FEDERAL AGENCY FOR EDUCATION

State educational institution of higher professional education

RUSSIAN STATE UNIVERSITY FOR THE HUMANITIES

INSTITUTE OF ECONOMY, MANAGEMENT AND LAW

MANAGEMENT DEPARTMENT

Chair________________

Full Name

Analysis and improvement of the local self-government system on the example of the municipality "Vasilevsky"

Diploma work of a student (s) of ____ course _______ forms of study

Speciality "___________________________________________"

Approved for defense at the GAK

Head department

doctor of economic sciences, professor

N.I. Arkhipova

"__" ____________ 201

scientific adviser

Senior Lecturer

L.N. Solyankina

"__" _____________ 201

St. Petersburg

Introduction

1. Theoretical foundations of local self-government

1.3 Functions of LSG

2. Analysis of the LSG system in St. Petersburg

2.2 Functions

2.3 Features

2.4 Comparative analysis of federal cities

3.3 Improving the state of the local self-government system in St. Petersburg on the example of Vasilevsky Municipality"

Conclusion

Applications

Introduction

The experience of carrying out reforms in various spheres of social and economic life has shown that only those of them have a chance of success that are consciously supported at the regional and local levels and are approved by the population. In the context of the crisis, this thesis not only has not lost its relevance. On the contrary, in this situation, "success depends on how synchronously, jointly, in solidarity the state, on the one hand, and civil society, on the other hand, will act."

The current conditions require the most careful attention to the efficiency of the work of authorities and management at all levels, the validity of new plans and programs, and the concentration of available resources. Ensuring balanced socio-economic development is not an end in itself, but a tool for solving the main task of state authorities and local self-government - improving the quality of life of Russians.

The relevance of the study lies in the fact that the specifics of the local self-government system relies on power structures in matters of implementation, within their own competence of assigned powers, on civil society with maximum proximity and interaction with the population, as well as on business entities that are municipalities - producers and consumers of products and services with their own budget. This allows us to speak about the expediency of a fundamentally new approach to the functioning and capabilities of individual institutions of power. The system of local self-government is just such a single institution that combines all of the above components.

The research problem lies in the fact that the intensity of competition in the domestic market is such that there are clear signs of a decline in business activity, the annual number of newly opened companies and firms is comparable to the number of companies that have ceased operations. There was a trend of the main limitation of the accessibility of the emerging conjuncture of regions and districts for a significant part of the population of the state, which led to the growth of such problems as unemployment, a decrease in health and quality of life. The solution of these topical socio-economic problems in the field of formation of regions and districts of our state requires the widespread use in regional practice of a rational approach to the formation of effective competitive strategies focused on current and future social and economic needs of the population.

Thus, the main trends in regional development and their role in ensuring social and social development, a comprehensive study of a wide range of these problems related to affordable and high-quality satisfaction of the needs of the population of the region based on market mechanisms of the regional market, have not yet received sufficient development. However, the practice of ensuring economic efficiency based on the optimization of the management of the competitiveness of regions urgently requires a comprehensive analysis of the accumulated experience.

The purpose of the study is to theoretically and practically implement the methodology of optimal management in the field of regional development in order to create certain advantages for the socio-social and economic spheres.

In accordance with the set goal in the thesis work, the author sets the following tasks:

1) to consider methods and ways of improving local self-government and using it to solve national problems of increasing the level and quality of people's representation in power, as well as the broad participation of Russian citizens in solving problems of socio-economic development;

2) to analyze possible methods related to increasing the level of public confidence in the authorities in order to solve the issues of involving the population in the work related to the self-government of the territories by moving from simply informing the population about their activities to discussing and developing a common position regarding local problems;

3) to study what functions are vested in the development of civil society by local governments, how these functions affect the provision of feedback between the population and the authorities, how it is possible to organize work to organize and promote the implementation of civil control;

4) how can the list of issues of local importance and the powers of local self-government bodies be supplemented with appropriate powers, including the organization of monitoring the implementation of the country's development strategy at the local level and the quality of the implementation of the social functions of the state with the submission of relevant proposals to state authorities;

5) conduct a comprehensive study of consumer characteristics, conduct an analysis of resource provision based on planning the volume of material, labor, financial resources to provide the necessary services in all areas and determine the concepts of strategic development of the LSG structure using the example of the Vasilevsky region.

The object of the study is the methodology of analysis and improvement of the structure and resource support of LSG on the example of the municipality "Vasilevsky".

The subject of the study is the indicators of the development of the municipality "Vasilyevsky", as well as the indicators of other LSGs of federal significance, which are necessary for a comparative analysis.

The research methodology is the materials with which the work is performed. The methodological basis of the study is a systematic approach, methods of comparative analysis, logical modeling and peer review. The observations carried out in this study are based on the achievements of economic science, the science of management. The works of domestic and foreign authors on the problems of analysis of economic activity, the concept of strategic management, the formation of a system of social partnership, the development of local government management methods and the modern interaction of local governments with the federal center were used. The author also used data on socio-economic development and materials from statistical collections of the State Statistics Committee of the Russian Federation on the state of health of the population of Russia and on the state of the material base of municipal institutions.

The theoretical basis of the study is a comprehensive analysis of the processes of management and development of the municipality "Vasilevsky". The work used - resolutions of state and government bodies of the Russian Federation on the issues of modernization and development of the municipality "Vasilevsky". When developing the goals and objectives set, the works of domestic and foreign authors, materials published in the mass media and electronic information, personal research observations were used.

In accordance with the intended goals and objectives, the first chapter of the study will reveal the theoretical aspects of the emergence and further development of the foundations of self-government in the Russian Federation and assess the situation in the development of LSG. The second chapter of the study is devoted to the analysis and trends in the socio-economic development of LSGs on a federal scale and in the city of St. Petersburg. And in the third chapter of the study, we will talk about the goals and strategic guidelines for the socio-economic development of local self-government on the example of the municipality "Vasilyevsky".

Chapter 1. Theoretical foundations of local self-government

1.1 The main stages of the formation of the LSG system in the Russian Federation

The generally recognized principles and norms of international law, as well as a number of international treaties of the Russian Federation, establish rules for regulating issues related to the organization of local self-government (Article 15 of the Constitution of the Russian Federation). Of these, the main international act in matters related to local self-government is the European Charter of Local Self-Government, which was adopted by the Council of Europe on October 15, 1985 (the Russian Federation has been a member of the Council of Europe since February 28, 1996) . The European Charter was ratified by the State Duma on March 20, 1998 and entered into force on the territory of the Russian Federation on September 1, 1998. The Charter establishes a number of important principles that formally underlie the organization of local self-government, and also guarantee the rights of local self-government bodies.

An important legal basis for self-government in any European country lies precisely in the European Charter of Local Self-Government, which was adopted by the Council of Europe on October 15, 1985. A significant role in the implementation of this Charter belongs to the Congressmen of local and regional authorities in Europe. They are members of an advisory body, which at that time consisted of two chambers - the Chamber of Local Authorities and the Chamber of Regions. Already since 1996, Russia, which is a member of the Council of Europe, namely its delegation, has been participating in the work of the Congress. On February 18, 1996, the European Charter of Local Self-Government became operational in Russia, after it was signed on behalf of the Russian Federation in the city of Strasbourg and ratified by the Federal Law of April 11, 1998.

The European Charter of local self-government as a whole is that self-government naturally meets local needs and certain corporate interests of the population of the municipality, while the local self-government body should have the right to make a free choice of decisions. Methods, means of their implementation in the scope of the granted powers are used under the personal responsibility of the local government. A rather important condition for the viability of local self-government is the existence of a sufficient economic and financial basis for its maintenance.

The European Charter of Local Self-Government, describing in Article 9 the financial resources of local self-government bodies, notes that the local self-government body has the right, within the framework of the national economic policy, to own a sufficient amount of its own financial resources, which they can freely use exclusively within their powers and decide certain local issues.

Judicial protection of local self-government is also guaranteed. It has a special place in the system of legal guarantees. The possibility of judicial protection has received its consolidation in a number of international legal acts. Local self-government, in accordance with Article 11 of the European Charter of Local Self-Government, must have the right to judicial protection in order to guarantee them the opportunity to freely exercise their powers and to comply with a number of principles of local self-government enshrined in the constitution and legislation of the country.

There is also a specific list of models of local self-government in the Russian Federation. In the legal literature, 5 main models of LSG have been developed:

1) essential;

2) functional;

3) organizational and structural;

4) material and financial;

5) legal.

Recently, one type of model has also been singled out - “territorial”. All these models are interdependent, as well as confirmed constitutional norms.

The pre-revolutionary stage was marked by various reformatory changes in the field of local self-government. The most significant reform reorganizations were carried out by the beginning of the 60s of the XIX century, when shortly after the abolition of serfdom, Emperor Alexander II signed a decree to the government Senate on the entry into force on January 1, 1864 of the “Regulations on Zemstvo Institutions”. The most significant factor contributing to the birth of the zemstvo was the decree of February 19, 1861, according to which more than 20 million serfs acquired "free".

The zemstvo reform that took place in 1864 and the city reform that took place in 1870 pursued a single goal - to decentralize administration and develop the principles of local self-government in the Russian Empire. The change was based on two ideas. The first is the election of power. This type of self-government implies that all local self-government bodies are elected and controlled by voters. They would be under the supervision of representative authorities, and these branches of government would be controlled by the legislator. Zemstvo self-government bodies were adherents of state authorities, tried to maintain legitimacy and constancy in society. The second idea is the proposal that local self-government should have a real financial basis for its activities. From the 19th century, up to 60% of all payments collected from the territorial districts remained in the order of the zemstvo, that is, cities and counties, and 20% went to the treasury of the state and province.

Before the February Revolution of 1917, the zemstvos already carried out self-financing work in 43 provinces of the Russian Empire with a combined population of about 110 million people. The functioning of zemstvos was carried out with the help of two basic principles: self-government and self-financing.

The first principle was implemented through the election of governing bodies, as well as the formation of the structures of the administrative apparatus, the determination of the main courses of their actions, the selection and training of specialists, the formation and distribution of local budgetary funds. The Soviet stage in the development of self-government bodies began with the October Revolution and was marked by a complete reconstruction of the zemstvo administrations.

The Bolsheviks introduced the widespread liquidation of the zemstvos, since they considered the zemstvo self-government bodies a legacy of the bourgeois system, and, in addition, the policy of the new Government was the centralization of power, and the zemstvos, as you know, provided for its decentralization. The liquidation of the Zemstvos was completed in the summer of 1918.

This was a completely natural process, since the new regime implied total control, and local self-government gives economic, social, financial and even political rights and freedom, independence, while the ideas of socialism are based on the power of the proletarian dictatorship and the totalitarian regime, that is, on the state, which by its nature is centralized.

In the process of formation and functioning of local self-government in the era of the pre-revolutionary Russian Empire, it was possible to single out the following most important principles that were a feature of the domestic municipal school:

1) the principle of diversity of configurations of local self-government bodies, which was associated with the peculiarities of the socio-economic development of the territorial integrity of the Russian Empire, with the main differences in the cultural, national and religious ethnic group;

2) the principle of non-interference of local self-government bodies in active political life, since it was believed that the main task of local self-government bodies was to meet the priority needs of residents, and the country strictly monitored that local self-government bodies did not go beyond the boundaries of these powers;

3) the principle of delimitation of objects of jurisdiction and resources between the degrees of power, when the delimiting order is built not according to the position of sufficiency, but according to the position of the highest effectiveness of their application by the level provided;

4) the principle of transferring relatively broad rights in economic and economic areas to LSG bodies while maintaining control from the center. The grounds for granting some powers were mainly the colossal territorial scale of the Empire; and the rapid development in the second half of the 19th and early 20th centuries of urban and zemstvo formations, health services and culture.

The experience of local self-government, mainly zemstvo self-government bodies, accumulated before the revolution, was forgotten and lost after the revolution. And during the years of the Soviet regime, one can find many positive examples of the founding of local self-government.

The systems of local self-government that functioned in the Soviet Union, as well as in the Russian Federation in the 80s of the XX century, were characterized as follows. In accordance with the Constitution of the USSR, local Soviets were obliged to head state, economic and socio-cultural construction projects on their territory; ratify the planned projects of economic and social development, as well as the local budget fund; manage the bodies of state power, enterprises, institutions and organizations subject to them; guarantee compliance with the law, protect state and public order, protect the rights of citizens; and contribute to the strengthening of the state's defense capability.

Within the boundaries of their own powers, LSG bodies were supposed to guarantee large-scale economic and social development directly on their own territory; to implement verification of compliance with legislative acts by enterprises, organizations and associations of higher subordination located in this territorial district; coordinate and verify their activities in the field of land use, environmental legislation, construction, the correct use of labor resources, the production of consumer goods, socio-cultural, domestic and other areas of public services.

Interest in problematic issues regarding self-government in Russia increased only in the second half of the 80s, by the time they recognized the need for a transition from the administrative to the predominantly economic component of management methodology. Gradually, the point of view began to take hold that local self-government bodies are an independent level of exercise by the people of the power that belongs to them in accordance with the Constitution of the Russian Federation. At the same time, the view began to assert itself that the democratic foundations of society are possible only if the local self-government bodies are separated from the state center. The main practical step in this regard was the ratification of the USSR Law "On the General Principles of Local Self-Government and Local Economy in the USSR".

In accordance with the above legislative act, the system of LSG bodies began to include local Councils, as well as bodies of territorial public councils and committees of microdistricts, house, street, quarter, rural committees and other bodies, and in addition, local referendums, meetings and other configurations direct democracy. The village council, district settlement, urban district achieved the primary territorial level of local self-government. The law regulated the provision of federal and autonomous republican autonomies with the right to independently determine other levels.

The next stage of development was the post-Soviet transitional stage. The main stage in the development of the municipal government reform, as already mentioned above, was the adoption on April 9, 1990 of the Law of the Union of Soviet Socialist Republics, which was called "On the General Principles of Local Self-Government of the Local Economy in the USSR." In addition to the characteristic features, in accordance with which broad powers were transferred to LSGs, an understanding of the conditions appeared and strengthened that these powers and the work of self-government bodies should have been based on a solid financial and economic basis.

The backbone of the local economy was to consist of communal property. It covered objects that were created or acquired by LSG bodies at the expense of their own funds, and also transferred to them free of charge by federal and republican bodies. Municipal enterprises received, in accordance with this law, the preferential right to use local natural and material and technical resources.

The next step is considered to be the ratification of the Law of the RSFSR "On Local Self-Government in the RSFSR", according to which local representative bodies of power were elected by the population on the basis of universal, equal and direct suffrage by secret ballot for a period of five years. The executive and administrative bodies of LSG, which were accountable to the appropriate Council, as well as to higher executive and administrative bodies within the boundaries of their powers, were local administration. The head of the administration of local authorities was elected by universal direct and equal elections by secret ballot, also for a period of 5 years. The head of the administration exercised his powers, relying on the principle of unity of command. He had to resolve all issues by subordinating and managing the bodies and structural divisions of the local administration. Similarly, the approval of LSG bodies in the Russian Federation was accompanied by the transition from the executive committee-collegiate forms of executive activity to the position of one-man management in the leadership of LSG.

The mass democratic transformations that arose in the Russian Federation by the mid-1990s led to the fact that the idea of ​​separating local self-government from the system of state authorities, which existed in the pre-revolutionary period, began to be restored.

In 1993, a new Constitution of the Russian Federation was adopted, which fixed the legislative provision that local governments are no longer part of the system of state authorities. In accordance with Art. 132 defined the scope of problems of local importance: “local self-government bodies independently manage municipal property, form, approve and execute the local budget, establish local taxes and fees, maintain public order, and also resolve other issues of local importance. Local self-government bodies may be endowed by law with separate state powers with the transfer of material and financial resources necessary for their implementation. The implementation of the delegated powers is controlled by the state.

In the Constitution of the Russian Federation of 1993, in Chapter 1 of Article 12, local self-government was first defined as the basis of the entire constitutional system of the state of Russia. This requirement is taken into account by the European Charter of Local Self-Government. LSG is recognized, guaranteed and implemented throughout the Russian Federation.

An integral part of the Russian legal system, as follows from Article 15 of the Constitution of the Russian Federation, is a number of generally recognized principles and norms of international law and international treaties of the Russian Federation. For this reason, the legal basis of local self-government is the European Charter of Local Self-Government, which was ratified by the Federal Legislation of 11.04.1998. The Charter defines a number of basic principles in accordance with which, together with the Russian Constitution, federal, regional and municipal legislation, local self-government is built in the Russian Federation.

Legal guarantees for the implementation of LSG are of particular importance. Legislation provides for legal liability for restrictions on the rights of local self-government. Thus, from this moment in the Russian Federation, at the constitutional level, local self-government was approved - a specific degree of power, since the separation of LSG bodies from the system apparatus of state authorities determined the original splitting of state functions vertically.

A significant eventful stage in the formation of the LSG system in Russia was the adoption of the Federal Law of August 28, 1995 "On the general principles of organizing local self-government in the Russian Federation". In the legislative act, LSG bodies were characterized as independent, and their functions were to be carried out under their own responsibility. The right of citizens to implement local self-government is regulated by such theses of the law as: recognition of the equality of citizens; the right, in accordance with the elections, to elect or be elected to LSG bodies; and equal access to municipal services.

Thus, the main principles of the foundation of local self-government in the Russian Federation were determined, which at the present stage provide ample opportunities for a variety of configurations for its implementation. Nevertheless, the inhabitants of the Russian Federation, for various reasons, just as before, could not fully participate in the execution of democracy through the LSG bodies. Then, as one of the most significant constitutional and legal reforms in Russia, a reform of local self-government was carried out. Taking into account the historical experience of the development of local self-government bodies in the Russian Federation and applying the best foreign experience, a reform was launched, which, ultimately, helped to consolidate the two-level nature of local self-government on a legal basis. As a result of the reform, the population will have the opportunity to actively participate in the life of their district, region, district and take the initiative in the exercise of power by local self-government bodies.

1.2 The concept and principles of LSG in the Russian Federation

In accordance with Article 12 of the Constitution of the Russian Federation, local self-government is recognized and guaranteed in our country. Local self-government within its powers is an independent body. In accordance with the legislation, local self-government bodies are not considered part of or a participant in the system of state authorities. Paragraph 2 of article 3 of this fundamental document states that the people exercise their power directly, as well as through state authorities and local self-government bodies. Consequently, local self-government is one of the forms of realization by the people of their power.

Also, the main points and principles of this institution are particularly detailed in Chapter 8 of the Constitution of the Russian Federation, in which Articles 130, 131, 132 and 133 establish general provisions on the organization of local self-government in Russia.

