В статье рассматривается роль документов по личному составу в системе внутренней коммуникации органов местного самоуправления на примере администрации Павловского муниципального района Воронежской области. В работе анализируется функциональное значение кадровой документации не только как инструмента кадрового учета и юридического сопровождения трудовых отношений, но и как ключевого элемента формирования организационной культуры, обеспечения обратной связи с сотрудниками, поддержания трудовой дисциплины и передачи корпоративных знаний. Данная статья написана на основе действующих нормативно-правовых актов Российской Федерации, регламентирующих документирование трудовых отношений, а также с учетом специфики муниципальной службы. Также в работе делается вывод, что эффективное управление документами по личному составу напрямую влияет на прозрачность, слаженность и эффективность работы органа местного самоуправления в целом.
Ключевые слова: документы по личному составу, кадровое делопроизводство, коммуникации, органы местного самоуправления, муниципальная служба.
The efficiency of any public authority, including local self-government bodies, directly depends on the quality of human resource management. The Administration of Pavlovsky Municipal District of Voronezh Oblast, as an executive and administrative body exercising powers to address matters of local significance, is a complex structure consisting of various departments. The coordinated operation of this mechanism is impossible without a well-functioning system of internal communication, the most important tool of which is personnel records.
Traditionally, HR documentation is considered from the standpoint of accounting and legal functions: recording labor relations, ensuring employees’ social rights, and forming archival holdings. However, its communicative function is often underestimated. In the context of internal communications, these documents serve as the main channel for transmitting official information between the administration as an employer and its employees, as well as between structural divisions within the administrative apparatus.
The legal basis for the formation and use of personnel records in the Administration of Pavlovsky Municipal District consists of a number of legislative and regulatory acts, the key ones being the Labor Code of the Russian Federation [1], Federal Law of the Russian Federation No. 131-FZ of 06.10.2003 “On the General Principles of the Organization of Local Self-Government in the Russian Federation” [3], and Federal Law of the Russian Federation No. 25-FZ of 02.03.2007 “On Municipal Service in the Russian Federation” [2]. At the regional level, the Law of Voronezh Oblast No. 175-OZ of 28.12.2007 “On Municipal Service in Voronezh Oblast” [4] is in force; it regulates the legal foundations of municipal service in the region, defines the procedure for entering the service, the duties and rights of municipal employees, including issues of HR documentation. In addition, all personnel work is carried out in strict accordance with the records management rules established by Order No. 71 of the Federal Archival Agency of 22.05.2019, which approved the Rules for Records Management in State Bodies and Local Self-Government Bodies.
The communicative role of personnel records in the Administration of Pavlovsky Municipal District is manifested at several levels:
1. Top-down communication. The main document that initiates communication and sets its tone is the employment contract. For a municipal employee, it is not merely a formal agreement, but a document that communicates the employee’s key rights, duties, job functions, terms of remuneration, as well as the restrictions and prohibitions associated with municipal service. The clarity and completeness of the wording in the employment contract prevent misunderstandings and future conflicts, forming the basis for transparent and predictable relations [5, p. 174]. Another communication tool is personnel orders. Each of them (concerning hiring, transfer, leave, incentives, disciplinary action, or dismissal) is a management act brought to the employee’s attention. This procedure is a key element of vertical communication. For example, an order for transfer not only records a personnel decision but also officially informs the employee of their new status and responsibilities, while an order for a business trip coordinates the actions of the employee and the immediate supervisor. Thus, personnel orders ensure the synchronization of actions among all participants in the labor process [5, p. 174].
2. Communication at the level of the administration as a whole.
This category includes documents such as the Internal Labor Regulations, Regulations on Structural Divisions, and the Regulation on Personal Data Protection.
For example, the Internal Labor Regulations are a local normative act governing the procedures for hiring and dismissal, the main rights, duties, and responsibilities of the parties to the employment contract, working hours, rest time, incentives and disciplinary measures applied to employees, as well as other issues related to the regulation of labor relations with the given employer [1]. This document creates a common legal and organizational framework for the entire workforce, contributing to a unified working environment and a corporate culture based on order and respect for established rules.
3. Personnel documents as a tool of feedback.
This type of communication includes, for example, certification documents, applications, and memoranda. These documents make it possible to implement an upward flow of information, from employee to management. A memorandum concerning a problem that has arisen at work or a proposal to improve workflow represents a form of feedback that is documented and becomes part of the administration’s information flow. Certification documents record the employee’s work performance, strengths, and areas for development, forming the basis for personnel decisions and training planning.
Based on the practical handling of personnel records in the Administration of Pavlovsky Municipal District, it can be said that significant attention is paid to communication processes with municipal employees. The structure of the administration includes a Department of Organizational, Information, and Personnel Work, which is responsible for maintaining personnel records in compliance with the law. The department performs its work in a timely manner, ensuring not only formal compliance with records management standards but also the effective use of personnel records as a tool of internal communication. Each document is purposefully brought to the employee’s attention, which forms a transparent and understandable personnel policy. The process of mandatory familiarization with documents under signature is accompanied by an explanation of their content, which is especially important for new employees during the adaptation period.
Thus, personnel records in the Administration of Pavlovsky Municipal District of Voronezh Oblast are not merely a formal aspect of HR work, but a multifaceted and powerful tool of internal communication. They structure interactions between the employer and employees, ensure feedback, and formalize personnel management procedures. The quality of preparation, drafting, and handling of these documents directly affects the level of manageability, the legal protection of municipal employees, and, ultimately, the effectiveness with which the administration fulfills its functions in addressing the life-support needs of Pavlovsky Municipal District.
References:
- Трудовой кодекс Российской Федерации от 30.12.2001 № 197-ФЗ (ред. от 19.12.2022). — Доступ из справ.-правовой системы «КонсультантПлюс».
- Федеральный закон Российской Федерации от 02.03.2007 № 25-ФЗ «О муниципальной службе в Российской Федерации» (ред. от 10.07.2023). — Доступ из справ.-правовой системы «КонсультантПлюс».
- Федеральный закон Российской Федерации от 06.10.2003 № 131-ФЗ «Об общих принципах организации местного самоуправления в Российской Федерации» (ред. от 02.11.2023). — Доступ из справ.-правовой системы «КонсультантПлюс».
- Закон Воронежской области от 19.12.2007 «О муниципальной службе в Воронежской области» (ред. от 03.11.2015). — Доступ из справ.-правовой системы «КонсультантПлюс».
- Кирсанова, М.В., Аксенов, Ю. М. Курс делопроизводства: документационное обеспечение управления / М. В. Кирсанова, Ю. М. Аксенов. — Москва: ИНФРА-М, 2020. — 257 с. — ISBN 978–5–16–006789–6.
