The first reference to the ethics in the 21^st century was The Conception of civil service reform 2001 (Presidential Decree ¹1496, 2001). The attention was drawn to the “decline in the prestige of public service and authority of civil servants”. Moreover, it was recognized the need for “respect for public servants ethics and rules of conduct, the responsible performance of his official duties”. One of the basic principles of Conception was “ethical conduct of public servants, their maintenance of visibility of public service and its corporate foundations”.

Administrative reform, beginning in 2003, highlights such areas as the development of anti-corruption reform policies and improvement of the quality of public services as the keynote. The implementation of the above areas, as well as the entire reform depends entirely on the individuals involved in the reform process, namely public servants.

Statistics and surveys show underdeveloped professional ethics of public service. Such estimates have become institutionalized in official documents that highlight the urgency of the problem (Presidential Decree ¹885, 2002).

For example, in the Federal program "Reforming the public service of the Russian Federation (2003-2005)" states: "The former have become invalid morality and ideological influence and regulate the conduct of employees of state power and administration, and to put a barrier in the way of abuse, corruption and arbitrariness in these bodies. It has not yet developed standards of official conduct (ethics) for public officials and legislative mechanisms for their implementation" (Rossiyskaya Gazeta, 2002). The priority task of reforming the civil service in the Programme is recognized as "the introduction of mechanisms to identify and resolve conflicts of interest in public service, as well as the legal regulation of professional ethics of public servants".

Table 5

Assessment of the importance of ethical qualities

Norms and rules of conduct	Experts	Civil servants
	2003	2003	2002	1997
Discipline	69,1	49,5	33,8	56,8
Honesty	53,2	37,3	67,6	52,6
The ability to take responsibility	48,2	58,9	30,6	22,5
Goodwill (benevolence)	30,9	42,1	27,6	61,5
Adherence to principles	16,5	25,3	17,6	54,0
Ability to compromise	14,4	31,5	20,6	27,0
Justice (fairness)	11,5	25,8	12,6	37,8
Openness	7,2	8,1	5,0	32,4
Propensity to mutual aid	6,5	16,9	8,5	29,7
Tolerance to other people's ideals of life	5,8	9,6	6,5	16,2

Adopted from Komleva, V (2004)

The assessment of the importance of ethical qualities (Table 5) shows mistrust of power ex adverso. However, in this case our interests focus on the one dominant indicator - discipline. The growing value of such quality highlights special topicality of ethics for Russia nowadays.

The recent investigation of the civil servants motives (Parfentyev and Reshetnikova, 2012) shows the dominance of material drivers such as career growth, fringe benefits and state guarantees between existing federal civil servants and future civil servants (Public Administration Master's degree students). The top-three ranking of civil service values consists of 1) high wage; 2) career growth, and after all 3) professionalism. This investigation shows civil servants from the side of motivation, which is related to and intersects with ethics.

One of the basic laws governing the public service and having basically deontological principle is the law 79-FZ "On State Civil Service of the Russian Federation" adopted 27 July 2004. It fixes ethical behaviour of public servants; introduce institute of prevention and resolution of conflicts of interest. However, the evaluation of trust in civil servants (Mersiyanova et al., 2012) will allow specifying the value of the integral index of confidence in government civilian employees, which is equal 58.4%.

Currently, a number of trends that affect the activities of government are:

* Lack of basic principles of ethics of public servants: while it should be the priority of the public good over personal objectives for the benefit of the state employees for personal purposes;

* Erosion of the once common moral standards and principles of government officials at various levels;

* Introduction of public service elements of social conflicts that develop inside in power parties, social movements, between the factions within them.

Globalization of the economy leads to close contacts of representatives of public service and business elite. Ultimately, this leads to their close interaction, merging business ethics and public service. The beginning of this process was the penetration of business representatives to bodies of public service. As a result of the merger in principle entered the government service "business Machiavellian" - to maximize profits at any cost. Motivating factor was the direction of the profit-received funds for the needs of the population, while not forgetting about oneself.

Side effect of this phenomenon - increased income inequality officials at various verticals of power, conflict-growth factors within the government and the outflow of personnel who were not satisfied with payment of their labour.

In general, the requirements for civil servants is much higher than the ordinary members of society, as their knowledge and skills directly related to the efficient functioning of the state apparatus, with the interests and goals of social development, a measure of the needs of all citizens. The results of sociological surveys conducted in 2007, showed that only 13.7% of businesses, 12.8% of the intelligentsia, and 11% of the production are ready to go to work in the bodies of the civil service (Ferret, 2010). This affects the quality of human resources and demonstrates the lack of training of the social environment of cooperation between the government and civil society. Social efficiency of government affects the reverse process of flowing personnel of state agencies in the non-state actors. Professional motivation of public servants lies with the social status of which defines its position, role, behaviour, morality, values, quality assessment activities that contribute to achieving the results of labour, with social responsibility, which is reflected in the compliance procedures of performance and behaviour ability to be responsible for the results of their action or inaction. The social aspect of a career civil servant is thus a tool to improve governance, strengthen the impact on its efficiency and social responsibility to employees (social, political, legal, moral and ethical).

