reporting on the progress achieved.  
 
Dobrolyubova 
L:\Economic Unit\Parison\DFID_Grant\Reform Progress Reports\Performance Indicators and 
Statistics\CSR_Monitoring_YD_Draft2_Nov4_eng_track_changes.doc 
Page  20
Performance Indicators for Public Administration Reforms in Russia: Possible Approaches 
Yelena Dobrolyubova 
Page 20
 
November 4, 2004
 
November 4, 2004 9:16 PM
Page  21
Performance Indicators for Public Administration Reforms in Russia: Possible Approaches 
Yelena Dobrolyubova 
Page 21
 
November 4, 2004