In accordance with the information from the above articles, local self-government in the Russian Federation allows you to make independent decisions on some issues that are only of local importance. For example, among such issues may be such moments as the possession, use and disposal of elements of municipal property. Decisions on issues are made by a meeting of citizens through the convening of referendums, elections, as well as other forms of direct expression of will, through elected and other bodies of local self-government. Local self-government is carried out in urban, rural settlements and other territories, taking into account historical and other local traditions. The structure of local self-government bodies is determined by the population independently. Changing the boundaries of territories directly in which local self-government is valid is possible only taking into account the population of the respective territories [Appendix 1].

The local self-government body independently manages the elements of municipal property, carries out the formation, approval and execution of the local budget, establishes the local tax and the number of fees, maintains public order, and also resolves other issues of local importance. Local self-government bodies may be endowed by law with separate state powers with the transfer of material and financial resources necessary for their implementation. The implementation of the delegated powers is controlled by the state.

Local self-government in the Russian Federation is guaranteed by the right to judicial protection, to compensation for additional expenses incurred as a result of decisions taken by state authorities, a ban on restricting the rights of local self-government established by the Constitution of the Russian Federation and federal laws.

The European Charter of Local Self-Government "Collection of Legislation of the Russian Federation", ratified in Russia in 1998, defines local self-government as the right and real ability of local self-government bodies to regulate and manage a significant part of public affairs, acting within the framework of the law, under their own responsibility and in the interests of the local population.

The Federal Law "On the General Principles of Organization of Local Self-Government in the Russian Federation" provides a broader concept of local self-government, according to which local self-government is a form of exercise by the people of their power, ensuring within the limits established by the Constitution of the Russian Federation, federal laws, and in cases established by federal laws, laws of the constituent entities of the Russian Federation, independent and under their own responsibility decision by the population directly and (or) through local governments of issues of local importance based on the interests of the population, taking into account historical and other local traditions. Local self-government constitutes one of the foundations of the constitutional order of the Russian Federation, is recognized, guaranteed and implemented throughout the entire territory of the Russian Federation.

The above normative acts are the direct legal basis for the organization of local self-government in Russia, along with other laws and by-laws [Appendix 2]. Other laws include Federal Legislation: the Federal Law “On the General Principles of Organizing Local Self-Government in the Russian Federation” and the Law “On Local Self-Government in the Russian Federation”, which are applied insofar as they do not contradict the provisions of Chapter 12 of the Federal Law of 06.10.2003 N 131-FZ , and cease to be valid on January 1, 2009. There is also a Federal Law “On Ensuring the Constitutional Rights of Citizens of the Russian Federation to Elect and Be Elected to Local Self-Government Bodies”, which ensures the protection of these rights in case of their violation.

By-laws include Decrees of the President of the Russian Federation: "On the Council under the President of the Russian Federation for the Development of Local Self-Government", "On the Evaluation of the Effectiveness of the Activities of Local Government Bodies of Urban Districts and Municipal Districts", Federation”, as well as Decrees of the Government of the Russian Federation, orders of the Ministry of Justice of the Russian Federation in this area and other legislative acts.

Thus, local self-government is one of the foundations of the constitutional system of the Russian Federation and is a form of exercise by the people of their power, which ensures the independent and under their responsibility decision by the population directly and (or) through local governments of local issues based on the interests of the population, taking into account historical and other local traditions. The legal basis of local self-government is made up of generally recognized principles and norms of international law, the Constitution of the Russian Federation, Federal Laws, Decrees of the President of the Russian Federation, Government Decrees and other regulatory legal acts.

The principles of local self-government are the fundamental principles and ideas conditioned by the nature of local self-government that underlie the organization and activities of the population, the bodies formed by it, which independently manage local affairs.

The principles of local self-government reflect the requirements of objective patterns and trends in the development of local authorities. They are characterized by the following:

1. Principles predetermine the construction and functioning of municipal government.

2. Acting as the theoretical basis of municipal construction, the principles help to understand the essence of local self-government, its distinctive features and characteristics.

3. The principles act as a criterion for evaluating the current system of local self-government: to what extent it corresponds to the principles and ideas expressed in the principles of local self-government.

4. The principles of local self-government, reflecting the essential features and features of local self-government, contribute to the preservation of continuity in the development of local self-government institutions.

The principles of local self-government have received their legal consolidation in the European Charter of Local Self-Government, which serves as the legal foundation for the municipal legislation of the member countries of the Council of Europe.

The Constitution of the Russian Federation, the Federal Law "On the General Principles of Organization of Local Self-Government in the Russian Federation", based on the provisions of the European Charter on Local Self-Government, establish the general principles of local self-government inherent in the entire system of local self-government in the Russian Federation. Within the framework of these principles, the regulation of the features of the organization of local self-government in border areas, closed administrative-territorial entities, the legal regulation of local self-government in the constituent entities of the Russian Federation is carried out, taking into account historical and other local traditions.

The implementation of the principles of local self-government is ensured not only by their legal consolidation in legislation, charters of municipalities, but also by a system of organizational forms and methods of municipal work that correspond to these principles.

The general principles of local self-government include:

a) independence of decision by the population of issues of local importance;

b) organizational isolation of local self-government, its bodies in the state administration system and interaction with state authorities in the implementation of common tasks and functions;

c) the conformity of the material and financial resources of local self-government with its powers;

d) responsibility of bodies and officials of local self-government to the population;

e) variety of organizational forms of implementation of local self-government;

f) observance of human and civil rights and freedoms;

g) legality in the organization and activities of local self-government;

h) publicity of the activities of local self-government;

i) collegiality and unity of command in the activities of local self-government;

j) state guarantee of local self-government.

Thanks to the general principles in accordance with which LSG functions, its bodies carry out their work in a coordinated manner and in accordance with a certain procedure. But, at the same time, their work is predetermined by the foundations that exist in a given territory and are subject to the customs and traditions of the inhabitants who took part in the formation of LSG.

1.3 Functions of LSG

The concept of “functions of local self-government” refers to a number of main areas of work of the municipality. The functional set of possibilities of local self-government is determined by the nature of its origin, the place of municipal self-government in the system of democracy, the tasks and goals towards which the municipal activity is directed. Local self-government is one of the components of the basis of any democratic system, as it represents the personification of the people's power and ensures the approximation of governance to the citizens. By affirming the democratic principles of organizing and exercising power at the local level, municipal self-government strengthens the foundations of democracy.

Organized in accordance with the principles of democracy and decentralization of power, having a certain autonomy in making various kinds of decisions on all issues of local importance, local governments can contribute to the most optimal combination of local and national interests, a more effective process of realizing socio-economic opportunities and potential opportunities of self-governing units in territory of the country.

Local self-government, being part of the democratic system of governing society and the state, through the independent solution of issues of local importance, also implements the tasks of ensuring the vital interests of the population, social protection of citizens.

Taking into account the role of local self-government in the organization and implementation of the power of the people, the tasks solved in the process of municipal activities and the powers of local self-government, the following main functions of local self-government can be distinguished:

1) ensuring the participation of the population in solving issues of local importance;

2) management of municipal property, financial resources of local self-government;

3) ensuring the integrated development of the territory of the municipality;

4) ensuring the satisfaction of the needs of the population in socio-cultural, public utilities and other vital services;

5) protection of public order;

6) protection of the interests and rights of local self-government guaranteed by the Constitution of the Russian Federation and federal laws.

The central place in the management cycle carried out in municipal government (as, indeed, in corporate governance) is planning. All other managerial functions ultimately depend on what the goals of the organization are and what are the ways to achieve them, which is determined in the course of planning. Thus, planning can be defined as an activity aimed at determining goals and methods of action that ensure the achievement of these goals.

The essence of planning can be characterized by considering its four aspects, which G. Kunz and O. Donnel defined as "the contribution of planning to the achievement of goals and objectives, the leading role of planning, the omnipresence of planning, the effectiveness of plans" . And although the aspects of planning listed above were originally singled out for corporate management, their importance for considering the essence of municipal government is no less.

Let's start with the fact that the purpose of any plan, whether it be a long-term plan for socio-economic development or any document derived from it, is to facilitate the achievement of the goals and objectives of the municipality. This principle follows from the very nature of any organization that exists to achieve goals through conscious cooperation. This leads to the conclusion that planning as a function of local self-government is possible only when the widest possible strata of the population are involved in setting goals and determining a system of measures to achieve them.

Since the actions of the heads of municipal governments in relation to organization, leadership and control are designed to contribute to the achievement of the goals of the municipality, planning logically precedes the performance of all other managerial functions. And although in practice all managerial functions are intertwined, "planning is unique in the sense that it sets the goals necessary for all group efforts." It should also be noted that planning not only sets goals and ways to achieve them, but also sets control standards, because. Unplanned actions cannot be controlled.

Planning is a number of functions of all those who, one way or another, are engaged in managerial activities at a professional level, and municipal governments are no exception in this regard. Naturally, the nature and volume of planned work will vary depending on the powers that specific employees of municipal bodies have. However, in any case, no job description or any other document regulating the activities of municipal government employees can limit their choice so much that they do not have the slightest freedom of action, without which there can be no planning, because. planning, by its very nature, always involves choosing from a certain number of alternative actions.

The degree of effectiveness of the plan, and, consequently, of all activities related to the development of the plan and planned activities is established by the quantitative degree of the contribution that they make to the process of achieving the goal and task to a certain municipality. When examining the level of effectiveness of the plan, it is important not to forget that not any plan can automatically lead to the full achievement of even correctly planned goals. Effective plans will be able to take into account the costs that will be associated with its implementation, as well as the fact that they should not exceed the possible benefits.

In order to better understand the need for planning, consider the following factors that are singled out for corporate management, but which are no less significant for municipal management. Once the goals and means of achieving them have been determined in the course of planning, it is time to organize. The function of the organization is to develop a structure of tasks and power relations that ensure the achievement of the goals of local government.

The function of the organization in municipal government ensures the formation of a system of governing bodies of the municipality, their internal structure, communications both within these bodies and between them. Of particular importance in this regard is the formation of the optimal organizational structure of municipal government. In addition, this management function ensures the coordination and interaction of the joint activities of the governing bodies of several municipalities, as well as with regional and federal authorities. Finally, this function is aimed at creating mechanisms for the interaction of municipal government with business structures that operate on the territory of the municipality.

"Management and leadership - as defined by G. Kunz and S. O Donnell - are the interpersonal aspects of management, through which subordinates can understand the goals of the enterprise and most effectively and rationally contribute to their achievement."

The management function is directly aimed at the employees of the organization and is designed to ensure their behavior, which pursues the achievement of the goals of the organization, in this case, the system of municipal government. For this reason, effective leadership becomes a highly valuable quality of a leader, which is of particular importance in the field of municipal government, also because often such a leader has to ensure not only the proper behavior of municipal employees, but also individual organizations and enterprises not directly accountable to him, as well as certain groups of the population living in the territory of the municipality.

However, no matter how outstanding leadership qualities leaders have, this may not be enough if the system of municipal government does not provide proper motivation, which in management practice is manifested in the formation of various incentive systems for activities aimed at achieving corporate goals.

The content of control, as the final function of management, is to compare the results of the activities of the municipal government with the planned ones, to determine, if necessary, corrective measures. In the most general form, the control function in municipal government can be represented as a combination of three interrelated elements, namely:

Definitions of standards (norms) to be achieved;

Information that captures the deviation between reality and planned standards;

Corrective actions aimed at achieving planned standards.

Concluding the consideration of management functions, it should be noted once again that the “isolated” consideration of individual functions is a convenient methodological technique, while in practice it is often extremely difficult to single out individual of the functions discussed above, already because they are interconnected and interdependent.

Since the institution of law is the most important means of exercising state power, the state, constitutional and administrative branches of law regulate the organization and activities of the state mechanism, determining the structure and competence of state administration bodies. Due to the fact that the composition of general and private functions for each level of municipal government is determined on the basis of the competence established by law, this composition of functions remains the same for each level of government.

Methods of science of municipal government ensure the transformation of the competence of municipal government into management functions and, on their basis, the construction of the structure and process of municipal government. The management function is identified with the competence of the management body. The competence of the governing body is a complex legal category, the structure of which includes the subject of jurisdiction, rights and obligations. Subjects of reference in the legal literature are understood as the spheres of public life in which the governing body operates and in which it is legally competent. The spheres of public life are understood as the environment where the governing body operates, i.e. the range of her activities.

It is further stated that the governing bodies implement their functions and tasks by exercising their rights and obligations, which are characterized as powers. They are implemented on the basis of the following principles:

1) negative regulation (everything that is not prohibited is allowed);

2) subsidiarity (transferring a greater number of facility management functions to LSG bodies);

3) positive regulation (regulation from above).

Powers are, first of all: a) making decisions on internal and local issues; b) the solution of the functions of the nationwide.

The problems of creation, functioning and improvement of municipal government are explored by the science of municipal government, which uses such concepts as goal, task, function, right, responsibility of government bodies, goal, task, duty, right and responsibility of employees of these bodies.

Due to the fact that most municipal government bodies are formed and act in accordance with the law, and the law is created on the basis of the concepts of legal science (“competence”, “powers”), it becomes necessary to correlate these concepts with the concepts of municipal government science (“function”, "duty"), which will provide a legal justification for the activities of municipal governments and their employees.

Therefore, from the standpoint of the science of municipal government, it is advisable to understand the term “powers of the governing body” as the totality of the functions of the governing body and its rights; under the term "powers of an employee of a management body" - a set of duties of an employee and his rights.

The implementation of this complex work, which essentially consists in translating the concepts of legal science into the concepts of management science, is associated with certain difficulties, which are the source of erroneous decisions. To exclude them, it is necessary to create legislative and other regulatory legal acts on the organization, functioning and improvement of municipal government using the concepts of municipal government science - purpose, task, function, duty.

Conclusion on the first chapter: as a result of the study conducted in the first chapter, it was possible to find out the theoretical aspects of the formation and development of the institution of LSG in the Russian Federation. The long period of the Soviet period, during which democracy in the country was actually reorganized, influenced the democratic foundations of Russia and threw back the development of the economy and the social spectrum in the regions and regions far back. Only today, after long reforms and legal regulation, the Government and legislators have created conditions for the favorable development of LSG bodies and the regions for which they are responsible. But this state of affairs does not rule out problems. This will be discussed in the second chapter of the study.

Chapter 2. Analysis of the LSG system in St. Petersburg

2.1 Characteristics of the LSU system

A number of basic parameters of the local self-government system were established in the process of constitutional and legal reform, which was carried out in 1993-1995. The Constitution of the Russian Federation, and later the Federal Law “On the General Principles of Organization of Local Self-Government in the Russian Federation” (hereinafter referred to as the Law) helped lay the foundation of the basic principles for the formation and functioning of LSG bodies. "Local self-government as the basis of the constitutional order of the Russian Federation is recognized, guaranteed and implemented throughout St. Petersburg". The principles of democracy are enshrined in paragraph 1 of Article 4 of the Charter of the city.

The process of forming the main and fundamental principles of building the system was carried out in rather difficult conditions, which established certain features of the Russian model of local self-government. Russian President D.A. Medvedev outlined work on the development of local self-government as one of the priority tasks of the state - "local self-government should open up the opportunity for citizens to independently solve their local problems without instructions and orders from above." The conditions in which the process of formation of the basic principles of the organization of local self-government took place were characterized by the following features:

1. Transitional characteristic of economic and legal conditions, together with the incompleteness of the main legal procedures for the formation of state power. This feature led to the fact that the law became a carrier of a compromise nature, while retaining the rudiments of the old Soviet system. On the other hand, the law was also affected by the fact that it was the first law on power after the Constitution, and, therefore, after its adoption, there was a real heated struggle between the central part of the state and the regional authorities over its fundamental provisions, for the reason that For the first time, legislative bodies made attempts to set the scope of the scope of competence of LSG bodies, moving away from the Soviet principle of subordination, in which “everyone is responsible for everything” .

2. The law was adopted in the conditions of a very difficult financial and economic crisis, at a time when the federal and regional authorities were deeply interested in the maximum decentralization of spending powers, since their own incomes during this period were very limited. For this reason, the text of the Law contains a fairly clear list of broad powers and subjects of jurisdiction of local governments. Just this fact can explain a number of economic stabilization processes that followed during this period, which until the turn of the century helped to restore the economy. But nevertheless, it was precisely the provision of such opportunities to LSG bodies that determined subsequent attempts by regional centers and the state center to regain most of their powers by accusing LSG bodies of their incompetence or inability to fulfill them. (See Figure 2.1.)

It is interesting, but in accordance with statistical and historical data, these processes were characteristic of most developed countries. The worse the situation of the economic crisis, the more powers the LSG bodies have, as was the case in post-war Japan and Germany. As part of the ever-increasing momentum of the economic crisis, state authorities use local self-government, giving it the title of the most important element in anti-crisis management, since this level of government is the closest to the population and has the ability to most flexibly manage resources in the interests of the functioning of the life support systems of the population.

(Fig. 2.1.). Conditions for the adoption of the Federal Law “On the General Principles of the Organization of Local Self-Government in the Russian Federation”

3. The adoption of the law was carried out in the period of preparation for Russia's entry into the Council of Europe. For the reason that the recognition of the European Charter of Local Self-Government was an obligatory and unconditional condition for joining this European organization, the law automatically adapted as much as possible to the European requirement of standards. At the final stage, the law was carefully checked by a number of experts who were members of the Council of Europe and was recognized as fully consistent with the European Charter of Local Self-Government. This enabled the Russian Federation, without any reservations, to ratify the European Charter of Local Self-Government in 1996.

The factors listed above determined the following features of the Russian model of local self-government.

1. Legal and organizational mechanisms for taking into account local characteristics

A two-level system of legislative regulation of local self-government (federal and sub-federal levels of government). This feature is due to the federal structure of the state power itself. The law, following Article 72 of the Constitution, provides for the powers of the constituent entities of the Russian Federation to regulate certain issues of the organization and activities of LSG bodies. In accordance with constitutional norms, the federal level can only formulate general principles for organizing local self-government, which is fundamentally different from the previous approach, when the federal law (in particular, the Law “On Local Self-Government in the Russian Federation” of 1991) fully described not only the basic principles, but also operating procedures, thus creating a unified model of local self-government for the whole country. For all the attractiveness of the old approach, it is not possible today. And the point is not that this does not allow the implementation of the existing legal field, but that Russia is so diverse in its geographic, climatic, economic, ethnic and other factors that an attempt at such unification will lead to a sharp decrease in the effectiveness of this government. . At one time, the statesmen of the Russian Empire understood this very well. Until 1917, there were more than twenty different systems for organizing local self-government in Russia. Only 37 "Russian" provinces out of 72 had a unified system of local self-government.

The institutional isolation of LSG bodies from public authorities (Article 12 of the Constitution of the Russian Federation establishes that LSG bodies are not included in the system of state authorities) gives the right to determine the structure of LSG bodies according to a certain procedure, to the population itself. The provision of the Constitution on the organizational isolation of LSG bodies within the power hierarchy allows you to create the necessary level of minimum guarantees for local self-government, which is especially important for a country moving from a system of omnipotence of state officials, and also allows you to flexibly take into account the peculiarities of local conditions for the action of power, build a management structure based on interests of citizens. As a result of this provision, a fairly unified system of local authorities has developed in Russia, but in the most internal organization, each LSG body, each region has its own characteristics. However, this provision also had negative consequences. First of all, this concerns the gap in information spaces and the weakening of the coordination of the activities of local government bodies (territorial divisions of federal and regional authorities).