The challenges associated with the formation of stuff for public service occupy a central place in the federal program “Reform and Development of the State Service of the Russian Federation (2009-2013)” in terms of strengthening their legal, professional and moral upbringing. It provides that one of the expected results of its implementation will be “the development of service standards of professional ethics and rules of conduct of public servants, as well as mechanisms to ensure compliance with them” (Rossiyskaya Gazeta, 2009).

According to Alexander Obolonsky (Barabashev and Obolonsky, 2013), the existing system is very archaic, inefficient and morally corrupts the initially honest people both inside and outside Government. Thus, regardless of the degree of development of institutions, people with deformed scale of values do not serve public needs. In this case, counterproductive actions serve the interests of the groups or even personal interests.

As it has been shown, the traditional model of trust in the government discredited itself. According to the semi conclusion of Sandu Frunza (Frunza, 2012), codes play an important part in eliminating trust deficit. Trust in relations with the community is based on a complex process of communication, consulting and collaboration, which among others implies drafting ethical codes and offering ethical trainings (Menzel, 2000, p.360).

Hence, the demand for highly moral people is increasing. One example of a revision of the traditional model of trust is the initiation the Committee on Standards in Public Life in Britain. In the next part we will focus on that committee as well as on the ethics infrastructure of the British Civil Service.

Section 6. British context

The special features of the political system and the law are: the rule of Parliament, ministerial responsibility, and the rule of law. In addition, the UK has no written constitution, long preserved in the country's political stability. It is a unitary state, but with a developed civil society at the same time.

The UK civil service reform progressed further than in any other country. The origin of the British public ethics could be regarded from Northcote-Trevelyan act. The culture of public sphere commenced to form more than 150 years ago. Senior civil servants were graduates from the best universities such as Oxford or Cambridge and were also likely to come from the upper levels of society.

Modern British civil service represents an open pluralistic structure, constantly exchanging resources and practices with the environment, broadly, but in light of their specific experience borrows citizen service in the private sector and has made customer satisfaction of their services in the broad sense of the word - primarily real priority of their own activities (Obolonsky, 2007). The creation of the modern ethical infrastructure is closely linked to the Committee on Standards in Public Life (CSPL). The Committee on Standards in Public Life is an independent, non-departmental public body, which reports to the prime minister with policy recommendations to ensure the highest standards of propriety in public life. The main activity of this committee is focus on preparation and publishing annual reports on the state of ethics of the public sphere and reports on specific ethical issues. However, there is a range of bodies, which activities relate to the ethical agenda, except CSPL.

Figure 3 Countries by Overall Management and Ethics Regime

Source: “Ethics in Public Service: Current Issues and Practices” (1996)

One of the most cited figure (Figure 3) represents an overall vision of Britain between countries placed on the right corner of the map. It illustrates the tendency toward managerialism approach as well as the dominance of the value-based model over compliance-based. Also it should be noted British reliance on continual in-service process whereby civil servants will receive trainings to ensure that skills, knowledge and ideas are kept up to date using tailored short courses (United Nations, 2007).

In general, according to Davis (2005) it is possible to define two major traditions that may be identified regarding the combat of corruption and other forms of unethical behaviour. UK could be characterized as a “Westminster-type” country in this classification. Such a type tends to deal with ethical issues in a “direct line” manner, because countries of this type have a long tradition of addressing questions of values and moral behaviour directly.

However, the more important is the transformation process in the civil service, which are considered today as the destruction of the traditional British "model of Whitehall" (Greer and Jarman, 2010; Page, 2010; Dopre and Horton, 2011). Traditionally, the civil service system, which was built on this model, characterized by the following basic principles: generalizm that was associated with the prevalence in the senior civil service, political neutrality and the related role of premiums, competence and loyalty, lifelong career growth and stability of the civil service; significant political role of special advisers; Oxbridge dominance in the civil service (Smorgunov, 2012). Thus, the Constitutional Reform and Governance Act implies:

- The formation of the Civil Service Commission;

- The construction of the framework of the civil service management system;

- Implementation of the code of ethics for civil service;

- Installation the basis of appointment to the civil service.

Hence, the code of ethics represents one of significant innovations. However, it does not mean absence of it up to 2010. The ethical code represents a list of principles - famous seven principles of public sector. In 1996, the summary section of the Nolan Committee's First Report on Standards in Public Life, pronounced that there were seven principles of public life: selflessness, integrity, objectivity, accountability, openness, honesty and leadership (Richards and Smith, 2000). The Government of John Major introduced ethical code for civil servants in the UK in January 1996. The next version appeared in 2006. Code contained a mixture of traditional, new and promising for the 21^st century values ??that should guide civil servant. Traditional values ??are intersected with the need for the civil service to be dynamic, open, sensitive and professional (Dillman, 2007). There has been a major overhaul of various codes setting out the ethical framework in different areas of the public sector (OECD, 2000: p.309). But still there were four principles: integrity, honesty, objectivity, and impartiality. It has been incorporated into all staff regulations of service as an annex, and all departments and agencies must, in further defining any standards of conduct they require of staff, ensure that the rules set down for staff fully reflect the code (Hine, 2005). According to Rosamund (Rosamund, 2011), the new 2006 Code, for the first time, provides for the Independent Civil Service Commissioners to consider a compliant directly from civil servant, rather than upwards through the Civil Service chain of command. Nowadays, the Code is part of the contractual relationship between civil servants and their employer (Civil Service Commissioners, 2008/09).

The United Kingdom's Constitutional Reform and Governance Act of April 2010 put the Civil Service and its core values on a statutory footing. “It means that there can be no changes to core Civil Service values and principles without Parliamentary scrutiny and approval. With few exceptions, appointments to the Civil Service must be made on merit and on the basis of fair and open competition” (Civil Service Commission, 2010). Standards of behaviour of the Civil Service Code 2010 include: integrity, honesty, objectivity, impartiality, and political impartiality.

The Civil Service Code sets out the framework within which all civil servants work, and the core values and standards of behaviour they are expected to uphold. It forms part of the terms and conditions of employment of every civil servant. The Civil Service Code is part of the Civil Service Management Code (CSMC), which sets out the central framework for management of the Civil Service (Cabinet Office, 2013). The Civil Service Code is extensively referred to in other public service documents. For instance, its role does not appear in practice to perform the disciplinary role. The CSMC is responsible for it, where the emphasis is essentially on postemployment. UK codes have also been vehicles for articulating particular aspirational goals in the administrative/constitutional arena, with values appearing to be projected out to a much wider audience than the civil servants to whom the code is formally to be applied (Hine, 2005: 163). The standards of behavior cover the following points (OECD, 2000):

· Receiving gifts and benefits such as fees, payments, entertainment;

· Use of official information;

· Use of official property/facilities;

· Official travel;

· Use of corporate credit cards;

· Work outside the public service;

· Restrictions on postemployment;

· Special conditions/permissions on movement from the public service to the for-profit sector;

· Involvement in political work.

The ethical regulation does not limited to the single code of ethics. It forms an infrastructure around. The institutions to perform independent scrutiny of the administration are (OECD, 2000):

· Parliament/parliamentary committee;

· Independent/external auditors reporting to elected bodies such as Parliament;

· Ombudsman;

· Courts for judicial review;

· Civil service commissioners;

· Commissioner for Public Appointments;

· Civil Service Appeal Board.

There are now at least 15 different bodies (Appendix 1) operating at national level that could be seen as ethical watchdogs (Heywood, 2012). These ethical watchdogs, in turn, form an integrity management structure. The various watchdogs fulfill a range of different functions such as auditing, investigating complaints, advising. In addition, the unity in case of ethical watchdogs could also be seen at the conception level. The system of ethical watchdogs forms the united practice-oriented value administration system (Appendix 2).

However, this strong infrastructure, at the first view, has its own challenges. The future shape of ethical regulation is under discussion over decade. The debate about “a patchwork quilt” (Transparency International, 2004) leads to the question of excessiveness of ethical regulators. Thus, the Public Administration Select Committee in their report “Ethics and Standards: The Regulation of Conduct in Public Life” (Public Administration Select Committee, 2007) points out on two possible strategies. The first strategy suggests status quo: the option of no change. The attitude of Public Administration Select Committee is: “We do not recommend the maintenance of the status quo. The plethora of monitoring bodies, and their differing institutional designs, can only increase public confusion. Still more importantly, we believe that is unacceptable that the bodies charged with monitoring the Executive are directly dependent on that Executive for their funding” (Ibid.). The second possible solution is to form a single, all-purpose watchdog, charged oversight of the entire ethical system. This option has also been rejected. The explication is that “internal oversight or self-regulation would not be regarded as adequate or acceptable” (Ibid.). Hence, no one is not an appropriate. Nevertheless, Public Administration Select Committee makes a number of suggestions concerning the need of more detailed discussion about future design of ethical regulation and funding.

The new Civil Service Competency Framework (CSCF) will come into operation for all government departments from 1st April 2013. It will be used for recruitment and selection, performance management, personal development plans, and career development (Civil Service, 2013). This new framework reflects the newest tendencies in the civil service and requires additional attention.