The two-channel system for the formation of the competence of LSG bodies (“from above”, the state determines its own subjects of jurisdiction and delegates the execution of certain state powers, and “from below”, the population also assigns the execution of certain public tasks to these bodies) makes it possible to take into account local features to the fullest extent. The Law also provides for the possibility of transferring state powers from the regional and federal levels to LSG bodies for execution. (See Figure 2.2.)

2. Financial and economic model

Since the concept of the law was formed during the transitional economy, the financial and economic model was based on the principles that provide that the main needs of citizens are met through municipal and state enterprises. The model of financial relations was also focused on this.

Despite the “non-market nature” of this approach, over the next few years the state will be forced to preserve its main features. Since in Soviet times the infrastructure of life support systems had certain properties, such as the centralization of life support systems, monopoly in most sectors of the municipal economy, and large amounts of social obligations of the state. An even more important feature is the traditionally low taxability of the population, which does not allow building a financial model based only on tax sources (as is done in most Western countries).

Rice. 2.2. Structure of LSG in St. Petersburg

Taking into account the above, it should be understood that the Russian model of the financial and economic basis of local self-government has a number of the following features:

1. Use of municipal property resources as a base and independent management.

The main part of services for the population can be realized only through a municipal enterprise or municipal institution. The municipality of St. Petersburg in this case takes on a dual role, becoming automatically both the owner and the customer. This provision can create certain difficulties in the process of managing the sectors of the municipal economy and lead to the creation of local monopolies, since as a customer of services, municipal institutions are interested in saving budget funds and developing a competitive environment in the sectors of the municipal economy, and as an owner, a municipal institution will be interested in supporting the municipal sector. Most often, the interests of the owner occupy a dominant position in the activities of local governments. The result of this contradiction leads to some problems, such as:

1. the use of a municipal order in an extremely limited area (as a rule, construction and housing and communal services);

2. lack of full-fledged planning and cost rationing, since the planning is based on the applications of municipal enterprises and institutions;

3. mixing the functions of the customer and the contractor in the activities of enterprises and institutions, corruption in government. Since the distribution of the expenditure part takes place in the interests of certain groups of municipal officials and employees of the municipal sector.

2. Strong dependence on the state - as a result of the low tax capacity of the population and unsettled interbudgetary relations.

The provisions of the law on interbudgetary regulation based on state minimum social standards have not been implemented. The consequence of this is complete arbitrariness in interbudgetary relations. The state minimum social standards themselves are considered in the law as the basis of interbudgetary regulation. However, this concept is not clearly defined in the legislation today, which makes it possible to reduce it to ordinary financial standards (in this case, there is no need to develop them) or to consider them as some ideal norms for the consumption of certain types of services (which leads to the impossibility of using them as the basis for interbudgetary regulation). The minimum state social standard should act as a characteristic of the minimum volume and quality of services (in kind) guaranteed by the state to a citizen. The value expression is calculated on the basis of financial standards (as, for example, a consumer basket). The procedure for establishing should be determined by federal law, the standard itself should be approved by Decree of the President of the Russian Federation for several years, and financial standards should be set annually by the Government when forming the budget.

3. Socio-political foundations of LSG of St. Petersburg.

The need for the autonomy of local authorities appears when the variety of forms of economic relations at the local level requires constant government regulation. As a rule, this is associated with the transition to a free market, which gives rise to a large number of small owners and entrepreneurs. It is the “middle class” that is the social basis for the existence of local self-government, as well as the main partner of LSG in St. Petersburg. Unfortunately, the economic crisis of the last decade and the associated limitation of effective demand work to a greater extent to strengthen the role of the state in solving local problems and do not contribute to the formation of the civil foundations of society. From this point of view, there are not enough social conditions in Russia for the formation of full-fledged local self-government. Our society, brought up on the distribution system and lumpenized over the past decade, perceives the very idea of ​​local self-government with great difficulty. At the same time, without the formation of a full-fledged LSG in St. Petersburg, it is impossible to form a civil position of people. This is another feature of the Russian model provided for by the Law. It establishes the rights of the population to civil initiatives and the right to public self-government. But in practice, the current model of LSG in St. Petersburg is implemented in a bureaucratic version.

2.2 Functions

Under such a concept as "functions of local self-government" refers to a number of fundamental areas of activity of municipal bodies. The functions of LSG in St. Petersburg are determined by its nature, the place of municipal self-government in the system of democracy, the tasks and goals towards which the municipal activity is directed:

1. Ensuring the participation of the local self-government population in solving issues of local importance.

2. Management of municipal property, financial resources of the Moscow Region.

3. Ensuring the integrated socio-economic development of the MO. This is done by a representative body, official, municipal administration / executive body of the MO.

4. Satisfaction of basic vital needs.

5. Protection of public order.

6. Protection of the interests and rights of LSG in St. Petersburg, guaranteed by the state.

Functions of LSG of St. Petersburg

local government financing development

Until the beginning of 1993, priority in the form of local self-government was given to a number of institutions of representative democracy. The Constitution of the Russian Federation, performing the functions of regulating the form of implementation of local self-government, brought the institutions of direct democracy to the first place: local self-government, in accordance with Part 2 of Article 130 of the Constitution of the Russian Federation, is carried out by citizens through a referendum, elections, other forms of direct expression of will, through elected and other bodies of local self-government. Thus, the legislator, having singled out in the system of local self-government, firstly, the forms of direct participation of the population in local self-government - institutions of direct democracy, secondly, an elected collegial body as an institution of representative democracy and, thirdly, other local self-government bodies, a special It attaches importance to the participation of the population in solving issues of local importance.

Such forms of direct implementation by the population of local self-government are very numerous and varied. This is a local referendum and municipal elections, citizens' gatherings and territorial public self-government, public hearings and many others. Although, as practice shows, sometimes not only the population is not ready for effective cooperation with the authorities, but also a significant part of municipal employees do not understand the peculiarities of working with various categories of the population in fundamentally new conditions, they cannot and do not want to treat the population as equal partners. Today there is a real need to listen and understand each other, while simultaneously solving two problems: to bring power closer to the population and to attract this population to participate in governance.

Poor readiness of municipal employees to use in their activities modern technologies of working with the population, which have obvious advantages over traditional management, hinders the development of civil society in general and the implementation of reforms in local government in particular.

Currently, there is a legislative framework that allows residents of municipalities to actively participate in solving local problems. This is not only Federal Law No. 131-FZ, but also Federal Law No. 67-FZ of June 12, 2002 “On Basic Guarantees of Electoral Rights and the Right to Participate in a Referendum of Citizens of the Russian Federation”, Federal Law No. 54 of June 19, 2004 -FZ "On meetings, rallies, demonstrations, marches and pickets", etc. A large number of such laws have been adopted by the constituent entities of the Russian Federation. They specify the most significant issues of organizing local referendums, elections of local self-government bodies and their officials, territorial public self-government, holding public hearings, etc. The procedure for the participation of the population in the implementation of local self-government is also regulated by municipal legal acts.

Municipal property is the property of a municipality (Article 215 of the Civil Code of the Russian Federation), that is, the property of urban and rural settlements, as well as their finances, which - at the same time - are singled out as a separate component (a set of funds generated and used to resolve issues associated with the financing of certain activities). Currently, municipal property is fixed as one of the forms of ownership - along with private, state and others.

It should be noted that if the range of subjects of state property is outlined in Russian legislation quite clearly, then this cannot be said about the subjects of municipal property, in relation to which “a vague wording is used” - urban and rural settlements, as well as other municipalities.

On the territory of the municipality of St. Petersburg, there is a population united by common interests in resolving issues of local importance. This is a local community that exists on the territory of any municipality. The concept of “local community” is not found in Russian legislation. However, the law states that local self-government in the Russian Federation is “the activity of the population to resolve directly or through local self-government bodies issues of local importance, based on the interests of the population, its historical and other traditions” (FZ “On the general principles of organizing local self-government in the Russian Federation ”, paragraph 1 of Article 28). Here the main points are, firstly, that this is “the activity of the population”, and, secondly, that this activity is carried out in accordance with the interests of the population. Paragraph 2 of Article 28 of the law states that local self-government acts as an expression of “the power of the people” and thus constitutes “one of the foundations of the constitutional order of the Russian Federation”, that is, the population of Russia is the source of power throughout its territory.

Thus, from the above it follows that the population of the municipality is also a source of power in the respective territory. And since the local community is, in fact, the population living on the territory of the municipality, the local community is the source of power in this territory, and decision-making, including regarding municipal property, is carried out on behalf of the local community.

So, the main subject of possession, use and disposal of municipal property is the local community (the population of the municipality). Local self-government bodies only "manage municipal property". And on this basis, they are secondary subjects of municipal property law. These include:

1) the head of the municipality;

2) the representative body of the municipality;

3) structural bodies and divisions of the local administration;

4) the governing body of the municipal economy;

5) municipal unitary enterprises and municipal institutions;

6) other organizations with the right to manage municipal property.

The law refers to the municipal property of the city the funds of the local budget, municipal off-budget funds. They act as the financial resources of the local government. In addition to them, the composition of municipal property as material objects includes: property of local governments, municipal lands and natural resources that are in municipal ownership; municipal enterprises and organizations, municipal banks and other financial and credit organizations, municipal housing stock and non-residential premises, municipal institutions of various industries, other movable and immovable property.

Among the most well-known and effective forms and methods for implementing the areas of socio-economic development of the territory, the procedure for developing long-term plans, as well as anti-crisis programs, is known.

The program-target method provides opportunities for the subsequent implementation of integrated approaches to the development of the city as a whole, which combines many socio-economic processes occurring in labor, domestic, educational, cultural, environmental areas, as well as to combine social goals and objectives with resources, which will later be needed for their implementation.

The program-target methodology is a means of developing a territory or an industry and began to be applied as early as the mid-60s. The methodology was able to prove the degree of its effectiveness on the example of the development of a long-term concept and the main direction of the country's economic and social development, which were considered as normative target documents. These documents were created for 1986 - 1990 and for the period up to 2000 with adjustments. In the same years, a large number of separate targeted programs were developed both at the national economic, and at the sectoral, and regional levels.

However, the imbalance of the developed programs in terms of resources, the lack of real material and technical support, the focus only on administrative methods of management led to the failure of most programs, including regional ones.

This is explained not so much by the shortcomings of the program-target method itself, but by the incompleteness of the measures taken and the imperfection of the economic management system, both in the country and in the region. Orientation towards the mechanism of sectoral management and administrative methods turned out to be poorly compatible with the principles of program-target planning and market methods for solving problems of an intersectoral and territorial nature and was a significant reason for the relatively low contribution of territorial programs to the social and economic growth of regions.

Under the conditions of capitalization of the economy and the development of market relations within the territory of the municipality, it becomes possible to use the program-target method to develop targeted regional programs that take into account new methods of regulation, taking into account the interests of all economic entities of the municipality.

That is, considering the economic mechanism of municipal self-government, we can conclude that it is necessary and possible to use the program-target method, which allows for the centralization of actions both in the formation of a strategy for solving the socio-economic problems of the city, and in determining the resource support for its implementation. However, the application of the program-target method today is fundamentally different from its use in the past, especially within the framework of LSG.

The economic situation is not conducive to the attractiveness of long-term investments in the production and socio-cultural sphere of cities and regions. Businesses and individuals seek to implement projects that give immediate returns. In such circumstances, the concentration of the necessary investments to solve social problems requires local governments to use special methods related to improving the efficiency of the implementation of socio-economic programs.

These methods can be based on preferences provided to investors of city programs, on mixed financing of projects, as well as on the creation of additional benefits, such as leasing non-residential premises, land, etc. for the development of the core activities of enterprises investing in the socio-economic programs of the city.

Consequently, the first feature of using the program-target method in the conditions of the Moscow region is to supplement it with methods to stimulate the interest of entrepreneurs in the implementation of territorial development programs.

Another feature is related to the new procedure for implementing the program. In modern conditions, the implementation process is based on contractual terms between LSG bodies and commercial organizations.

The third feature is the commercialization of social services provided to the population of the municipality. At the same time, the representative bodies of local self-government are entrusted with the responsibility of controlling and counteracting the expanding commercial sale of goods and services of socio-cultural industries.

Thus, the intersectoral nature of the socio-economic problems of territorial development necessitates the use of the program-target method, although its application in modern conditions is characterized by a number of features.

Long-term programs for the development of the territory should be drawn up by the joint efforts of all levels of government. At the federal level, the development should be based on the relevant programs of the constituent entities of the Federation. In turn, the subjects need to provide for the preparation of programs at the city level, and the latter - programs for the development of territorial entities and local communities. The population and economic entities located in the given territory and realizing their interests and needs should be actively involved in the process of drawing up and implementing such programs at the local level.

It should be noted that the development of social programs and the creation of a system of social protection of the population in accordance with the Law "On the General Principles of Organization of Local Self-Government in the Russian Federation" are the main activities of local authorities.

The implementation of the program of socio-economic development of the city, the main content of which is the system of social protection of the population, implies, firstly, the concentration in the municipality of resources sufficient to carry out the activities of the program, and, secondly, the preparation and implementation of appropriate programs at lower levels of management hierarchies that act as subprograms of this program. This is possible due to the formation of a system of balances of the territory, which makes it possible to identify sources of replenishment of financial resources and determine a set of measures to develop the own activities of economic entities and increase the efficiency of their work.

The development of programs for the socio-economic development of territorial entities and local communities included in the relevant programs of the city and the subject of the federation is the basis for obtaining public funds for the development of a particular municipality. The experience of Western countries also indicates that the socio-economic development of local communities is carried out not only at their own expense. The state allocates subsidies and subsidies to municipal budgets. In almost all countries, subsidies are an integral element of state management of territorial development.

Domestic experience and the experience of foreign countries shows that financial and budgetary policies are formed based on the needs of resource support for plans and programs, forms and methods of their implementation. Programs and plans for the development of the territory are the central link in the system of local self-government.

2.3 Features

What happened to the St. Petersburg law “On Local Self-Government in St. Petersburg” fully shows how large-scale the features and a number of conditions that have already been discussed above can be. The draft laws developed in the Legislative Assembly for a long time became the subject of numerous contradictions and disagreements with the City Administration in 1995-1997. At this point in time, it has been adopted by the Legislative Assembly of St. Petersburg and approved. The adoption took place in June 1997. But, despite this, most of the conceptual foundations and structures of this law do not make it possible to see and analyze the systems of local governments in the city of St. Petersburg.

A number of fundamental ideas of the law “On Local Self-Government in St. Petersburg” reflect the following principles:

1. Own independence of local self-government. Local self-government bodies of St. Petersburg, in accordance with the Constitution of the Russian Federation, cannot be an integral part of the system of state authorities. This principle automatically gave rise to many problems that are associated with the conjugation of state authorities and local self-government, which for a city like St. Petersburg, which is a single economic and social organism, comes to the fore.

2. The city of St. Petersburg is a city of federal significance and belongs to the subject of the Russian Federation. At the same time, it is not considered an integral municipality and, thus, the presence of a local government body and an official in local government at the level of the city of St. Petersburg as a whole is not provided for by law.

The municipal formation in St. Petersburg is actually defined within the boundaries of the territory of the existing administrative district of the city. The relevant laws of St. Petersburg, for example, the law “On the Territorial Structure of St. Petersburg” of December 25, 1996, establishes a specific list of the territorial unit of the city, within the boundaries of which more than one hundred and eleven municipalities will be located.

3. The legislation provides for the possibility to endow a local self-government body with a number of separate powers, as a body of state power. This procedure should be determined by the relevant law of St. Petersburg.

4. Article 6 "The right of citizens to exercise local self-government" contains a description of the forms of participation of the population of the municipality in local self-government. These include referendums, elections, law-making initiatives, appeals to local governments and local government officials, meetings, gatherings of citizens, territorial public self-government, public associations, appeals against normative acts and actions of local government bodies and officials. The law provides for the possibility of other forms of participation of the population in local self-government, which do not contradict the current legislation.

The structure of local self-government bodies of St. Petersburg is described in Chapter VIII “Organizational and legal forms of local self-government”. The law provides for the structure of local self-government bodies in municipalities, consisting of representative and executive bodies. The former include municipal councils, and the latter are formed by the local administration, the head of the municipality and subordinate structures.

The number of members of the municipal council is established by law within the limits of 9 to 30 deputies and depending on the size of the entire population of the municipality in question.

The St. Petersburg law provides for the presence in municipalities of local administrations, which are elected in municipal councils. The position of the head of the municipality may be provided for in the charter of the municipality, but at the same time, this position may not exist. If we talk about local administration and other bodies of local self-government within the framework of the federal law, then it can be definitely argued that the structural structure of local government bodies, including the presence of the head of the municipality, its name, and the like are determined by the population independently (paragraphs 1,4,6 of the article 14 and paragraphs 1.4 of Article 16 of the Federal Law).

According to some, in this case, an implicit, but quite conscious desire of the deputies of the representative body of state power to interfere in the limits of the competence of the local community is revealed. But in this case, there is automatically a potential possibility of appealing against this kind of norms of the law in court proceedings.

In addition, it should be noted that a number of amendments to the Federal Law “On the General Principles of Organization of Local Self-Government in the Russian Federation” (this is the name of the amendment by A. Shishlov, Yu. Luzhkov) regarding the special procedure for the formation of a local self-government system in federal cities of Moscow and St. Petersburg removes many apparent contradictions with federal legislation.

Chapter II "Subjects of jurisdiction of municipalities" is devoted to the description of the competence of local governments. Article 2 of this chapter lists the list of subjects of jurisdiction of municipalities and issues of local importance, such as local finance and the local budget; organization, maintenance and development of municipal educational and medical institutions; protection of public order; issues of planning and construction on the territory of municipalities and other issues (subparagraphs 11, 12, 13, 14, 15, 17, 18, 20, 28 and 30, paragraph 2 of article 6 of the Federal Law “On the general principles of organizing local self-government in the Russian Federation ”).

At the same time, the legislator determined that the delimitation of jurisdiction between local governments and state authorities of St. Petersburg on these issues is carried out by the laws of St. Petersburg.

It is clear that the deputies of the Legislative Assembly, by introducing these norms, tried to ensure the manageability of St. Petersburg as a single socio-economic and economic way.

The most important component of the law of St. Petersburg "On local self-government in St. Petersburg" is Chapter V "Financial and economic basis of local self-government".