All 10 competencies of the framework are grouped into 3 clusters: 1) Setting Direction; 2) Delivering Results; 3) Engaging People. Each competency is supported by the examples of effective and ineffective behaviour for each grade. In addition, it is necessary to mention that this framework has been developed in collaboration with Civil Service professions.

To sum up the British experience description, it is necessary to underline the strong tendency, which could be described as a clear movement from the abstract (public service ethics) to the concrete (above all, seven ethical principles and code of ethics) in the Hegelian sense.

Section 7. Best practice implication

The question arises - how to disseminate and uphold best practice described above toward Russia. The direct transfer of ethical regulation and code of ethics particularly is not convenient cause of different factors as culture, historical background and institutions that has been described above. At once, the main idea is to try transferring the vision of the ethical infrastructure, its principles of functioning and overall system approach including discussed concepts. The model code should consists and presents guiding principles of the civil service of the Russian Federation bearing in mind the whole range of peculiarities. Ethical codes of executive bodies should explain the principles of the model code with a focus on specific of the type of executive body as well as the internal and cultural peculiarities of each. Nevertheless, code of ethics should be an integral part of the contract of employment of individual civil servants.

Moreover, it is necessary to define the dominant model between value-based and compliance-based approaches. At the current stage there was only one takeover of an element called code of ethics. The presence of a code of ethics indicates the development of the value-based model. However, the content is matter, which could be investigated in the next section. It is quite important to avoid confusion and formalism.

Thus, it will be necessary to define values of the Russian civil service. It helps to construct a general vision of the existing ethical infrastructure. Such qualities are indirectly included in the Model Code of ethics. Among others, there are mentioned such qualities of civil servants as trust, impartiality, correctness and care, tolerance, conscientiousness. However, the question of objectivity arises. The following analysis based on the linguistic content analysis technique that represents a quantitative approach.

Section 8. Quantitative linguistic content-analysis of ethical codes

One of the key areas of public service reform is to change the oral culture of officials through the enactment of ethical regulators such as codes of ethics and mechanisms aimed at their implementation and realization.

Furthermore, if there has not been coordination between the codes set at the different levels of government (general, branch- specific and agency-specific), the codes might be overlapping and even contradictory, thus creating confusion rather than offering any clear guidance (Moilanen, 2007). Current system of official ethics increases discrepancy that will be shown afterward.

Table 6

Structural analysis of Russian Model ethical code, Civil Service Code and Civil Service Management Code

Aspect	Russia	UK
Objective	+	+
General principles of ethics	+/-	+
Conflicts of interest	+	+
Gifts and favours	+	+
Outside activities	-	+
Use of information	+	+
Political activities	+/-	+
Conduct in private life	-	+
Use of state property	-	+
Working time	-	+
Physical presentation of employee	+	+
Relations with media	+	+
Postemployment limitations	-	+
Responsibility and sanctions	+	+
Enforcement mechanism	+	+

The qualitative analysis of ethical codes (Table 6) illustrates the absence of such aspects of Russian ethical code as outside activity, conduct in private life, use of state property, working time and post employment limitations. Moreover, the ethical principles of the Russian Model code are scattered throughout the text, they does not form a strong system of general civil service vision. Political activity is presented by prohibition on forcing to work in a political party and the impartiality, eliminating the influence of political parties on official activities and decision-making. However, it is necessary to mention that in case of Russia the only model ethical code was analyzed while Civil Service code and Civil Service Management Code represented the British system. The existing Model Code consists of the following parts (Table 7).

Table 7

Structure of the Model Code of Ethics and Official Conduct of the state and municipal civil servants of the Russian Federation

1. Subject matter and scope of the Code
2. The purpose of the Code
3. The basic principles of conduct for state and municipal civil servants
4. The rule of law
5. Requirements for the anti-corruption behaviour of state and municipal civil servants
6. Handling of inside information
7. Ethical behaviour of state and municipal civil servants, endowed with organizational and administrative powers in relation to other civil servants
8. Official communication
9. Appearance of state and municipal civil servants
10. Responsibility of state and municipal civil servants for violation of the Code

Source: Code of ethics and official conduct of public officials of the Russian Federation and municipal employees (2011)

The next step of model code analysis is its decomposition into some existing legal acts. The content of the model code is represented a compilation of such acts as 58-FZ, 79-FZ, 273-FZ. However, the use of a number of regulations is indirectly mentioned in the first part of the code. A qualitative content analysis revealed a direct copy of parts and items of legal regulations. It could be served as an example of voluntarism, desire to realize desired goal without consideration of the objective circumstances and possible consequences.



Table 8

The matching of articles

Model Code	79-FZ
Point B of Article 11	Point 1.2 of Article 18
Point D of Article 11	Point 1.4 of Article 18
Point G of Article 11	Point 1.11 of Article 15
Point H of Article 11	Point 1.4 of Article 18

The qualitative analysis represents the blind copy of the federal law. The example of analysis is shown in the Table ¹8. Each article of the Model Code has a 100% identity to the appropriate article of the 79-FZ.