In accordance with federal legislation, the economic basis for local self-government in St. Petersburg is a complex that combines municipal property, local finances, as well as property values ​​that are state-owned and transferred to the management of local governments, as well as other property, on the basis of the legislation of St. Petersburg, serving to meet the needs of the population of the municipality.

The composition of municipal property transferred to municipalities is determined by the laws of St. Petersburg. Natural resources, movable and immovable property, which is now state property of St. Petersburg, are assigned to municipalities on a gratuitous basis.

The composition of municipal property includes: the local budget, municipal non-budgetary funds, municipal lands, municipal enterprises and organizations, municipal banks and other financial and credit organizations, municipal housing stock and non-residential premises, municipal institutions of education, healthcare, culture and sports and other property.

At the same time, the issues of land relations at the level of municipalities are not spelled out in the laws of practice. Although for a number of municipalities of St. Petersburg this is one of the most important issues, and despite the fact that the Federal Law “On the General Principles of Organization of Local Self-Government in the Russian Federation” gives powers to local self-government bodies, which “... in accordance with the law may it is in the interests of the population to establish conditions for the use of land within the boundaries of the municipality” (paragraph 3, article 29), but before the adoption of the Land Code of the Russian Federation, apparently, it will be necessary to stop at what is in the law.

Such a serious issue as the economic and financial foundations of local self-government is difficult to regulate within the framework of the law of St. Petersburg in the absence of a long-awaited similar federal law. In addition, the municipalities themselves have very broad powers in the financial and economic sphere. So, for example, local self-government bodies, in accordance with the law, may establish the procedure for the use of lands located within the boundaries of the municipality (clause 3, article 29 of the Federal Law “On the General Principles of Organizing Local Self-Government in the Russian Federation”).

In this regard, the legislator turned out to be constrained by the strict conditions of rule-making: the lack of development of the relevant federal legislation, the absence of a legally established procedure for separating property in St. Petersburg into state and municipal, as well as the procedure for delimiting the relevant powers.

A special role in the practical development of the system of local self-government is given in the law to the local budget. The Law of St. Petersburg "On Local Self-Government" includes local taxes, fees and fines, deductions from federal taxes in accordance with the standards established by law; financial resources transferred to local governments for the implementation of certain state powers; proceeds from the privatization of property, the leasing of municipal property, local loans and lotteries, foreign economic activity; dividends from the municipal share in the authorized capital of enterprises and organizations; grants, subventions and other receipts in accordance with the laws of St. Petersburg and decisions of local governments and other funds generated as a result of the activities of local governments.

The structure of the local budget proposed by the law coincides with the norm of the federal law. Article 35, paragraph 2 "Local budgets" of the law states: "Formation, approval and execution of local budgets, control over their execution are carried out by local governments independently."

As for the articles of the law devoted to the minimum budgetary security standards for all municipalities, the creation of municipal off-budget funds, compensation by public authorities for additional expenses of local governments that arose in connection with decisions taken by public authorities (Articles 37, 38 of the Law “On Local Self-Government in St. Petersburg”), they are designed in accordance with the requirements of federal law.

From a practical point of view, the issues of relations between state authorities and local self-government bodies of St. Petersburg are paramount, especially in the initial period of the formation of the local self-government system. Article 23 of the law “Relations between the state authorities of St. Petersburg and local self-government bodies” is devoted to these issues. Part I of this article contains norms reflecting the obligation of state authorities of St. Petersburg to create the necessary conditions for the formation and development of local self-government and to assist local self-government bodies in the implementation of their functions and powers. The law determines the adoption of legislative acts on issues of local self-government; adoption of decisions and other normative acts on the activities of local self-government bodies by state authorities of St. Petersburg and local self-government bodies within their competence, including the delimitation of powers; conclusion of agreements and contracts between public authorities and local governments.

The law also provides for the determination by public authorities, in agreement with local governments, of the conditions and procedure for interaction between structural subdivisions of public authorities and local governments of the respective territories. Possible disputes and conflicts between state authorities and local self-government bodies of St. Petersburg may be resolved, in accordance with the law, through the creation of conciliation commissions or in court.

Along with chapter VII “Responsibility of local self-government bodies and officials of local self-government. Control over their activities”, the law describes in detail in Articles 42, 43, 44 of Chapter VI the guarantees of local self-government.

This is one of the most aptly formulated sections of the law. It provides for such guarantees as full independence of local self-government bodies within their competence, the obligation to consider official proposals of local self-government bodies by the state authorities of St. Petersburg; establishment of relevant social guarantees for officials of local self-government. Residents of St. Petersburg are guaranteed full rights to participate in local self-government.

One of the fundamental issues of local self-government in St. Petersburg is related to the self-organization of citizens at their place of residence in districts, quarters and other territories that are not municipalities. Article 26 of the law entitled “Territorial public self-government” is devoted to this.

The procedure for organizing and exercising territorial public self-government is established by the charters of municipalities. The system of territorial public self-government in St. Petersburg includes:

General meetings, gatherings, conferences of citizens and forms of direct democracy;

Bodies of territorial public self-government - councils or committees of microdistricts, housing complexes, settlements and other self-government bodies at the place of residence.

The procedure for organizing and implementing territorial public self-government of the population is established by the charter of the municipality in accordance with the laws of St. Petersburg and the regulatory legal acts of local self-government bodies.

General meetings, gatherings and conferences of citizens are convened by decision of the municipal council and the body of territorial public self-government as necessary. The law assigns the following issues to the competence of general meetings and conferences of citizens:

1) election of bodies of territorial public self-government and adoption of charters or regulations on them;

2) approval of the programs of activities of the bodies of territorial public self-government and reports on their implementation;

3) solution of other issues related to the competence of the bodies of territorial public self-government of the population.

The authority of meetings and conferences is prescribed in the charter of the municipality in accordance with applicable law. The law provides for the possibility of transferring to the bodies of territorial public self-government the powers that fall within the competence of municipal councils and local administration, as well as the establishment of areas of joint competence. Bodies of territorial public self-government may be, according to the law "On Local Self-Government in St. Petersburg", legal entities. As such, the bodies of territorial public self-government have the right to engage in commercial activities in order to achieve their statutory goals, to create enterprises and organizations in accordance with the established procedure that satisfy the needs of the population in goods and services; act as a customer for the implementation of works on the improvement of the territory and public services for the population, the construction and repair of the housing stock, and other social infrastructure facilities; cooperate on a voluntary basis with the funds of the population, enterprises, organizations and institutions to finance targeted social programs and organize other economic activities not prohibited by law.

Naturally, the bodies of territorial public self-government have their own financial resources for their activities. They are formed at the expense of income from the economic activities of bodies of territorial public self-government, voluntary contributions and donations from enterprises, institutions, organizations and citizens. It is important that the law provides for the possibility of participation of bodies of territorial public self-government in meetings of municipal councils with the right of public vote. Possible disagreements between the bodies of territorial public self-government and municipal councils are resolved in accordance with the norm of the law through the creation of conciliation commissions or in court.

The final chapter VIII “Final and Transitional Provisions” of the Law “On Local Self-Government in St. Petersburg” contains a number of transitional provisions that allow maintaining the transitional regime for managing the administrative-territorial units of St. Petersburg during the formation of local self-government bodies within their borders. For this purpose, it is envisaged that many of the powers of local self-government bodies for the specified period will be exercised by the local administration.

An analysis of the content of the legislation of St. Petersburg shows that the complex process of the formation of the local self-government system needs to intensify rule-making work. The legislator will have to develop and adopt laws in a fairly short time on the delimitation of powers and jurisdictions between state authorities and local governments of St. Petersburg, on the procedure for the formation, transformation and abolition of municipalities, on the delimitation of property, on the financial and economic foundations of local minimum local budgets, on the municipal service of St. Petersburg and a number of other laws.

But the biggest problem of local self-government reform remains the preparation of the population itself for life in conditions of self-organization and self-government. Therefore, it is necessary to develop broad and systematic work to educate and educate citizens in the skills and methods of life in self-government conditions, the basics of legal and political culture. At the same time, it is necessary to intensify research and analytical work to study the specific conditions for the functioning of the local self-government system in various municipalities and regions of Russia. And it is quite obvious that it is necessary to speed up the process of formation of local self-government, the delimitation of powers of state authorities and local self-government of St. Petersburg.

The issues of delimitation of powers of state authorities of St. Petersburg and local governments are currently a priority problem for the city. The unresolved nature of these issues hinders the normal interaction of public authorities with local governments. Two main reasons hinder this process:

First, the thousand-year-old tragedy of statism in Russian political life is having an effect;

Secondly, we can talk about the socio-psychological unpreparedness of the population of St. Petersburg to take responsibility for resolving issues of local importance. To this it is necessary to add a kind of information blockade in which the population remains on issues of local self-government. Thus, the summer (1997) sociological surveys of St. Petersburg residents showed that 8 out of 10 St. Petersburg residents do not imagine the essence of local self-government, they do not know what it should do and on what territory it should exist.

In St. Petersburg, as in many other constituent entities of the Russian Federation, one trend has gained strength and actually dominates, which noticeably affects the processes of interaction between state authorities and local self-government bodies - the desire of state authorities, primarily the administration, to interfere in the activities of local authorities. self-government, within the limits of their legal powers. It is a fact that the decisive role in the formation of local self-government in St. Petersburg is played not by the initiative and self-activity of the population, but by the policy of state power. The population itself has not yet demanded local government. The 17% voter turnout in the February 8, 1998 municipal council elections, their actual failure, strongly support this conclusion.

2.4 Comparative analysis of the municipal districts of the city of St. Petersburg on the example of MO "Kupchino" and MO "Vasilevsky"

The municipal district of Kupchino is municipal district No. 73 as part of the Frunzensky district of St. Petersburg. The name of the district (as well as the Kupchino historical district of the same name) comes from the name of the village of Kupchino located on this territory.

The modern territory of the city, united by the toponym "Kupchino", is described differently by different sources. From the point of view of the encyclopedia of St. Petersburg, this is an area bounded in the north by Fuchik Street, in the east by the Moscow railway line, in the west by the Vitebsk railway line. According to the Register of names of objects of the urban environment, Kupchino is located between Fuchik Street, the Moscow Railway line, Glory Avenue, Sofiyskaya Street, the Okruzhnaya Railway line and the Vitebsk Railway line.

In fact, Kupchin's borders are somewhat wider. The boundary of the municipality runs: from Bela Kun Street along the axis of Bukharestskaya Street to Slavy Avenue, then along the axis of Slavy Avenue to the western side of the right of way of the Vitebsk direction of the railway, then north along the western side of the right of way of the Vitebsk direction of the railway to Fuchik Street, then along along the axis of Fucik Street to Budapest Street, then along the axis of Budapest Street to Bela Kun Street, then along the axis of Bela Kun Street to Bucharestskaya Street.

It should be noted the significant simplicity of communications within the region, which is lacking in the municipality "Vasilevsky" and, on the other hand, the complexity of the passage-travel outside it, which makes it possible to clearly distinguish the territory bounded by railway lines: the old district (Connecting) - Volkovskaya station from the north, modern Okruzhnaya - Kupchinskaya station from the south, along the Vitebsk and Moscow directions from the west and east. Thus, the concept of "Kupchino" includes a significant part of the industrial zone "Obukhovo", the Novo-Volkovskoye cemetery and Vitebskaya - Sorting Street. Although according to the documentation, this data is incorrect.

From a historical point of view, only a small area near the railway platform Prospect of Glory, where the village of the same name was previously located, could claim the right to be called Kupchin. In the early 1960s, mass construction began on the territory of the Udarnik state farm, the village of Ryleeva, the village named after Shaumyan, between the present streets of Fuchik, Dimitrov and the railway lines of the Moscow and Vitebsk directions. It was to this territory that the toponym passed by inheritance. Now this area is often called the old or northern Kupchin. In the 1970s, the borders of Kupchin greatly expanded to the south. The area from the ring railway to Slavy Avenue is sometimes called the new or southern Kupchyn.

In connection with the construction of the Ring Road, the road to Kolpino (continuation of Sofiyskaya Street) and the active development of territories located south of the ring road, it is worth thinking about including these territories and the Southern Thermal Power Plant in the concept of "Kupchino". Although, it is possible that it would be more correct to classify this area as Shushary.

Kupchino is part of the Frunzensky district. Consists of five municipalities. In the law on the territorial structure of St. Petersburg, the Municipal Formation "Kupchino" was originally designated as Municipal Formation No. 73, but in June 1998 it received a proper name - "Kupchino". Directly on the territory of the district there are about 100 enterprises of trade, public catering, consumer services.

The powers of local self-government bodies to resolve issues of local importance should follow from the wording of the questions, and the choice of a solution option should follow from the economic opportunities of a given municipality, enshrined in the standards for the resources used, the set of which should correspond to each of the issues of local importance. Federal Law No. 131-F3 (Article 17 and Article 18) “binds” most of the legal norms to a specific type of municipality (settlement, municipal district and urban district), and says nothing about “intra-urban areas of cities”. To fill this gap, Article 79 of Federal Law No. 131-F3 should also provide for the possibility of legal regulation of the powers of local self-government bodies of intracity municipalities to resolve issues of local importance and empower the municipality "Kupchino" and the municipality "Vasilyevsky" with large functions. Despite the small area of ​​the municipality "Kupchino" education performs all the same functions and tasks that face a large municipality.

The European Charter of Local Self-Government, ratified by Russia in 1998 without reservations, was accepted in Russian special legislation and judicial practice as one of the elements of the legal basis of local self-government. However, the unconditional acceptance of all the provisions of the Charter without exception does not allow avoiding a conflict in the delimitation of powers between several municipal districts in the same city and local self-government bodies of intracity municipalities.

There is an opinion that Article 132 of the Russian Constitution is constitutionally defined issues of local importance (or a list of issues of local importance), which is actually based on Decree of the President of the Russian Federation of October 15, 1999 No. 1370, which determined that “the most important issues of local importance are named by the Constitution of the Russian Federation: management of municipal property, the formation, approval and execution of local budgets, the establishment of local taxes and fees, the implementation of the protection of public order”, which is not indisputable. It is also impossible to state with certainty that the Constitution of the Russian Federation classifies “possession, use and disposal of municipal property” as issues of local importance, since these functions are highlighted specifically (part 1 of article 130). In addition, in accordance with the budgetary legislation, the formation, approval and execution of the local budget is the competence of local governments as participants in the budgetary process, and budgetary powers are a means of resolving issues of local importance. According to the tax legislation, the establishment of local taxes and fees is the tax authority of local governments.

If Federal Law No. 131-F3 regulates the general principles of organizing local self-government, then in the law of St. Petersburg and in the charters of the Kupchino Municipality and the Vasilievsky Municipality, they should be established taking into account the specific aspects of the process of delimitation of powers between local authorities of intracity municipalities when forming a list of issues of local importance, the following principles should be developed and consolidated: the principle of competence equality of the same type of intra-city municipalities, which guarantees the equal rights of all citizens to exercise local self-government in the territories of large cities; and the principle of non-coincidence of the powers of state authorities of a city of federal significance with the powers of local self-government bodies of intracity municipalities in resolving issues of local importance, which makes it possible to avoid conflict situations in the process of delimitation of powers between local and regional levels of public authority and to ensure efficient spending of budgetary funds at two levels.

A real analysis of the charters of MO "Kupchino" and MO "Vasilevsky" shows the absence of such provisions, or their partial presence. At the same time, the existing provisions cannot always guarantee their application when empowering municipal districts. The charter of the municipality "Kupchino" has the following provision: "The vesting of local self-government bodies of the municipality with separate state powers is carried out in the manner prescribed by the current legislation. The discrepancy recognized by the courts of the laws of St. Petersburg, other normative legal acts of St. Petersburg, which provide for the vesting of local government bodies with certain state powers of St. Petersburg, with the requirements provided for by the federal law, is the basis for refusing to exercise these powers. But in this Charter there is not a word about the extent to which the MOD can be vested with powers.

Chapter 4 of the Charter, which is called "Forms, procedure and guarantees for the participation of the population in the implementation of local self-government" is contained in both charters. The main provisions of Chapter 4 of the Statutes of the Kupchino and Vasilievsky municipal organizations are basically similar. Paragraph number 6 of article 6 of chapter number 4 of the Charter of the Kupchino Municipality adds to everything one important provision that is not in the Charter of the Municipal Council of the Vasilyevsky Municipality. It states: "Citizens have the right to equal access to municipal service." The charters of some municipal districts do not provide for such a provision, despite the fact that an indirect indication of such an idea occurs, but does not fully convey the main idea of ​​this provision.

The current Statutes of intracity municipalities of the municipal district Vasilevsky of St. Petersburg and MO "Kupchino" in accordance with the Constitution of the Russian Federation, the Federal Law "On the General Principles of Organization of Local Self-Government in the Russian Federation", other federal laws, the Charter of St. Petersburg and the laws of St. Petersburg establishes the procedure for organizing local self-government on the territory of the intra-city municipal formation of the municipal district Vasilevsky of St. Petersburg.

Conclusion on the second chapter: as a result of the study conducted in the second chapter, we can say that the problems of LSG in St. Petersburg and individual regions, despite the imperfection of institutions, are being corrected and regional disproportions, especially in some stable LSGs, are decreasing. At the same time, the institutions for distributing funds work in such a way that the increase in the salaries of state employees and the growth in the volume of social payments along the way leads to an equalization of social conditions not only for a separate local self-government, but throughout the city.

3. Improving the local self-government system in St. Petersburg on the example of the municipality "Vasilevsky"

3.1 Functions of the municipality "Vasilyevsky" in the system of strategic goals for the development of the city

As part of the development of the city of St. Petersburg in 2011, a large number of priority programs were planned. District "Vasilyevsky" for a long time is one of the most actively developing parts of the city of St. Petersburg. The head of the municipality and the governing group are constantly taking constructive actions aimed at creating the most convenient and prosperous living conditions for citizens.

Gudimov Anatoly Gennadievich - Chairman of the Municipal Council. Born in 1962, higher legal education, lives on the 13th line of Vasilyevsky Island. From 1982 to 1985 he served in the Northern Fleet. From 1985 to 1998 he served in the police in the Vasileostrovskiy District Department of Internal Affairs as a policeman of the capture group, district police inspector, deputy head of the 30th police department, police captain, was awarded the medal "For Impeccable Service". From 1998 to the present, he has been a deputy of the Municipal Council of the Vasilevsky district (formerly No. 8), chairman of the commission for improvement. Married, two children, 22-year-old daughter, 19-year-old son (cadet of the Mozhaisky Military Academy).

Repair of heat networks at this point in time is one of the main tasks in the urban planning and repair field of the Moscow Region. The problem of thermal units is quite relevant and not only within a certain municipality, but throughout our country. Alexei Sergeev, Vice Governor of St. Petersburg, believes that it is the development of heating networks that will play a key role in protecting citizens from the coming harsh winter, which, according to climatologists, can turn into a real disaster for the inhabitants of our country.

Last hot summer was unfavorable for the residents of St. Petersburg. Abnormally hot weather contributed to the development of unauthorized beach areas, the territory of which was not cleaned and treated from harmful pollution. Places near water bodies were used chaotically, and in many cases people dived into water sources directly from stone ledges. This led to injuries and injuries of varying degrees among the urban population, which especially increased in July and August.

In this regard, the leadership of the municipality "Vasilyevsky" held a meeting with Vice-Governor Alexei Sergeev on the development of places of unorganized recreation, the pollution of which began to adversely affect the residents of the city, fleeing from the scorching and anomalous sun in the water and in places near it. Opening the meeting, the vice-governor outlined the main goal - the discussion and formation of the main issues of the program plan for the maintenance, maintenance, development of beaches and coastal areas [Appendix 4]. Aleksey Sergeev said that at the moment the weather conditions have deteriorated greatly and a huge number of city residents spend their free time directly near open water bodies, on the embankments.

The lack of organized beach areas in the city has a negative impact on the general situation, and in addition to negatively affecting the citizens, it reduces the tourist attractiveness of the city. In 2011, it is planned to carry out mass cleaning of coastal zones, the importation of sand and the equipment of beaches. During the meeting, proposals from district administrations and sectoral departments on the development and maintenance of territories of this purpose were heard, and fundamentally important decisions were made regarding the development of unorganized recreation, increasing funding for the maintenance of coastlines. It was proposed before the beginning of spring 2011 to work on the development of a government decree regarding the maintenance of beaches, as well as the main coastlines.

Summing up, the vice-governor especially focused his attention on the need to equip the territories near the coastlines with additional parking spaces, and also noted that this work within the municipality "Vasilyevsky" is already gaining momentum by the summer and should be completed by the opening of the beach season in 2011.

Addressing the heads of district administrations, A.I. Sergeev clearly set the task to develop the concept of the territorial development program in the near future and submit it for approval to the Governor. The main positions, in his opinion, should have been plans for the technical equipment of harvesting equipment, improvement of the material and technical base. It was proposed to include showers and changing cabins in the material and technical base, which were planned to be installed directly on the beaches or in specially designated areas.

Particular attention was paid to the creation of beach rescue units and rescue work, which are also a very important part of the safety of life in the city. The equipment of civilized beach areas is almost a priority for the Vasilevsky municipality, since this territory is surrounded by water on all sides, despite the fact that there are practically no organized places for recreation on this island territory.

Another important issue that will help to more clearly define the functions of the municipality "Vasilevsky" in the system of strategic goals for the development of the city is that the leadership of the municipality cooperates with the governor in the field of repair work. In 2010, the head of the city, Valentina Matvienko, set the task of making a complete repair of the roofs and insulating the roofs of the houses where veterans and blockade survivors live in the first place. In general, as the governor noted, this process should be accelerated and the entire roof should be repaired before the start of winter or with slight delays. Naturally, as V. Matviyenko explained, it will be possible to carry out the entire scope of work in 2010. A large number of unrepaired houses will still survive the winter, the roofs of which were badly damaged due to the drought of the past summer.

In general, a huge amount of work has already been done, but even greater tasks are set for the districts in 2011, when it is planned to repair the entire roof in urban municipal housing. An additional 550 million from the city budget will be allocated for the next roof repairs. This money is planned to be distributed among the districts for their further targeted use. Valentina Matviyenko stressed that the repair of municipal housing, primarily in the apartments of veterans and blockade survivors, should be carried out as soon as possible. Funds for this are allocated in full. The Governor noted that, in accordance with the law, the city budget does not have the right to finance the elimination of leaks in the apartments of the owners. Manpower and resources for carrying out these works should be found and allocated by the management companies.

In addition, Valentina Matvienko said that all work that will be carried out in this area will be strictly controlled by representatives of the state housing inspection. The city authorities will take active measures to eliminate and prevent the possible severe consequences of winter, which, in the opinion of the governor, should be prepared with particular care

By 2011, it is planned to complete the repair of tram tracks on several streets of the municipality "Vasilyevsky". The customer is the Committee for Improvement and Road Facilities. In addition, the district administration agreed on design documentation for the reconstruction of tram tracks.

The implementation of the targeted program for the replacement of gas equipment will continue. It is planned to install 692 gas stoves, as well as new gas meters. Funding is provided through the Housing Committee.

In 2007, a program for the development of intra-quarter lighting for 2007-2013 was launched in St. Petersburg. It did not bypass the municipality "Vasilevsky". In order to ensure the competent and most complete functioning and further reconstruction of outdoor lighting systems, the Government of St. Petersburg approved the Action Plan for the development of outdoor lighting "Bright City" for 2008-2011. Based on these documents in the region for the period up to 2013. the regional program "Light City" was developed. In 2010, due to serious shortcomings in the field of financing, work on the development of outdoor lighting in the area of ​​the municipality "Vasilevsky" was complicated. At the beginning of the summer season, the fire situation also caused shortfalls in the budget, due to which the project was again not fully implemented and even began to fall behind in terms of implementation.

State Institution "Housing Agency MO Vasilyevsky" plans to carry out work on lighting staircases, arches, entrances of residential buildings and repair intra-quarter lighting. The amount of funding for the program will be determined at the expense of the sectoral Committee.

Enterprises and organizations of the district will also participate in the implementation of the program, which, at their own expense, will carry out work on the artistic illumination of the facades of buildings, squares, guest parking lots, parking lots, gas stations, shopping malls and pavilions in the district.

In 2010, at the expense of the budget of the district administration, it is planned to carry out work on sanitary cleaning and cleaning of undeveloped areas of the district, including beach areas in the amount of 12,191.8 thousand rubles. In addition, 83 trees will be demolished in the district, which in one way or another pose a threat to human life in the amount of 1,550.0 thousand rubles.

The target program of the Committee for Improvement and Road Facilities for the current maintenance and repair of green spaces in public facilities for 2010 has not yet been determined. Current repair and maintenance of roads. Financial supply of work on the current maintenance and repair of roads in the region is carried out at the expense of the State Institution "Center for Comprehensive Improvement".

3.2 Budget financing of LSG

The main financing was 11,275.0 9,751.0 MSU MO "Vasilyevsky" was carried out through taxation, which in total income for the last six months amounted to 7,887.2 thousand rubles. The tax levied in connection with the application of the simplified system of taxation to the treasury amounted to 4,571.5 thousand rubles. The tax levied on taxpayers who chose income as an object of taxation amounted to 602.4 thousand rubles.

The tax levied on taxpayers who chose income reduced by the amount of expenses as an object of taxation amounted to 969.1 thousand rubles. The unified tax on imputed income for certain types of activities amounted to 3,315.7 thousand rubles. Taxes on property to the treasury of the local self-government MO "Vasilyevsky" amounted to 1,849.7 thousand rubles. Tax on the property of individuals, levied at the rates applicable to objects of taxation located within the boundaries of intracity municipalities of the federal cities of Moscow and St. Petersburg amounted to 1,849 thousand rubles.

The revised financing plan for 2011, taking into account entrepreneurial activities, was determined in the amount of 15,561.4, which is 45% more than in 2010. The execution amounted to 14,017.7 thousand rubles, or 99.6% of the financing plan, including by subsections:

The main items of expenses of the district budget in 2008 were:

General government issues -55% of total spending,

Housing and communal services - 19%,

Social policy - 15.7%.

Revenues from fines and application of sanctions were planned in 2008 in the amount of 1,225.0 thousand rubles, received revenues - 1,332.3 or approximately 110.0% of the plan. (Table 2)

table 2

Income of MO "Vasilyevsky" for the first half of 2010 from taxes

The budget of the municipal self-government of the municipality "Vasilyevsky", as well as the budget of the city, has a pronounced social orientation - more than 80% of the budget funds are spent on the social sphere: these are the costs of wages for employees of the institutions of the municipality "Vasilyevsky", the payment of various types of material assistance to the population, the payment of subsidies , subsidies, purchase of products for the needs of the district institutions. Today's budget of the municipal self-government municipal organization "Vasilyevsky" is a development budget and at the same time a socially oriented budget. Over the past five years, funds for social programs, healthcare, construction and repair of roads, and landscaping of courtyards have been increased many times over. Active work is underway to implement the national projects "Education", "Health", "Affordable and comfortable housing - for the citizens of Russia.

Expenses in the area of ​​housing and communal services amounted to 1,876.0 thousand rubles. Of these, 97.1 thousand rubles were spent on the implementation of the housing sector.

Municipal targeted programs to increase the level of security of the housing stock in the territory of the municipality 97.1 thousand rubles. The performance of functions by local governments of the Vasilevsky municipality amounted, as well as the previous indicator, to 97.1 thousand rubles [Appendix 3].

A significant part of the housing and communal services costs was the improvement process, the costs of which were carried out in the amount of 929.4 thousand rubles. A large number of municipal target programs for the improvement of the territory of the municipality led to the cost of 884.2. (Table 3)

Table 3

Culture, cinematography and mass media in the first half of 2010 were one of the main areas of spending. The total amount was 1,295.8 thousand rubles. 923.0 thousand rubles were spent on the development of culture. The organization of local and participation in the organization and holding of city festive and other entertainment events amounted to 907.0 thousand rubles, without exceeding the plan. The performance of their main functions by local governments amounted to 907.0 thousand rubles.

Municipal targeted programs for the implementation of measures to prevent road accidents in the territory of the municipality amounted to 16.0 thousand rubles. The performance of secondary functions by local governments amounted to 16.0 thousand rubles. (Table 4)

Periodicals and publishing houses spent in the first half of the year 365.0 thousand rubles from the budget of the municipal self-government MO "Vasilyevsky". This includes a number of municipal targeted programs for information activities and the dissemination of mass information on the territory of the Municipality, the implementation of which required costs in the amount of 365.0. This number also includes the performance of functions by local governments within the framework of the periodical press.

Other issues in the field of culture, cinematography, mass media amounted to 7.8 thousand rubles. Municipal targeted programs for information activities and dissemination of mass information on the territory of the Municipality amounted to 7.8 thousand rubles of expenses. The performance of functions by local governments within the framework of these targeted programs amounted to 7.8 thousand rubles.

Social policy in many regions and municipalities is one of the main parts of the budget. Thus, the social policy in the municipality "Vasilyevsky" amounted to 2,118.8 thousand rubles of budget expenditures. They include the protection of the family and childhood, which amounted to 2,078.8 thousand rubles of expenses. The maintenance of the child in the family of the guardian and the foster family has risen MO at 1,500.1 thousand rubles. Implementation of certain state powers at the expense of subventions from the compensation fund of St. Petersburg 1,500.1 thousand rubles from the treasury.

Table 4

Expenditures of MO "Vasilyevsky" for the first half of 2010 for Culture, cinematography and mass media

The payment of remuneration to foster parents amounted to 578.7 thousand rubles, of these funds, the implementation of certain state powers at the expense of subventions from the compensation fund of St. Petersburg also accounted for a share of 578.7 thousand rubles. Other issues in the field of social policy in local education cost the treasury 40.0 thousand rubles. This included municipal targeted programs in the field of social policy. The performance of functions by local governments within the framework of social policy amounted to 40.0 thousand rubles. (Table 5)

We can note the favorable state of the Vasilevsky No. in the field of financing, since the items of expenditure are appropriate, and also do not exceed the unmarked amount, in addition, they do not exceed the income that goes to the treasury in a structured and organized flow.

Table 5

Expenses of MO "Vasilyevsky" for the first half of 2010 on housing and communal services

3.3 Improving the state of the local self-government system in St. Petersburg on the example of MO Vasilevsky

Urbanized sparsely populated regions, such as Karelia, the Krasnoyarsk Territory, are characterized by a fairly high role of municipal authorities, the variability of their organizational structures (including the use of the city manager model in some municipalities), and attempts to modernize the territorial structure. It should be noted that these regions are quite pluralistic in terms of mentality and political regime, which also leaves its mark.

Weakly urbanized regions with low population density and settlement, such as Yakutia, Tomsk region, are following the path of preserving the existing municipal mechanisms in combination with the deconcentration of state administration (transferring a significant number of state powers to municipalities), as well as attempts to experimentally use new forms. It should be noted that the perception of the role of settlements usually increases as the degree of development of the territory and the density of settlement (Yakutia, Krasnoyarsk Territory, Tomsk and Arkhangelsk regions) decrease.

Finally, the federal city of St. Petersburg, considered in this thesis, stands apart, which combines the maximum urbanization and population density with the minimum settlement density per city. It can be assumed that this is what prompts the city authorities to maximize the centralization of the city management system, which inevitably negates the role of local government, the Vasilyevsky municipality and other districts.

In part, this separation of power and self-government may be a consequence of the historical mistrust of people in power. These are the results of a public opinion poll. Thus, for the residents of St. Petersburg, their power ends at the level of their elected HOA leaders, who, according to the residents themselves, take on the task of protecting the interests of their home and often achieve positive results. The degree of influence of TOS, from the point of view of the respondents, depends on the managerial and communication skills of their representatives. Citizens believe that in any case, there are opportunities for dialogue with the authorities, and the realization of these opportunities depends on ordinary people as well.

Some of the respondents believe that the prospects for local self-government are directly behind TOSs (house committees, street committees), but this requires appropriate changes in public consciousness. Some respondents propose to supplement the scheme with the level of HOA, which they also consider a peculiar form of local self-government, but with their competence limited only to housing and communal services. They motivate this by the effectiveness of the work of such partnerships. Thus, the position of residents of the municipality "Vasilyevsky" is interesting, who want to strengthen the role of HOA not only as an organization of homeowners, but also as a kind of body that protects the rights of residents, in fact, an analogue of TOSs.

The majority of respondents are convinced that the heads of territories should be elected by the population, and not appointed by state bodies. Among the inhabitants of the North-West, the Yaroslavl region and Primorye, this is a consolidated position, in Siberia and the Volga region it is dominant. Sometimes participants in the study express some doubts about the effectiveness of elective mechanisms, but still do not see the possibility or any other ways to form municipal bodies.

The majority of respondents from these regions believe that local self-government bodies should not be included in the structure of state authorities, otherwise it will not be self-government, but a vertical of power. These respondents believe that local self-government bodies should be independent, independent of state authorities, and the heads of territories should be elected by the population, and not appointed from above.

The negative reaction of the residents of St. Petersburg to the proposal to abolish the election of local self-government bodies, turning them into a branch of the district authorities, became indicative. In this situation, they found an opportunity to praise their municipal deputies, although before that they expressed dissatisfaction with their work. The advantage of elected deputies, according to respondents, is their proximity to residents, as well as local origin.

In this regard, it is rather difficult to characterize the system of local self-government MO "Vasilyevsky" as positive. Low confidence in the city authorities leads to the emerging distrust among the population, in relation to representatives of local self-government bodies. They are assigned a small number of functions, which leads to a decrease in the ability to maintain relationships with the population.

In the light of this, the population ceases to represent local authorities as active tools, using which people will be able to achieve certain results of their petitions. Therefore, the best proposal would be to give the local governments of the municipality "Vasilevsky" greater functions and rights that would increase the opportunities for cooperation with the local population and raise the status of local government.

An important point is the interaction of the population with local governments, in order to provide methodological and advisory assistance. It is necessary to organize and hold meetings with the heads of local self-government bodies on issues of providing methodological and advisory assistance in preparing and holding elections of deputies of municipal councils of municipalities of the fourth convocation in St. Petersburg. It is important to assist in the organization and conduct of field reports of the head of the district administration and heads of local self-government to the public and residents of the district on the issue: "On the results of the economic and social development of the municipality" Vasilyevsky "in 2010 and tasks for 2011." Similar meetings can be held at special conferences. Representatives of local self-government bodies should take part in rallies, laying flowers dedicated to memorable dates. This will certainly bring the population and local self-government closer together. It is necessary to continue work on information exchange with local governments.

Conclusion on the third chapter: in the thesis study, which was conducted in the first chapter, it is substantiated that in relation to St. Petersburg, as regards the Vasilevsky Municipality, the issues of integration formation at the present stage should find their practical solution in the very near future. In the central issues of development - in what relates to housing and communal, transport, engineering and energy infrastructures, it is necessary to form in advance a structural analysis of further development with the participation of representatives of capital cities and the federal government.

Conclusion

The study showed that the main trends in regional development and their role in ensuring social and social development, a comprehensive study of a wide range of these problems that are associated with affordable and high-quality satisfaction of the needs of the population of the region based on market mechanisms of the regional market, have not yet received sufficient development. . However, the practice of ensuring economic efficiency based on the optimization of the management of the competitiveness of regions urgently requires a comprehensive analysis of the accumulated experience.

The forecast is: structural objects of industries, the composition of budget expenditures by economic items, targeted programs in the field of overhaul of housing elements and social facilities of the district, as well as activities in the implementation of complex targeted programs and national projects.

Consolidation of budget funds and the implementation of activities that are planned, as well as the processes that will be carried out in accordance with target and targeted programs, national projects, social programs will make it possible to carry out in 2010 a large number of works in the field of improvement of the territory of the district, capital and current repairs of housing funds and objects of the social sphere, to carry out a number of social activities aimed at raising the quality level and living conditions of the inhabitants of the municipality "Vasilevsky".

So, as a result of the research conducted by the author in the thesis, we can draw the following conclusions:

1) in terms of its economic, demographic, socio-cultural potential, the municipality "Vasilyevsky" is the most prepared to perform the functions of serving the entire territory of the district and will be the most significant key element of the design supporting frame of the territory. At present, most of the economic and socio-cultural potential of the city is located here;

2) projects and priority development plans that were set several years ago have been successfully implemented. The territory of active economic activity and the formation of planning centers has expanded and, as a result, the development of the peripheral territories of the region;

3) in the spatial policy of the municipality "Vasilevsky" it is the regional institutions that are of great importance, since they directly manage the processes, while the federal ones establish only general rules and priorities. However, they are not effective enough. First of all, efforts are needed in the region in solving the triune task of maintaining a balance of equalizing and stimulating policies, choosing spatial development priorities and coordinating the interests of the part and the whole, that is, the region and the Federation;

4) regional disparities, especially in some stable areas, are decreasing. Institutions for the distribution of money work in such a way that the increase in the salaries of state employees and the growth in the volume of social payments along the way leads to the equalization of social conditions in the municipality "Vasilyevsky";

5) targeted and state programs have been completed, which allows us to assert that the management of the district is effective, as well as the planned work on the reconstruction of infrastructure.

In conclusion, I would like to note that despite the work done, the main trends in regional development and their role in ensuring social and social development, as well as a comprehensive study of a wide range of these problems related to affordable and high-quality satisfaction of the needs of the population of the regions based on market mechanisms of the regional market have not yet received sufficient development. However, the practice of ensuring the socio-economic development of the regions can help improve this process.