Consequently, the current Model Code is just an attempt to aggregate all appropriate parts of regulations together without rethinking of it. Moreover, according to Cherepanova and Etshtejn (Cherepanova and Etsshteyn, 2012:27) only two articles of code actually devoted to matters of morality that do not affect the fundamentals of human behavior, “but is fixed, for example, the ban on smoking during business meetings, discussions and other official communication with citizens”.

It is necessary to distinct various types of requirements of the administrative, criminal, laws, and regulations to the official duties of public officials and the public demands to them. The Code of Ethics is not administrative and legal document, its failure to comply with the rules does not result in any administrative or even criminal punishment to public servant.

The Code of ethics is a system of moral norms, obligations and requirements of good service behavior of officials of state bodies and local self-administration, based on the universally accepted moral principles and norms of the Russian state and society.

General description of the quantitative linguistic content analysis process

First of all, it is necessary to define main characteristics, meanings, and notions of the quantitative content analysis, especially Content Pro 1.6 application. The content analysis is designed for analysing a variety of texts. Under the text we can see a finite set of word forms, combined lexical, grammatical, semantic and frequency relationships. In this case, two types of analysis are realised: notional and frequency. Notional or semantic content analysis allows analysing the semantic content of the text. The frequency content analysis allows to analyse the frequency of various word forms, which is a prerequisite for studying the structure of the text and to identify its meaning. Thus, the word form could be a single letter, group of letters, word or group of words. All texts should be presented in a comparable form before carrying out a content analysis. The summary of the analysis algorithm can be illustrated in the block diagram form (Figure 4).

Figure 4 The analysis algorithm

The general sample consists of 68 codes, which covers 85% of the federal executive bodies of Russia. It is the maximum number of ethical codes, which are currently freely available. There are three main sources for searching codes of ethics:

· Official websites of the federal executive bodies of Russia;

· Consultant Plus - an assistance computer-based system to work with the legislation of Russia;

· Garant - a legal information database.

The quantitative analysis consists of creating general specification for each code and then comparing with the Model Code. The general specification consists of the following list of variables:

· Number of words;

· Number of groups;

· Average word length;

· Number of sentences;

· Average sentence length;

· Lexical diversity, %;

· Structural complexity;

· Grammatical complexity, %.

The lexical diversity of the text is the ratio of the number of groups to the number of words as a percentage. The ratio of the standard language equals to 37% (Churakov, 1996).

The structural complexity of the text is an indicator of the relationship of words in the text and the integrity of the text as a system. This indicator is calculated using the following formula:

.

Proportion between groups is a system-wide feature that is used in a modular analysis. It is calculated as the average ratio of neighbouring elements in an ordered numerical sequence. (Davydov, 1994).

The grammatical complexity of the text is the ratio of number of commas to the number of sentences. It shows the degree of structure in the text and it can be interpreted as an indicator to whom the text is designed for (the higher value tends to the more educated readership).

The fluctuation band is calculated as the difference between the absolute maximum and absolute minimum of the identity coefficient.

Specification of the Model Code of ethics

The crucial step of content analysis is the specification of the Model Code, which serves as an ideal one for further analysis. The corresponding numerical values are as follows (Table 9).

Table 9

Specification of The Model Code of ethics

Number of words	1824
Number of groups	585
Average word length	7,68
Number of sentences	73
Average sentence length	24,99
Lexical diversity, %	32,07
Structural complexity	1057673
Grammatical complexity, %	1,97

Qualitative analysis allows making a conclusion about general theoretical legal character of ethical codes, rather than the practical instrumental. The main reason for the lack of effectiveness of a code of ethics as a regulator is an unjustified technical regulations priority rather than ideological value component (Cherepanova and Etshtejn, 2012, p.27).

Quantitative content analysis of the Ministerial ethical codes of Russia

The total number of existing codes is 19, which is 95% of the total number of ministries. The absolute minimum value of identity between ministries is 36,25%, the absolute maximum value between ministries is 98,54%. While the average minimum value equals 46,14%, average maximum is 83,08% of identity.



Figure 5 The fluctuation band of the identity coefficient of the ethical codes between ministries

The general specification of the ministerial codes is presented in the appendices (Appendix 1). According to the diagram (Figure 5) the maximum fluctuation band belongs to the MOD. In this case, it is necessary to make an additional qualitative analysis of this ministerial code. The high level of fluctuation band could be partly explained by the intersection of military and civil service.

Quantitative content analysis of the Service ethical codes of Russia

The total number of existing codes is 30, which is 88,2% of the total number of services. The absolute minimum value of identity between services is 6,06%, the absolute maximum value between services is 97,32%. While the average minimum value equals 50,87%, average maximum is 83,13% of identity.