List of used literature

1. European Charter of Local Self-Government" (done in Strasbourg on 10/15/1985) // Collection of Legislation of the Russian Federation, 09/07/1998, N 36, art. 4466

2. The Constitution of the Russian Federation" (adopted by popular vote on 12/12/1993) (subject to amendments made by the Laws of the Russian Federation on amendments to the Constitution of the Russian Federation of 12/30/2008 N 6-FKZ, of 12/30/2008 N 7-FKZ), art. 132

3. Decree of the President of the Russian Federation of 28.04.2008 No. 607 "On assessing the effectiveness of the activities of local governments of urban districts and municipal districts" "Collected Legislation of the Russian Federation", 05.05.2008, No. 18, art. 2003

4. Decree of the President of the Russian Federation of 02.11.2007 No. 1451 "On the Council under the President of the Russian Federation for the Development of Local Self-Government" "Collected Legislation of the Russian Federation", 05.11.2007, No. 45, art. 5462

5. Decree of the President of 10/15/1999 No. 1370 "On approval of the main provisions of state policy in the field of local self-government development in the Russian Federation" "Collected Legislation of the Russian Federation", 10/18/1999, No. 42, art. 5011

6. Federal Law No. 131-FZ of October 6, 2003 "On the General Principles of Organization of Local Self-Government in the Russian Federation"

7. Federal Law of November 26, 1996 No. 138-FZ “On Ensuring the Constitutional Rights of Citizens of the Russian Federation to Elect and Be Elected to Local Self-Government Bodies” “Collected Legislation of the Russian Federation”, December 2, 1996, No. 49, art. 5497

8. Federal Legislation No. 154-FZ of August 28, 1995 “On the General Principles of Organizing Local Self-Government in the Russian Federation” “Collected Legislation of the Russian Federation”, August 28, 1995, No. 35, as amended and supplemented on April 22, 1996; November 26, 1996; March 17, 1997 (SFKZ and Federal Law, Issue 5(41))

9. Law of the Russian Federation of October 22, 1992 N 3703-1 "On Amendments and Additions to the Law of the RSFSR "On Local Self-Government in the RSFSR"

10. Law No. 1550-1 of 06.07.1991 "On Local Self-Government in the Russian Federation" "Vedomosti SND and Supreme Council of the RSFSR", 07.18.1991, No. 29, art. 1010

11. Law of the USSR of 04/09/1990 "On the general principles of local self-government and local economy in the USSR"

12. Comments on the Constitution of the Russian Federation. Edition number 2, supplemented and // Otv.ed. L.A. Okunkov. - M.: Publishing house "BEK", 2010.

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15. Commentary on the civil code of the Russian Federation, part one / Otv. ed. O.N. Sadikov. - M .: Jurist - 2007. - 448 p.

16. Russian local self-government: the results of the municipal reform in 2003-2008. Analytical report of the Institute of Contemporary Development

17. Results of the implementation of the Federal Law of October 6, 2003 No. 131-FZ "On the General Principles of Organization of Local Self-Government in the Russian Federation" in 2007. M., Ministry of Regional Development of the Russian Federation, 2007. P.23-25.

18. The newspaper “Municipal Bulletin of Okrug No. 8” is registered by the North-Western Okrug Interregional Territorial Administration of the Ministry of the Russian Federation for Press, Television and Radio Broadcasting and Mass Communications. Registration certificate: PI No. 2-6219 dated 10/25/2002// Issue dated 07/29/2010.

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25. Sergienko A.M. Budgets of municipalities of St. Petersburg in the context of local self-government reform / Coll. authors; Ed. prof. N.G. Ivanova and prof. M.I. Popova. - St. Petersburg: Publishing House of St. Petersburg State University of Economics, 2006. - 15.0 p.l. / 0.3 p.l.

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30. Sergienko A.M., Mirzaliev M.N. Actual aspects of the legislative process in the city of federal significance in the conditions of municipal reform // Humanitarian sciences and humanitarian education: Collection of articles, Vol. 4 / Ed.and comp. I.P. Vishnyakova-Vishnevetskaya. - St. Petersburg: Knizhny Dom LLC, SPbIGO, 2006. - P. 182-187. - 0.4 p.l. / 0.2 p.l.

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32. Sidorov M.K. Socio-political geography and regional studies of Russia .. - Moscow: INFRA-M, - 2006.

33. Slavgorodskaya M., Letunova T., Khrustalev A., Badasen P. Analysis of the financial aspects of the implementation of the local self-government reform / Ed. Starodubrovskoy I.V. M., 2008. Data for 11 months. 2007

34. Fetisova G.V., Nikiforov P.V. Characteristics of strategic planning systems for the socio-economic development of the region // Actual problems of modern science: Collection of articles of the 5th international conference of young scientists and students. - Samara, 2006. - 0.4 pp. / 0.2 p.l.

35. From a speech at the II All-Russian Civil Forum 01/22/2008, http://www.medvedev2008.ru/performance_2008_01_22.htm

36. http://lawru.info/base55/part2/d55ru2498.htm

37. http://www.gov.spb.ru/law

38. http://msmov.spb.ru/

39. http://www.kadis.ru/texts/index.phtml?id=%2040296

40. http://ru.wikipedia.org/wiki/Discussion:Kupchino_(district_of St. Petersburg)

Annex 1

Social foundations for the functioning of LSG in Russia

Appendix 2

Legal basis for the existence of LSG in Russia

Appendix 3

The characteristics of housing and communal services are presented in the table:

Indicators		Unit of measurement	2008 report		2009 report		2010 estimate		2011 forecast
Total number of residential buildings		units		794		797		806		806
thousand square meters of total area		5618,8		5637,4		5649,9		5649,9
including:
state fund		units		380		32		13		6
thousand square meters of total area		1958,6		181,47		20,26		5,57
Houses transferred to HOA and UK		units		414		765		793		800
thousand square meters of total area		3660,1		5455,9		5629,7		5644,4
Total number of apartments		units		104520		104252		104354		104354
thousand square meters of total area		5410,1		5364,2		5422, 9		5422,9
including:
in the houses of the state fund		units		39896		2838		130		72
thousand square meters of total area		2143,3		112,9		18,57		4,37
In houses transferred by HOA and UK		units		64624		101414		104224		104282
thousand square meters of total area		3266,8		5251,2		5404,3		5418,5
Of the total number of apartments - the number of communal apartments		units		7958		7967		7435		7435
thousand square meters of total area		521,8		522,4		467,4		467,4
Commissioning of residential buildings at the expense of all sources of financing (new construction)		apartments		2372		3971,0		2949,0		2368,0
thousand square meters of total area		150,5		234,3		171,2		154,2
out of him:
at the expense of investors' own funds		apartments		2372		3971,0		2949,0		2368,0
thousand square meters of total area		150,5		234,3		171,2		154,2
		apartments
Commissioning of reconstructed residential buildings at the expense of all sources of financing		apartments
Capital repairs and reconstruction of housing stock
at the expense of own funds of enterprises, organizations and investors
		thousand roubles.
at the expense of the budget		thousand roubles.		558707,2		373471,4		15329,7		106269,5
Capital repairs of roads		thousand sq.m
in current prices of each year		thousand roubles.
Current road repairs:
At the expense of the budget of the administration		thousand sq.m		60,1		-		-		-
Repair of engineering networks
in current prices of each year		thousand roubles.
Repair of water supply networks		l.m.
in current prices of each year		thousand roubles.
Repair of sewer networks		l.m.
in current prices of each year		thousand roubles.
At the expense of the State Institution "Center for Comprehensive Improvement"	thousand sq.m		335,6		201,6		6,4		77,7
	million rubles		504,8		272,03		24,9		93,2

Appendix 4

Location MO "Vasilyevsky"

The border of Vasilevsky municipality runs: from the continuation of Sredny Prospekt V.O. along the axis of the Malaya Neva River to the Smolenka River, then along the axis of the Smolenka River to the Nalichny Bridge, then along the axis of Nalichnaya Street to Bering Street, then along the axis of Bering Street to Maly Prospekt VO, further along the axis of the 24th - 25th line of V.O. to Sredny Prospekt V.O., then along the axis of Sredny Prospekt V.O. and its continuation to the axis of the Malaya Neva River

European Charter of Local Self-Government" (done in Strasbourg on 10/15/1985) // Collection of Legislation of the Russian Federation, 09/07/1998, N 36

Kuzmina V. M. Municipal Law of Russia. /Training and metodology complex. Department of Constitutional and Municipal Law, RUDN University / Moscow - 2010

Fetisova G.V., Nikiforov P.V. Characteristics of strategic planning systems for the socio-economic development of the region // Actual problems of modern science: Collection of articles of the 5th international conference of young scientists and students. - Samara, 2006. - 0.4 pp. / 0.2 p.l.

Law of the USSR of 04/09/1990 "On the general principles of local self-government and local economy in the USSR"

Law of the Russian Federation of October 22, 1992 N 3703-1 "On Amendments and Additions to the Law of the RSFSR "On Local Self-Government in the RSFSR"

Constitution of the Russian Federation" (adopted by popular vote on 12/12/1993) (subject to amendments introduced by the Laws of the Russian Federation on amendments to the Constitution of the Russian Federation of 12/30/2008 N 6-FKZ, of 12/30/2008 N 7-FKZ), art. 132

Federal Law No. 154-FZ of August 28, 1995 "On the general principles of organizing local self-government in the Russian Federation."

Federal Law No. 131-FZ of October 6, 2003 "On the General Principles of Organization of Local Self-Government in the Russian Federation"

European Charter of Local Self-Government" (done in Strasbourg on 10/15/1985) // Collection of Legislation of the Russian Federation, 09/07/1998, N 36, art. 4466

Federal Legislation No. 154-FZ of 28.08.1995 "On the General Principles of Organization of Local Self-Government in the Russian Federation" "Collected Legislation of the Russian Federation", 08.28.1995, No. 35, Article 3506

Law of 07/06/1991 No. 1550-1 "On Local Self-Government in the Russian Federation" "Vedomosti SND and Supreme Council of the RSFSR", 07/18/1991, No. 29, art. 1010

Federal Law of November 26, 1996 No. 138-FZ “On Ensuring the Constitutional Rights of Citizens of the Russian Federation to Elect and Be Elected to Local Self-Government Bodies” “Collected Legislation of the Russian Federation”, December 2, 1996, No. 49, art. 5497

Decree of the President of the Russian Federation of 02.11.2007 No. 1451 "On the Council under the President of the Russian Federation for the Development of Local Self-Government" "Collected Legislation of the Russian Federation", 05.11.2007, No. 45, Art. 5462

Decree of the President of the Russian Federation of 28.04.2008 No. 607 “On assessing the effectiveness of the activities of local governments of urban districts and municipal districts” “Collected Legislation of the Russian Federation”, 05.05.2008, No. 18, art. 2003

Decree of the President of October 15, 1999 No. 1370 "On approval of the main provisions of state policy in the field of local self-government development in the Russian Federation" "Collected Legislation of the Russian Federation", October 18, 1999, No. 42, art. 5011

Regional economy: textbook for universities / T.G. Morozova, M.P. Pobedina, G.Yu. Pole and others; under the editorship of prof. T.G. Morozova.- M., 2006 p. 263

Municipal law of Russia. Textbook 2nd edition / Ed. Chebotareva G.N. - M .: Jurist, - 2007. - S. 150

There. - S. 272

Law of St. Petersburg No. 420-79 "On the organization of local self-government in St. Petersburg". Adopted by the Legislative Assembly of St. Petersburg on September 23, 2009

http://www.kadis.ru/texts/index.phtml?id=%2040296

From a speech at the II All-Russian Civil Forum 22.01.2008, http://www.medvedev2008.ru/performance_2008_01_22.htm

Russian local self-government: results of the municipal reform in 2003-2008. Analytical report of the Institute of Contemporary Development

http://www.gov.spb.ru/law

Results of the implementation of the Federal Law of October 6, 2003 No. 131-FZ "On the General Principles of Organization of Local Self-Government in the Russian Federation" in 2007. M., Ministry of Regional Development of the Russian Federation, 2007. P.23-25.

Slavgorodskaya M., Letunova T., Khrustalev A., Badasen P. Analysis of financial aspects of the implementation of the reform of local self-government / Ed. Starodubrovskoy I.V. M., 2008. Data for 11 months. 2007

Federal Law No. 131 of October 28, 2003 “On the General Principles for the Implementation of Local Self-Government in the Russian Federation”, Chapter 5

• Specialty HAC RF22.00.08
• Number of pages 207

CHAPTER I. Forms of social organization of management in modern Russia.

1. Self-government as a form of social organization.

2. Local self-government in the social system of federal and regional government.

CHAPTER II. Ways to improve the organization of local self-government.

3. Structuring the social system of local self-government.

4. Improvement of personnel policy at the municipal level.

Recommended list of dissertations

• Social organization of local self-government at the level of a rural area 1999, candidate of sociological sciences Skrebnev, Vladimir Viktorovich

• The specifics of personnel policy in urban self-government bodies of modern Russia 2005, candidate of sociological sciences Rubtsov, Viktor Nikolaevich

• 2003, Doctor of Law Wet, Vladimir Semenovich

• Municipal organization of local self-government as a type of public authority in modern Russia: On the materials of the Tver region 2005, candidate of political sciences Ryzhkova, Ekaterina Vladimirovna

• Social problems of formation and development of personnel potential of local governments 2009, candidate of sociological sciences Ibragimov, Ural Faritovich

Introduction to the thesis (part of the abstract) on the topic "Improving the organization of local self-government"

The dynamism of the development of the modern Russian Federation, the versatility and interpenetration of legal relations pose to sociologists not so much the task of scientific substantiation of the process of formation of local self-government bodies (despite all their significance), but the problems of developing and substantiating new theoretical provisions that explain the processes of formation of the professional staff of executive and representative bodies local government. We are talking about the formation of a new personnel ideology - a set of scientifically based ideas, theories, views, which in a conceptual, systematized form reflect and evaluate the modern personnel policy.

In the message of the President of the Russian Federation V.V. Putin is given a special place to the development and reform of local self-government. The President notes: “For a long time, the federal government paid practically no attention to the problems of local self-government. Ultimately, this directly affects the standard of living of the population in Russian cities and villages.

One of the reasons is the vagueness in the delimitation of powers with regional authorities, as well as the uncertainty of what exactly state bodies should be responsible for, and for what - local self-government bodies. And further: “The key task remains the work on the delimitation of the spheres of competence between the federal, regional and local levels of government. Without capable local self-government, an effective structure of power is generally impossible. In addition, it is here, at the local level, that there is a huge resource of public control over power.

See: Address of the President of the Russian Federation to the Federal Assembly of the Russian Federation // Rossiyskaya Gazeta No. 71 (2939) dated April 19, 2002.

In the modern sense, local self-government, despite its strong historical roots, is a constantly renewing and therefore, in our opinion, requiring constant study phenomenon, characterized by most scientists as an integral system of social relations associated with the territorial self-organization of the population, independently solving issues of local importance, in including on the structure and procedure for the functioning of local authorities2. The position of municipalities, in contrast to the subjects of the federation, is remarkable in that the autonomy of local entities is not legislative, but only administrative in nature, but their administrative autonomy is absolute, that is, local governments have a full range of managerial functions.

From the middle of the 19th century to the present, almost all over the world, there has been a trend towards a weakening of self-government and the strengthening of a strong central government. Its limitations come in a number of forms. First, specialized government bodies are created and a number of management functions of local communities are transferred to the central authorities. Secondly, specialized ministries are empowered with respect to local collectives, which are established in the form of administrative guardianship. Thirdly, administrative control is complemented by financial control, which is expressed in the policy of allocating state subsidies to municipalities. The last provision was reflected in the message of the President of the Russian Federation: “The big problem of local self-government is the insufficiency of its own revenue base. It is very important that local governments have the opportunity to create their own sources of budgeting. Through the development of small businesses, efficient use of land, other

2 See: Kutafin O.E., Fadeev V.I. Municipal Law of the Russian Federation. Textbook. M., 1997. C. 5.; Kazanchev Yu.D., Pisarev A.N. Municipal Law: Textbook. M., 1998. S. 34.; Scientific and practical commentary on the Constitution of the Russian Federation / Collective of authors / Ed. V.V. Lazarev. M., 1997. S. 66-69. real estate. At the same time, the state authorities, taking into account the spending powers of the municipalities, could provide them with long-term norms for deductions from regular taxes”3.

Thus, the relevance of the development and reform of the system of self-government bodies always remains high, because being the most dynamic social organization, the local community constantly needs the progressive development of the system of bodies and institutions of self-government. Only developed self-government, based on an interested attitude to local problems and the civic duties of local residents, can become a reliable basis for democratic federalism.

With sufficient research of the entire set of relations that are developing at the municipal level, it can be stated that most authors are moving away from analyzing the nature of the interaction of subjects of municipal legal relations, from a sociological assessment of cause-and-effect relationships.

The concept of decentralized management, applied at the present stage in the Saratov region, has a specific social character that distinguishes it from true self-government. Local governments have a dual nature here. They remain free self-governing, but at the same time act as territorially separate divisions of the state, i.e. their authorities are simultaneously representatives of the interests of the local community and representatives of the state in the given territory.

A distinctive feature of this concept are the following factors: - local authorities, as in self-government, remain elected, but along with them there may be appointed (in particular, in the Saratov region, representative authorities of municipal

3 See: Address of the President of the Russian Federation to the Federal Assembly of the Russian Federation // Rossiyskaya Gazeta No. 71(2939) dated April 19, 2002. entities are elected by the residents. And the heads of district administrations are appointed from the district center, there are no representative bodies at the district level at all);

The administrative autonomy of self-government institutions exists. But it is limited by regional and federal laws, that is, state bodies perform their managerial functions in full, while others are divided between the state and local communities (separation of powers and jurisdictions). In addition, local authorities are subject to a guardianship regime in respect of both the appointment of officials and their own activities;

Municipal formations have the status of a legal entity and are endowed with budgetary autonomy, but guardianship is also carried out here.

In practice, everywhere, as A. Tocqueville noted, centralization has become a “natural form of government”4. The state actually manages the activities of local governments, even in the countries of "Western democracy".

With the transition to market relations in the Russian state, with the transfer of most of the functions of managing the economic complex from the center to the regions, with a conceptual change and redistribution of the role of federal authorities, state authorities of the subjects of the Russian Federation, local governments in the structure of managing the life of the state, as never before there is a need for active rule-making activities, in order to legally consolidate the changes taking place in society. And it is very important that the newly adopted legal acts regulating the formation and development of local self-government in Russia do not reproduce the old models of state territorial programs that regulate the development of local economy in the conditions of the USSR, that is

4 See: A. Tocqueville. American Democracy// Western Sociology of the 19th Century. SPb., 1997. in conditions of directive management and planning. This is possible only in the case of a permanent and purposeful consideration of the public law interests of the population living in municipalities, based on scientific methods (organizational, legal, economic) to determine the main areas of work of bodies and officials of local self-government.

One of the fundamental problems of our time is the lack of a culture of goal-setting and goal-fulfillment in the processes of political and legal development, including at the municipal level. The purposefulness of power, both state and local, the expediency of its actions, are directly related to a previously meaningful result. In relation to human coexistence, expediency is understood as the correspondence between actions and a predetermined goal that grows out of the needs of a person or a group of people, and is realized in this activity. However, the setting of goals by the authorities and the selection of the necessary means to achieve them are far from always based on an assessment of the real needs and interests of the population, on objective and subjective possibilities and conditions for their implementation.

The methodological basis of social management, created by the fundamental works of M. Weber, E. Durkheim, R. Merton, N. Douglas, M. Mescon, M. Albert, F. Hedouri, A. Prigogine, N. Smelser, Romanov P.V., Yarskoy E.R., Bychenko Yu.G. makes it possible to carry out scientifically based sociological studies of the mechanisms of the formation of local self-government in the systems of state power and civil society5. Undoubtedly, research in the field of

5 See: Weber M. The Protestant Ethic and the Spirit of Capitalism // Izbr. works. M., 1990. S. 44-639; Durkheim E.O. Division of social labor. M., 1994; Durkheim E. Sociology. M., 1995; Meskon M.Kh., Albert M., Hedouri F. Fundamentals of management. M., 1992; Smelzer N. Sociology. M., 1994; Socio-economic problems of the development of modern Russia / Ed. V.N. Yarskaya. Saratov, 2003; Alekseev O.A., Bychenko Yu.G., Golovanov I.A. Improving the social organization of municipal service in modern Russia. Saratov, 2003. management of social structures by such sociologists as R. Boudon, J. Bourdin, E. Giddens, E. Duran, P. Land, J. Chevalier6.

The above considerations determined the nature of the content, the choice and relevance of the topic of the dissertation research. An analysis of the category of "social organization of municipalities", the degree of its influence on the social organization of local self-government and the proposed conclusions is not an end in itself, but a means of solving socially significant problems that are relevant in modern conditions for the Russian Federation as a whole, for the subjects of the Federation and individual municipalities.

At the present stage of the development of sociological thought, attention is increasing to the problems of scientifically based development of local self-government, both on the part of scientists from Saratov schools of sociology (JI.S. Anikin, OA Alekseev, AB Lyapin)7, and on the part of officials of urban and rural self-government bodies ( N. Aksenenko, V. V. Baksalyar, A. G. Voronin, V. A. Lagin, Y. P. Rogachev, D. Yu. Shapsugov)8. At the same time, the research no longer affects the general provisions of the formation and development of self-government, but narrower aspects that characterize the image

6 Budon R. A place of disorder. M., 1998; Bourdin J. Public service and civil servants in France. M., 1996; Durand E. Local authorities in France. M., 1996; Land P. Management - the art of managing. M., 1995; Chevalier J. Public service. M., 1996.

7 Anikin L.S. Formation of local self-government in the Russian Federation. Saratov. 1997; Alekseev O.A. Innovative trends in public administration in Russia // Innovative processes in the management systems of Russia. Astrakhan, 2002; Lyapin A.B. Modern socio-political and economic aspects in the activities of rural municipalities / / Socio-economic and managerial thesauri of reforming Russian society Volgograd, 2002.

See: Aksenenko Yu.N. Sociological methodological principles of technologies for optimizing the job structure of municipal employees // Effective technologies in the system of state and municipal management. Rostov-n/D, 1999; Baksalyar V.V. Organization of urban self-government in European countries and Russia // Social institutions and processes at the third stage of reforming Russian society. Saratov, 2002; Interaction between public authorities and local self-government: problems and prospects. Rostov-n/D-Pyatigorsk, 1998; Voronin A.G., Lagin V.A., Shirokov A.N. Fundamentals of municipal management. M., 1997; Shapsugov D.Yu. Local authorities in Russia and Germany. Rostov-on/D, 1995. Calling needs of state and municipal employees, the specifics of urban and rural self-government, the role of managerial and national traditions in the process of institutionalization of local self-government in various districts of the Saratov region and various regions of the Russian Federation. In recent years, a large number of works have appeared on issues related to the personnel problem and personnel management. The most intensively developed are the organizational aspects of building various branches of local government, which are reflected in the works of I.I. Ovchinnikova, V.V. Maletina, V.M. Ryabova, E.S. Shugrina, T.A. Orekhovsky9.

Along with the works covering aspects of the historical formation of local self-government (I.A. Emelyanov, V.V. Eremyan, A.V. Ivanov, V.F. Abramov, A.J. to works devoted to the analysis of modern practices (G.V. Barabyshev, V.I. Vasilyeva, V.V. Skrebnev, M.V. Kuzmichev, I.V. Stazaeva), which contain provisions regarding the role of traditions in the formation of self-governing forms.

Despite the diversity and ambiguity of the authors' work, they provided significant assistance to the author in developing the chosen problem. The works of these authors consider a wide range of problems related to the development and formation of grassroots rural institutions and their impact on local governments. Referring to the above works allows not only to assess the prospects to a certain extent and outline some directions in the development of the domestic model of local self-government institutions, but also to anticipate possible obstacles

9 See: Ovchinnikov I.I. Local self-government in the system of democracy. M., 1999. Maletin V.V. The state of the economy of the Saratov region and the need for its transformation // Innovations in the regional economy. Saratov, 1997; Makarov R.G., Ryabov V.M. Modern mechanisms of municipal government. Samara, 1998; Shugrina E.S. Organizational bases of local self-government. Novosibirsk. 1992; Orekhovsky P.A. Municipal management. M., 1999. and difficulties in the social institutionalization of local self-government in Russia.

The analysis of the specialized literature gives grounds to conclude that there are a number of issues that have not yet been developed by researchers. The degree of necessary linkage of personnel policy in rural self-government bodies to the social and administrative needs of rural municipalities has not been sufficiently determined. There is no sufficiently developed scheme for the formation of new forms of self-government structures in the social space of the village that is conflict-free for rural social institutions. The domestic experience of implementing the democratic traditions of managing the rural community is not fully used, in particular, the experience of using rural social institutions as a factor in the development of local self-government bodies.

The purpose of the dissertation work is to identify priority forms and directions for improving the structure of the social organization of local government bodies and institutions at the district and district levels in the context of stabilizing the socio-economic and political situation in modern Russia.

To achieve this goal, the following research tasks are formulated:

To reveal the most significant, at the present stage, the foundations of the organization of social and personnel management at the local level in modern Russia;

Determine the Russian mentality of the nature of the functioning of the bureaucratic system of local self-government and compare it with world analogues;

In accordance with the new political realities, to substantiate the importance of a scientifically based approach in the formation of the district and district bureaucratic level of local governments;

To analyze the organization of work with personnel in the municipal service, taking into account the socio-political features of the formation of self-government bodies in the Saratov region;

Based on the results of the empirical study, create a sociological portrait of officials of various ranks of municipal governments that meets the needs of the largest number of voters.

The object of the study is the social organization of the state and municipal administration of the district level.

The subject of the research is the social forms, factors and consequences of the functioning of local (rural) self-government.

When solving the set research tasks, the author tries to adhere to the synthesis of various social theories to the extent that it helped to achieve the goal. Fundamentally important for us theses contain the concepts of participation in management by M. Weber, the learning organization A. Etzoni, the organizational society R. Presthas, the delegation of authority by R. M. Kanter and F. Schumacher. The provisions of R. Park and E. Burges on the types of social control, T. Parsons on structural functionalism, J. K. Homans on social exchange, E. Gidtzens on the level of democratic participation, C. Cooley on symbolic interactionism were applied.

The topic of the dissertation is located at the intersection of several social and humanitarian disciplines, so it was necessary to involve sociological theories, the legal foundations for the activities of self-government bodies and institutions, historical factors in the implementation of self-government in Russia, methods and practices of municipal government. In this regard, we also turned to the sociological ideas contained in the works of representatives of Russian socio-philosophical thought - I.A. Ilyin, P. Sorokin, A. Solovyov. In preparing all sections of the study, the method of scientific modeling was used, as one of the main methods of modern sociology of management and social management.

The research hypothesis is based on the assumption of the need for a radical reform of the modern model of the social organization of local self-government, in the light of the proposals made by the President of the Russian Federation, in connection with the socio-political, economic and managerial changes that have taken place in the Russian Federation since the beginning of the 21st century. The modern structure of state power and the change in the powers of the regional administrative elites require bringing the social organization of the municipal level of power into line with the new administrative realities.

The hypothesis was tested through the study of both materials that make it possible to characterize the content of the social organization of modern self-government, which has developed in the course of the evolutionary development of municipal bodies in Russia, and data on the social expectations of the population regarding the activities of local self-government bodies. Local self-government, which is an instrument of independent and under its own responsibility for solving local issues by the local community, should become a real counterbalance to the regional system of power and a body of control from the bottom of the activities of regional elites at the local level. Local self-government, in cooperation with federal authorities, should control the activities of the regional level of government, which will significantly increase the efficiency of both general government and the implementation of social programs aimed at improving the welfare of the population.

Scientific novelty of the dissertation:

It is proposed to build a vertical of power in the state on the basis of delegation of authority as opposed to directive leadership, taking into account the Russian traditions of democracy;

The necessity of transformation of local self-government bodies into a viable form of social control over the activities at the local level of regional state authorities, by the local community, is substantiated;

In accordance with the latest changes in the structure of government and society carried out by the President of the Russian Federation, the value of the social organization of local (rural) self-government of the domestic model is justified;

On the basis of empirical material and expert surveys of specialists, sociological portraits of an employee of rural self-government bodies who meet the social expectations of local residents and the changed socio-economic and political factors in the development of modern Russian society are shown;

Ways are proposed for transforming the district bodies of rural self-government in the Saratov region from the conductors of state policy in the countryside into a legitimate form of control by the population over the activities of municipal governments at the level of a rural area.

The empirical base of the study was the data obtained as a result of sociological surveys conducted by specialists from the Volga Region Academy of Public Administration and FSUE NIPI GIPROPROM-SELSTROY, among which were sociologists, political scientists and economists. The questionnaire was compiled and the survey was conducted with the participation of officials of the executive and representative bodies of the Aleksandrovo-Gai, Balakovo, Krasnoarmeisky, Krasnopartizansky, Marksovsky, Novouzensky, Engelsky municipalities of the Saratov region. The studies were carried out in 2001-2002 as part of the monitoring of public opinion among residents of municipalities, on the eve of the elections of deputies to representative bodies of self-government and deputies of the Saratov Regional Duma of the III convocation. The opinion of residents of seven municipalities of the Saratov region, as well as residents of the city of Saratov, was studied. In addition to a survey of residents, an expert survey of officials of representative and executive bodies of local self-government bodies of these municipalities was conducted in order to study their opinions on possible ways and methods to improve personnel work at the municipal level. In the process of working on the dissertation, an extensive bank of data of the Volga Region Academy of Public Administration, created in the 90s as a result of a sociological study of the personnel of municipal employees in the Saratov region, was used.

Positions to be defended:

1. Activities for the management of social communities and institutions include not only directive methods based on the strict subordination of lower levels of management to higher ones, but also on the principles of delegation of authority to authorities by local communities. Self-government is a product of social interaction of the local community with state authorities based on the voluntary self-organization of members of the local community. The use of this type of self-organization in public administration significantly increases its effectiveness and is an important factor in the development of civil society as a whole.

2. Improving the organization of local self-government should go in the direction of developing a scientifically based personnel policy both at the district and district levels. This can be achieved by creating a long-term system for improving the professional and educational levels of employees of all structures and institutions of local self-government. The centralized training system can significantly improve the quality of the municipal bureaucracy, which will increase the efficiency of interaction between the municipal and regional bureaucracies in order to protect the interests of the local community.

3. Improving the organization of local self-government in modern Russia must comply with the changed state structure. If the Soviet form of self-government corresponded to the unitary state structure of the Soviet Union, then in the modern conditions of building democratic federalism, it is necessary to build interaction between the state and civil society on the principles of delegation of authority. The main condition of which should be the creation of viable municipalities that will cease to play the role of administrative and economic units, but will become full participants in the process of organizing the management of the life of local communities at the district and district levels. In this case, the principle of economic feasibility of the existence of a particular municipality should be important, so that the bodies and institutions of local self-government created in it do not fall into financial dependence on regional and federal government structures, which undoubtedly limits their ability to defend the social interests of local communities.

4. For the effective functioning of the management system of the municipality, in addition to sufficient funding for local life support, it is very important to have coherence in the functioning of self-government bodies and institutions, this can be achieved if the head of the administration, deputies of the representative body, the administration staff can unite into a strong team of like-minded people who are able to understand the main idea moment, to organize around itself the maximum possible number of citizens, and to coordinate their efforts to translate this idea into reality. Such a social management system is able to bring the greatest social and economic benefit to the residents of the municipality and significantly increase their level of material well-being.

5. When carrying out social and personnel reforms at the municipal level, it is necessary to use as fully as possible the existing constructive experience in organizing a management system and personnel training. Obtained in the course of an empirical study of social expectations of the population in relation to the personal qualities of municipal officials, a sociological portrait allows us to conclude that national and traditional forms and methods of management have a significant impact on the management orientations of the population. Therefore, the created self-government bodies, if possible, should become an institutionalized expression of the will of the population of a particular municipality, taking into account the various social and administrative specifics of a particular local community. The system of local governments, as the most democratic form of government, cannot be unified for the whole country, it must meet the needs of the population of the municipality in order to become real tools for expressing their interests, and not turn into agents of state influence in the local community. In this capacity, self-government bodies quickly lose the trust of the population and, as a result, cannot effectively manage the local community.

The conducted research is applied in terms of determining the place and role of scientifically based improvement of the social organization of local self-government bodies during the period of reforming state and public administrative structures experienced by Russian society.

The materials and results of the study can form a scientific basis for the development of programs for the development of district and district self-government, and can also be used in scientific and pedagogical activities in the preparation of special courses and special seminars on the sociology of management.

Theoretical provisions, methodological approaches, practical results, suggestions and recommendations contained in the dissertation were used in the development of the federal program of state support for the development of municipalities and the creation of conditions for the implementation of the constitutional powers of local self-government (for 1999 - 2014), in speeches at scientific conferences held in 2001-2003 at the Volga Academy of Public Administration, as well as in three publications.

Similar theses in the specialty "Sociology of Management", 22.00.08 VAK code

• Social Factors for Improving the Efficiency of Local Self-Government: Based on the Materials of the City of Naberezhnye Chelny 2007, candidate of sociological sciences Erofeev, Fedor Yurievich

• Formation and development of personnel potential of local governments 2010, Doctor of Economic Sciences Shamarova, Gulmira Mukhtarovna

• 2000, candidate of sociological sciences Mironova, Nina Ivanovna

• Formation of the system of local self-government in the European North of the Russian Federation in the 1990s: On the materials of the Arkhangelsk and Vologda regions 2004, candidate of historical sciences Lukichev, Alexander Nikolaevich

• Formation of local self-government in the Republic of Buryatia in the 90s of the XX century 2003, candidate of historical sciences Sanzhieva, Darima Syrenovna

Dissertation conclusion on the topic "Sociology of Management", Golovanov, Ivan Andreevich

CONCLUSION

Local authorities include several different branches that interact both on the principles of partnership and on the basis of mutual subordination. The control bodies of federal and regional subordination (Ministry of Internal Affairs, the Federal Security Service, the prosecutor's office, tax authorities) can be attributed to state local authorities, and the administrations of rural areas and districts can be attributed to municipal bodies. Local self-government includes representative bodies of municipal district formations and their apparatus, as well as rural assemblies of citizens in districts. Each of the listed bodies has its own socio-political functions and corresponding structure. Thus, local authorities are called upon to control the conduct of official state policy in the field. Municipal local authorities are called upon to ensure the full and effective socio-economic development of the municipality and to ensure interaction with state bodies at the federal and regional levels to coordinate their activities and the interests of the population with state policy. Local self-government bodies ensure control by the population of the municipality over the activities of state and municipal authorities and defend the interests of the population before the state.

If the state and municipal local authorities are in some subordination, through the ability of the state to influence the regional executive power by economic, political and judicial measures, then the self-government authorities (according to the constitution) are not accountable to either state or municipal local authorities and report only to their voters , which gives them the opportunity to pursue an independent policy of defending the interests of voters before the state and municipal administrations.

In different municipal formations, in various district administrations of the region, we see forms of social organization that differ from each other. It can be stated that the situation on the ground is determined by the personnel of the municipal service, since it is these people who are responsible and determine the state of the social sphere in the settlements.

The social organization of a municipality is determined by three main factors:

1. Legislative base of local self-government.

2. The financial basis for the activities of local governments (as an indicator of efficiency).

3. Personnel potential. The integrity of the team, the cohesion of the administrative apparatus (cells of the system of social organization) around one leader or one idea.

The peculiarity of the local government of the Saratov region is as follows:

Representative authorities exist only at the district level;

The head of the administration of the municipality is not elected by the people, but only by the composition of the representative body;

All other heads of local self-government bodies are not elected, but appointed.

In other regions of the Russian Federation, we observe a different approach to the formation of local governments.

With the unity of the principles of formation of local self-government bodies, the diversity of their forms is evident. One thing is invariable, even with different approaches and different forms of formation of the local government system, personnel, that is, people with their pluses and minuses, with their moral, ideological, political, human weaknesses and strengths, determine the social significance of this or that local authority.

The subjects of local self-government are defined by law and are: a) issues of local importance; b) separate state powers.

At the same time, in different municipalities, in various district administrations of the region, we see completely different pictures from each other. This is what gives grounds to state: the situation on the ground is determined by the personnel of the municipal service, because. it is these people who are responsible and determine the state of the social sphere in the settlements.

In addition, there are a number of still unresolved issues hindering the process of scientifically based recruitment for local governments:

1. The process of territorial organization of local self-government in a number of regions of the Russian Federation has not yet been completed, local self-government bodies are of a temporary, transitional nature in many territories. They still have to prove their practical viability.

2. If we strictly follow Russian legislation, then the constituent entities of the Russian Federation are not entitled to independently determine the presence of only one territorial level of organization of local self-government, thereby limiting the rights of citizens to self-government in the sense of its organization at other territorial levels in the order of legal succession in relation to the former Soviets all levels.

3. Nevertheless, in practice and in order to avoid discrediting the new system of local self-government, the organization of municipalities at the level of settlements and village councils (volosts) in most cases, and at the level of villages and villages - in the absolute majority, is unrealistic and inexpedient. However, the implementation of such an installation should be carried out without violating the law, through explanatory work among the population and organizing its expression of will on the issues of establishing levels of territorial organization of local self-government and changing the boundaries of municipalities.

4. As the financial, economic, personnel and other conditions mature, and the intellectual and practical readiness of the population for the effective implementation of self-government, the optimal level of organization of municipalities will apparently move from cities and rural areas to the level of urban areas, townships and village councils (volosts).