Figure 6 The fluctuation band of the identity coefficient of the ethical codes between services

The general specification of the service codes is presented in the appendices (Appendix 2). According to the diagram (Figure 6) the maximum fluctuation band belongs to the FAS. Moreover, the absolute minimum value of identity (6,06%) belongs to FTS. In this case, it is necessary to make an additional qualitative analysis of these service codes. The highest structural complexity coefficient 1524611 of FAS shows the integrity of the whole text. The highest lexical diversity coefficient 56,25% of FTS could be interpreted that the tone of voice is least similar to the normative legal act and Model Code particularly.

The quantitative content analysis of the Agency ethical codes of Russia

The total number of existing codes is 19, which is 76% of the total number of agencies. The absolute minimum value of identity between agencies is 21,9%, the absolute maximum value between agencies is 96,23%. While the average minimum value equals 55,93%, average maximum is 85,34% of identity.

Figure 7 The fluctuation band of the identity coefficient of the ethical codes between agencies

The general specification of the Agency codes is presented in the appendices (Appendix 3). According to the diagram (Figure 7) the maximum fluctuation band belongs to the Rosarhiv. In this case, it is necessary to make an additional qualitative analysis of this agency code. The case of Rosarhiv represents an attempt to reformulate the text of model code. However, the content is just reduced and it is still the same at the semantic level.

To sum up, the linguistic content analysis shows the high level of identity of codes to the Model Code. The average minimum value of identity between all executive bodies' codes equals 51%; the total average maximum is 84%. According to the lexical complexity indicator, all codes have normative-based character.

Thus, the analysis allow making conclusions which could be formulated through the following list of statements:

1) There is a necessity in the general guidelines as a requirement of a value-based ethical infrastructure in the form of the unified ethical code, but not a compilation of legal acts in form of current Model Code of ethics as it is;

2) The existence of ethical codes adopted before Model Code shows the topicality and necessity of the further ethical infrastructure development;

3) The official regulations do not contain reference rules to the code of ethics that breaks the overall concept and hampers the integration of ethics into practical public service;

4) Current codes of ethics as a tool have an uncertain status. The content of existing codes represents a mixture of the general behavioral principles and specific regulations, which lead to the substitution of recommendation and explanatory nature of the administrative code by legal rules;

5) The development and implementation of the operation and maintenance of ethical codes. The development of mentoring mechanism as well as the evaluation of needs to revive the institution of the oath;

6) The alignment of integrated ethics infrastructure. Trainings explaining the general principles and core values of the civil service; outreach to the ethical conflicts and dilemmas; the system of state and public control with the use of information technology are needed for system approach to ethics;

7) The need to consider the expectations of society. It is necessary to create a system of moral government, involving both government and non-governmental organizations;

8) The absence of a solid conceptual model of moral development/ethical regulation.



Conclusion

The current trends show the heightened attention to the private service techniques such as corporate ethics and corporate culture. The process of rotation of people from private to the public sector could explain this phenomenon with all attendant challenges discussed. In addition, the general vision of Public Administration and their aims are changing. Nowadays, civil servants have more power than ever, which leads to ethical dilemmas.

Thus, the ethical regulation is one of the tools that will strengthen confidence in the action of public authorities, which, in turn, will lead to trusting relationships, enhance the image and prestige of public service. Moral management will allow minimizing the corruption factor.

There were carried out the following steps in accordance with formulated tasks:

1) The definition of the role and place of the ethical code within ethical infrastructure;

2) The investigation of the main factors influencing policy transfer;

3) The analyse of British and Russian context in the field of ethical regulation;

4) The qualitative linguistic content analysis of the Russian and British ethical codes;

5) The quantitative linguistic content analysis of ethical codes of the federal executive bodies of the Russian Federation.

The considered experience of Britain indicates the long-term process of formation of the ethical aspects that is not devoid of flaws and controversy these days. It is clear that there is no “one size fits all” approach that is described by policy transfer pillars investigated in the theoretical part. Administrative tradition is different; nevertheless, the process, which probated in one country especially their weaknesses, should be taken into account introducing their own policies or codes. Moreover, it does not mean the impossibility of policy transfer into Russian context. By the way, the three main pillars of it should be taken into consideration to form system approach.

The acceptance of ethical codes does not guarantee itself the ethical regime development. The code, after all, should be checked on dissemination and implementation. The ethical regulation should be coherent and constitutionally secure.

Thus, the competitive advantage of reflective code is that it could accompany and respond faster on changes with reservation that it is a really valid tool. The choice between regulative and reflective character should be accompanied by associated model of value administration.

One element of the ethical infrastructure is now adopted in Russia. However, there is not enough building ethical regulation system, which is proved by the held linguistic analysis. Current ethical codes could not be effective and serving as an instrument of moral regulation of civil servants in the existing form. Moreover, implementation of ethical elements in the official regulations and instructions or creating reference rules to the text of the code of ethics is needed. Without effective assessment strategies it is very difficult to maintain the long-term continuity of ethics codes. The Model Code should be revised in accordance with the current legal framework as well as the general vision of the ethical infrastructure development. The executive bodies' codes should be revised and differentiated in accordance with their specifics and peculiarities.

In this master thesis it is considered only one side of the coin - the public servants from the point of view of ethical regulation mechanisms while the topic is closely connected with the study of motivation of civil servants that is of particular interest. However, it goes beyond the scope of this work.

To summarize, the adoption of the ethical code is not a panacea against corruption, unethical behavior and other misconduct. However, the code of ethics as part of the infrastructure is changing the context in which these things occur, thus changing the attitude of the people as a whole.

Bibliography

Laws and regulations

Federal law of the Russian Federation (2003) “The Civil Service System of the Russian Federation” ¹58-FZ, adopted 27 May 2003 (ed. from 7 May 2013);

Federal law of the Russian Federation (2004) “State Civil Service of the Russian Federation” ¹79-FZ adopted 24 July 2004;

Federal law of the Russian Federation (2008) “Anticorruption policy” ¹273-FZ, adopted 25 December 2008;

Presidential Decree (2001) “The conception of reforming the civil service system of the Russian Federation” ¹1496, adopted 15 August 2001;

Presidential Decree (2002) “On approval of the general principles of conduct for public servants” ¹885, adopted 12 August 2002;

Federal Agency of Air Transport (2011) “On the approval of the ethics code of conduct for federal and state civil employees of the Federal Air Transport Agency”, Order ¹276 of May 18, 2011;

General Directorate of Special Programs of the President of the Russian Federation (2010) “On the approval of the code of ethics and official conduct of civil servants of the Special programs Agency of the President of the Russian Federation”;

Russian Ministry of Internal Affairs (2011) "The Code of Ethics and Official Conduct federal civil servants of the Ministry of Internal Affairs of the Russian Federation", Order ¹870 of July 22, 2011;

The Administration of the President of the Russian Federation (2011) “Approval of the Code of Ethics and Official Conduct of Federal Civil Servants of the Administration of the President of the Russian Federation”, Order ¹607 of 14 November 2011;

The Federal Agency for Fishery (2011) “On approval of the Code of Ethics and Official Conduct of Civil Servants of Rosrybolovstvo and regional offices of Rosrybolovstvo”, Order ¹279 of 24 March 2011;

The Federal Agency for Special Construction (2011) “On the approval of the code of ethics and official conduct of public servants Federal Agency for Special Construction”, Order ¹114 of 22 March 2011;

The Federal Agency for State Property Management (2011) “Code of ethics and official conduct of federal officials of the Federal Agency for State Property Management”, Order of 2011;

The Federal Agency for Technical Regulation and Metrology (2011) “On the approval of the ethics code of conduct for federal and state civil employees of the Federal Agency for Technical Regulation and Metrology”, Order ¹625 of 17 February 2011;

The Federal Agency for the Development of the State Border of the Russian Federation (no date) “Approval of the Code of Ethics and Official Conduct federal civil servants of the Federal Agency for the Development of the State Border of the Russian Federation and its territorial bodies”;

The Federal Agency for the supply of arms, military and special equipment and supplies (2011) “On the approval of the ethics code of conduct for federal and state civil employees of the Federal Agency for the supply of arms, military and special equipment and supplies”, Order ¹82 of 23 March 2011;

The Federal Agency for Youth Affairs (2011) “Code of Ethics and Official Conduct of Civil Servants of the Federal Agency for Youth Affairs”, Order ¹42-à of 2 March 2011;

The Federal Agency of Maritime and River Transport (no date) “On approval of the Code of Ethics and Official Conduct of Civil Servants of the Federal Agency of Maritime and River Transport”;

The Federal Archive Agency of the Russian Federation (2011) “On the approval of the ethics code of conduct for federal and state civil employees of the Federal Archive Agency”, Order ¹30-k of 22 April 2011;

The Federal Communications Agency (2011) “Approval of the Code of Ethics and Official Conduct of Civil Servants of the Federal Communications Agency”, Order ¹51 of 16 March 2011;

The Federal Forestry Agency (2011) “Approval of the Code of Ethics and Official Conduct of Civil Servants of the Federal Forestry Agency”, Order ¹97 of 30 March 2011;

The Federal Medical and Biological Agency (2011) “Approval of the code of ethics and official conduct of federal civil servants of the Federal Medical and Biological Agency”, Order ¹28 of 28 January 2011;

The Federal Press and Mass Media Agency (2011) “On approval of the Code of Ethics and Official Conduct of Civil Servants of the Federal Press and Mass Media Agency”, Order ¹739 of 14 December 2011;

The Federal Road Agency (2011) “On the approval of the ethics code of conduct for federal and state civil employees of the Federal Road Agency”, Order ¹45 of 10 May 2011;

The Federal Space Agency (2012) "On approval of the Code of Ethics and Official Conduct federal civil servants of the Federal Space Agency", Order ¹124 of 8 June 2012;

The Federal Water Resources Agency (2011) “Code of Ethics and Official Conduct of Civil Servants of the Federal Water Resources Agency”, Order ¹69 of March 18, 2011;

The Ministry of Agriculture of the Russian Federation (2012) “On approval of the code of ethics and official conduct of public officials of the Ministry of Agriculture of the Russian Federation”, Order ¹170 of 5 March 2012;

The Ministry of Communications and Media of the Russian Federation (2011) “On approval of the code of ethics and official conduct of public officials of the Ministry of Communications and Media of the Russian Federation”, Order ¹259 of 13 October 2011;

The Ministry of culture of the Russian Federation (2011) “On approval of the code of ethics and official conduct of public officials of the Ministry of Culture of the Russian Federation”, Order ¹215 of 3 March 2011;

The Ministry of Defense of the Russian Federation (2011) “On approval of the code of ethics and official conduct of public officials of the Ministry of Defense of the Russian Federation”, Order ¹555 of 22 April 2011 (in the edition of the Order ¹295 of 11 February 20112);

The Ministry of Economic Development of the Russian Federation (2011) “On approval of the ethics code of conduct for federal and state civil servants of the central apparatus of the Ministry of foreign apparatus and Economic Development of the Russian Federation”, Order ¹292 of 23 June 2011 (in edition of the order ¹185 of 6 April 2012);

The Ministry of Education and Science of the Russian Federation (2011) “On approval of the code of ethics and official conduct of public officials of the Ministry of Education and Science of the Russian Federation”, Order ¹2047 of 22 June 2011;

The Ministry of Energy of the Russian Federation (2011) “On approval of the code of ethics and official conduct of public officials of the Ministry of Energy of the Russian Federation”, Order ¹90 of 25 March 2011;

The Ministry of Finance of the Russian Federation (2011) “Code of ethics and official conduct of federal civil servants of the Ministry of Finance of the Russian Federation”, Order of 23 March 2011;

The Ministry of foreign affairs of the Russian Federation (2012) Project of the ethical code;

The Ministry of Health and Social Development (2012) “On approval of the code of ethics and official conduct of public officials of The Ministry of Health and Social Development”, Order ¹120 of 14 February 2012;

The Ministry of Industry and Trade of the Russian Federation (2011) “On approval of the code of ethics and official conduct of public officials of the Ministry of Industry and Trade of the Russian Federation”, Order of 22 February 2011;

The Ministry of Justice of the Russian Federation (2011) “On approval of the code of ethics and official conduct of public officials of The Ministry of Justice and its territorial bodies”, Order ¹93 of 23 March 2011;

The Ministry of Natural Resources and Environment of the Russian Federation (2011) “On approval of the code of ethics and official conduct of public officials of the Ministry of Natural Resources and Environment of the Russian Federation”, Order ¹920 of 25 November 2011;

The Ministry of Regional Development of the Russian Federation (2011) “On approval of the code of ethics and official conduct of public officials of the Ministry of Regional Development of the Russian Federation”, Order ¹125 of 25 March 2011;

The Ministry of Sport of the Russian Federation (2012) “On approval of the code of ethics and official conduct of public officials of the Ministry of Sport of the Russian Federation”, Order ¹133 of 22 August 2012;

The Ministry of the Russian Federation for Civil Defence, Emergencies and Elimination of Consequences of Natural Disasters (2011) “On approval of the code of ethics and official conduct of public officials of The Ministry of the Russian Federation for Civil Defence, Emergencies and Elimination of Consequences of Natural Disasters”, Order ¹354 of 7 July 2011;

The Ministry of Transport of the Russian Federation (2011) “On approval of the code of ethics and official conduct of public officials of the Ministry of Transport of the Russian Federation”, Order ¹121 of 25 April 2011;

Literature

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Alexandrov, V. (2011) Professionalism of civil servants: the basic measurement, Proceedings of the North-West Academy of Public Service, pp.31-41.;

Amundsen, I. and Pinto de Andrade, V. (2009) Public Sector Ethics. Compendium for teaching at the Catholic University of Angola (UCAN);

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Cabinet Office (2013) Civil Service conduct and guidance, National archives [Online]. Available at: http://webarchive.nationalarchives.gov.uk/20130128101412/http://www.cabinetoffice.gov.uk/content/civil-service-conduct-and-guidance (Accessed: 28 January 2013);

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