5. The process of legislative delimitation of powers and jurisdictions between state authorities and municipalities is only in the starting phase and requires further thorough conceptual and practical elaboration.

6. At the moment, there is almost no delimitation by laws of powers on the subjects of local self-government between the constituent entities of the Russian Federation and municipalities of different levels. Much pioneering work is needed in this area.

7. Issues of delegating state powers to local governments are also only at the initial stage of federal and regional legislative regulation.

In this regard, the main issue that needs to be addressed at the present time is the adoption of laws on municipal service at the federal and regional levels. Special mention should be made of the draft law "On the Fundamentals of Municipal Service in the Russian Federation", which is full of contradictions, inaccurate formulations, and in a number of positions the ends do not meet. Of course, the fact that in Russia over the past hundred years not a single law on service has been adopted is also important here. And the main task of these bills is to determine the persons named according to statistics, census, staffing tables, etc., who are classified as municipal employees: whether only managers, that is, officials, or, together with them, all other employees working in all municipal structures - educational institutions, hospitals, theaters, etc. It is known that the Law "On the Fundamentals of the Civil Service of the Russian Federation" classified as civil servants only employees in state bodies, and even then not all of them.

The draft Law "06 on the basics of "municipal service in the Russian Federation" acted as follows: in article 1, it included all municipal structures - municipal bodies, institutions, enterprises, etc. in the contingent of municipal employees.

Such a solution to this problem is probably absolutely necessary and correct: in any system based on self-government, there should not be a separate bureaucratic caste, living by its own rules and fenced off from the rest of the population. Based on the foregoing, the purpose of the Law of the Saratov Region "Law on Municipal Service in the Saratov Region" is to reflect and consolidate the organization and functioning of the municipal service, the main features that determine its purpose, on the basis of the general provisions of the laws of the Russian Federation.

The effectiveness of the activities of the established self-government bodies of the districts of the region largely depends on how well the selection of personnel constituting the apparatus of representative and executive self-government bodies is carried out. The more complex and responsible the tasks and functions transferred by state bodies and the population to local self-government bodies become, the more important is the selection, because mistakes in filling vacancies are more expensive, especially when it comes to key positions.

Today we can say the main thing. Yes, all the prerequisites for the development of local self-government have been created in the Russian Federation:

There is a necessary legislative base;

The administrative-territorial structure is made taking into account the peculiarities of the national, economic, historically traditional management of settlements;

Such a concept as local taxes, which are collected and, most importantly, spent by order of local authorities to solve local problems, has become widely practiced;

An effective system of control over the financial, economic and socio-political activities of the representative and executive branches of power of local self-government bodies has been created.

Analyzing the level of development of local self-government in the Saratov region, we can draw the following conclusions: all the basic principles of the formation of bodies are implemented.

To solve the problems of social organization of local self-government in the Saratov region, a concept of staffing of state municipal service bodies has been developed. The main provisions of which are as follows.

The management bodies are responsible for carrying out effective work in the most important areas of personnel policy and achieving high results.

The restructuring of personnel services should be based on an analysis of their activities, the development of new criteria for assessing the quality and level of personnel work, in accordance with the legislation on state and municipal service.

The process of restructuring, improving personnel management structures, should be combined with measures for the social protection of the dismissed personnel workers, their retraining, employment and decent pensions.

The key to the effectiveness of the work on the formation of a highly professional and moral corps of state and municipal employees is the constant innovative efforts of the heads of state and municipal services, social control over the activities of management bodies working with personnel.

The effectiveness of work with personnel is determined to a decisive extent by the intensive use of information technology. In the organization of modern personnel work, the content, place and role of information have changed significantly. Information technology is one of the most important resources of state and municipal government. Great opportunities for developing the personnel potential of the state and municipal service are the creation of the Bank of personnel information of the Saratov region. Particular attention is paid to the creation of expert systems in the field of personnel development dynamics.

The development of management decentralization processes, the complication of personnel processes has led to the intensification of information exchange, to the development of telecommunication technologies that have changed the speed and nature of information exchange in work with personnel. This dictates the need to create an information infrastructure that should link the organizational and personnel departments of the state and municipal services into a single system.

When implementing the Concept of staffing the state and municipal service, the main attention is paid to the following priorities of information support:

Ensuring the development of a regional network of computer telecommunications for the organizational and personnel services of state and municipal bodies, the creation of a telecommunications infrastructure;

Organization with the help of new information technologies of monitoring of personnel potential;

The use of modern personnel technologies in the organization and activities of personnel services;

Training of highly qualified specialists in the field of information management and information technology;

Structural restructuring of information departments that ensure the work of personnel services, improving the methods of their work;

Ensuring openness for citizens and publicity of the personnel policy, in accordance with Russian legislation.

The use of modern information technologies helps to introduce and use science-intensive innovative personnel technologies, to increase the efficiency of work with personnel of the state and municipal service. Social security of personnel work is designed to create conditions for the disclosure of the personnel potential of employees and to ensure the involvement of talented and moral people in the state and municipal service. Social policy in state and local government bodies should be based on the principles of legality and social justice. The legal basis for the development of a mechanism for social security of work should be the federal laws “On the Fundamentals of the Public Service of the Russian Federation”, “On the Fundamentals of the Municipal Service in the Russian Federation”, the Laws of the Saratov Region “On the Public Service of the Saratov Region” and “On the Municipal Service in the Saratov Region”.

State, municipal employee in the performance of official duties is under the protection of the state. No one has the right to interfere in the official activities of a state or municipal employee, carried out within their competence, except for persons directly authorized to do so by law.

The development of a mechanism for social security and social protection is associated with the definition of standards, regulations and procedures that guarantee professional and official growth and a decent standard of living. It provides:

Development of procedures for ensuring security measures used to protect the life and health of state and municipal employees and members of their families;

Development and application of legal protection measures providing for all types of liability for encroachment on their life, health and property;

Development of a mechanism for the implementation of social guarantees provided for by the law of the Saratov region "On municipal service in the Saratov region";

Development of procedures for social protection of an employee during the reorganization and liquidation of a state (municipal) body, providing for the possibility of retraining, transfer to another job and inclusion in the reserve;

Development of standards for compulsory insurance of state and municipal employees at the expense of the relevant budget;

Definition and introduction of standards, regulations and procedures that provide conditions for the effective operation of an employee.

The main condition and principle of the mechanism of social security and social protection of state and municipal employees is the correspondence of the level of social guarantees and social protection to official growth.

One of the most important components of the mechanism of social protection of the state and municipal service is the work of conciliation commissions in the authorities. It is necessary to develop a legal act that defines the tasks, functions, powers and composition of this commission.

The condition for improving the quality and effectiveness of managerial work is to increase the prestige of the employee's profession in society, to increase the authority of the authorities as a whole. If these conditions are met, talented and moral people will go to the state service and work with full dedication. The functions that state and municipal employees perform are extremely important for society and the state and are complex. For the effective performance of these functions, decent social security for employees, legal and social protection is necessary.

The fulfillment of the tasks outlined in the Concept of staffing the state and municipal service will make it possible to prepare and place such personnel for senior positions in the municipal service that will meet two basic requirements: a) in terms of business and organizational qualities from the Government of the Saratov region; b) in terms of moral and human qualities, meet the requirements of the population.

Based on the data of mass surveys of the local population of a number of municipalities, a number of measures can be proposed to improve the social organization of local self-government: 1) To ensure more effective control over the activities of representative bodies of local self-government in the Saratov region by the local population, introduce direct popular elections of heads of municipalities. This measure will allow the heads to become more independent in relation to the regional authorities and more eager to defend the interests of voters, as they will become the main censors of his work.

2) Introduce representative bodies of power at the district level in the village and district level in the city self-government and direct elections of heads of district administrations. This will increase the authority of the district self-government bodies and help them to conduct a tougher dialogue with the heads of farms and heads of municipalities in defending the interests of local communities.

3) Carry out a structural and territorial reorganization of existing municipalities in order to enlarge them, this will help reduce the cost of an unnecessarily bloated staff of municipal employees and solve the main task of local self-government - independent and under its own responsibility to resolve local issues by the local community. Larger municipalities will have a larger economic base than they currently have. This will allow them to pursue a policy independent of the regional authorities to meet the needs of the local community. They will become a real instrument of control by the population over the policy of the regional elites.

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Please note that the scientific texts presented above are posted for review and obtained through original dissertation text recognition (OCR). In this connection, they may contain errors related to the imperfection of recognition algorithms. There are no such errors in the PDF files of dissertations and abstracts that we deliver.

Public administration is the organizing executive and administrative activity of state authorities, carried out on the basis and implementation of laws and consisting in the daily performance of the functions of the state.

“Improvement of modern state and municipal management, depending on the nature and subject of improvement, the following main areas are distinguished:

• 1. Legal direction. Assumes an emphasis on improving the legal and administrative forms and methods of state and municipal government. For example, improving the procedure for adopting management acts, regulating relations between the subject and the object of management and within the subject of management. This direction of improvement is carried out by the legal services of state and municipal governments.
• 2. Organizational direction. Within its framework, the main attention is paid to the improvement of organizational forms and methods of management, for example, the improvement of the organizational structures of government bodies and the regulations for the work of the management apparatus. This work is carried out mainly by specialists in the field of management organization, managers and employees of personnel services.
• 3. Information and technical direction. It involves improving the flow of information and its processing. These works are mainly carried out by specialists in the field of computer equipment and technology "Decree of the President of the Russian Federation of November 27, 2003 N 1395 (as amended on July 16, 2004)" On measures to develop federal relations and local self-government in the Russian Federation "//[electronic source] Consultant Plus..

With this approach to improving state and municipal management, partial improvement of management is provided for effective improvement, it is necessary to combine all three areas into one and solve the issue comprehensively.

The main principles of organizing the construction and improvement of the system of state and municipal government include the principle of trinity and the principle of the first leader. The essence of the principle of trinity lies in the fact that the improvement of state and municipal government is considered as a set of scientific research and design developments on the problems of managing the training and retraining of managerial personnel and the implementation of work to improve management at specific facilities.

The principle of the first leader says that the work to improve the management system should be led by the first leader of the project on which the improvement of management is carried out.

The powers of the federal authorities include:

• 1. Definition of general principles of local self-government. These principles are established by the Constitution of the Russian Federation, first of all, Article 12 and Chapter 8, as well as the federal law of October 6, 2003 No. 131-FZ (as amended on December 28, 2013) “On the general principles of organizing local self-government in the Russian Federation” (as amended. and add., entered into force on 30.01.2014).
• 2. Legal regulation on subjects exclusively within the jurisdiction of the Russian Federation within the powers of the Russian Federation and on subjects of joint jurisdiction of the Russian Federation and its subjects. It includes the establishment and regulation of the rights, duties, responsibilities of the Federal bodies and state authorities and their officials in the field of local self-government, as well as the establishment of the rights, duties and responsibilities of the bodies of the constituent entities of the Russian Federation and their officials in this area.
• 3. Regulation of the rights, duties and responsibilities of citizens, local governments in resolving issues of local importance.
• 4. Legal regulation of the rights, duties and responsibilities of local governments and local government officials in the exercise of certain state powers, which local governments are endowed with federal laws in the manner prescribed by 131 FZ.

“The powers of the bodies of the constituent entities of the Russian Federation in the field of local self-government include:

• 1. Regulation of questions of the organization of local self-government in the corresponding subject of the Russian Federation.
• 2. Establishment of certain rights, obligations and responsibilities of bodies and officials of a constituent entity of the Russian Federation in the field of local self-government, including subjects of joint jurisdiction of the Russian Federation and its subjects, if issues included in the subjects of joint jurisdiction are not regulated by the Federation.
• 3. Implementation of the organizational, administrative and control powers of the bodies of the constituent entity of the Russian Federation and its officials in relation to municipalities and local governments "Decree of the President of the Russian Federation of November 27, 2003 N 1395 (as amended of July 16, 2004) "On measures to develop federal relations and local self-government in the Russian Federation"//[electronic source] Consultant plus.

The powers of the municipalities are as follows:

The bodies of municipalities, the citizens themselves, using the institutions of direct democracy at the municipal levels, solve the following issues of local importance:

• 1. Adoption and execution of the local budget
• 2. Establishment, collection and abolition of local taxes
• 3. Possession, use and disposal of municipal property
• 4. Organization within the boundaries of the settlement of electricity, gas, heat and water supply and providing the population with fuel.
• 5. Maintenance and construction of roads, bridges and other engineering structures within the boundaries of the settlement, except for roads and other objects of federal and regional significance.
• 6. Municipal housing.
• 7. Transport service for the population within the boundaries of the settlement.
• 8. Provision of fire fighting measures.
• 9. Organization of catering points.
• 10. Landscaping and gardening.
• 11. Collection and removal of garbage.
• 12. Organization of street lighting.

Issues of local significance of the municipal district additionally include:

• 1) Organization of measures for environmental protection.
• 2) Organization of public and free basic, general secondary and complete general education.
• 3) Organization of emergency medical care.

Issues of local importance of the urban municipal district additionally include:

• 1) Organization of recycling of household waste.
• 2) Providing the population with communication services.
• 3) Protection of urban forests.

“Local self-government bodies have appropriate powers to resolve issues of local importance. They adopt their charter, issue municipal legal acts, set tariffs for the services of municipal enterprises and institutions, adopt and implement plans for integrated socio-economic development, create their own printed media and carry out international relations” Kokotov A.N., Solomatkin A.S. Municipal law of Russia. M., 2012. S. 34..

Local self-government bodies may be endowed with separate powers of state bodies. They may not be granted to all bodies of municipalities, but only to municipal districts and urban districts. Such powers are called delegated powers. The vesting of municipalities with delegated powers is carried out by laws and other legal acts both at the federal level and at the level of subjects of the Russian Federation.

“Along with the transfer of powers, appropriate funding is transferred in the order of the conclusion of relevant bilateral agreements. If the delegated powers are not provided with funding, local governments are not responsible for their execution. In the exercise of control, local self-government bodies submit an annual report of the bodies of the constituent entities of the Federation on the use of transferred funds. Control implies the right of supervisory authorities to give instructions on issues of delegated powers and evaluate the decision of municipal bodies on these issues from the point of view of legality and expediency, as well as the right to suspend or cancel individual decisions of local governments in the circle of delegated powers ”Vydrin IV., Kokotov A. N. Municipal law of Russia. M., 2011. S. 94 .. The consent of local governments to accept the transferable rights is not required, but he has the right to apply to the court to recognize the transfer of certain rights that do not comply with the laws. As a rule, issues of archiving, physical culture and sports, social protection of the population, rehabilitation of the disabled, organization of work on guardianship are transferred to the municipal level. Legal regulation, the exercise of the powers of local self-government is based on the fact that:

• 1. The list of issues of local importance can only be changed by amending federal legislation.
• 2. Financial obligations in connection with the resolution of issues of local self-government are carried out at the expense of the local budget, and, if necessary, at the expense of subventions from the budget of the subject of the federation or the federal budget.
• 3. If certain state powers of the Russian Federation or its subject are transferred to a local government body, then their financial support is carried out at the expense of subventions from the federal budget or the budget of the subject of the Russian Federation, but local government bodies can also use their own funds for this. When regulating the powers of municipal bodies, the principle of subsidiarity is used, in relation to the delimitation of the jurisdiction of the federation and its subjects, as well as the subjects of the federation and municipalities, this principle means that issues that can be resolved at the lower level should not be transferred to the upper level. When regulating powers, the principle of proportionality is also applied, which means that:
  • A) the tasks entrusted to local self-government bodies should correspond to the nature of the municipal public authority and the resources that are at the disposal of local self-government.
  • B) the powers to manage affairs on the ground should be proportional to their capabilities, divided between state bodies, subjects of the Federation, municipalities, as well as between various parts of municipalities.

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Golovanov Ivan Andreevich Improving the organization of local self-government: Dis. ... cand. sociological Sciences: 22.00.08: Saratov, 2004 207 p. RSL OD, 61:04-22/491

Introduction

CHAPTER I Forms of social organization of management in modern Russia 17

1. Self-government as a form of social organization 17

2. Local self-government in the social system of federal and regional government 36

CHAPTER II. Ways to improve the organization of local self-government 61

3. Structuring the social system of local self-government 61

4. Improving personnel policy at the municipal level 81

Conclusion 115

List of references 125

Appendix 139

Introduction to work

The dynamism of the development of the modern Russian Federation, the versatility and interpenetration of legal relations pose to sociologists not so much the task of scientific substantiation of the process of formation of local self-government bodies (despite all their significance), but the problems of developing and substantiating new theoretical provisions that explain the processes of formation of the professional staff of executive and representative bodies local government. We are talking about the formation of a new personnel ideology - a set of scientifically based ideas, theories, views, which in a conceptual, systematized form reflect and evaluate the modern personnel policy.

In the message of the President of the Russian Federation V.V. Putin is given a special place to the development and reform of local self-government. The President notes: “For a long time, the federal government paid practically no attention to the problems of local self-government. Ultimately, this directly affects the standard of living of the population in Russian cities and villages.

One of the reasons is the vagueness in the delimitation of powers with regional authorities, as well as the uncertainty of what exactly state bodies should be responsible for, and for what - local self-government bodies. And further: “The key task remains the work on the delimitation of the spheres of competence between the federal, regional and local levels of government. Without capable local self-government, an effective structure of power is generally impossible. In addition, it is here, at the local level, that there is a huge resource of public control over power” 1 .

See: Address of the President of the Russian Federation to the Federal Assembly of the Russian Federation // Rossiyskaya Gazeta No. 71 (2939) dated April 19, 2002.

4 In the modern sense, local self-government, despite strong historical roots, is a constantly renewing and therefore, in our opinion, requiring constant study phenomenon, characterized by most scientists as an integral system of social relations associated with the territorial self-organization of the population, independently solving issues of local importance, including the structure and procedure for the functioning of local authorities 2 . The position of municipalities, in contrast to the subjects of the federation, is remarkable in that the autonomy of local entities is not legislative, but only administrative in nature, but their administrative autonomy is absolute, that is, local governments have a full range of managerial functions.

From the middle of the 19th century to the present, almost all over the world, there has been a trend towards a weakening of self-government and the strengthening of a strong central government. Its limitations come in a number of forms. First, specialized government bodies are created and a number of management functions of local communities are transferred to the central authorities. Secondly, specialized ministries are empowered with respect to local collectives, which are established in the form of administrative guardianship. Thirdly, administrative control is complemented by financial control, which is expressed in the policy of allocating state subsidies to municipalities. The last provision was reflected in the message of the President of the Russian Federation: “The big problem of local self-government is the insufficiency of its own revenue base ... It is very important that local self-government has the opportunity to create its own sources of budget formation. Through the development of small businesses, efficient use of land, other

2 See: Kutafin O.E., Fadeev V.I. Municipal Law of the Russian Federation. Textbook. M., 1997. C. 5.; Kazanchev Yu.D., Pisarev A.N. Municipal Law: Textbook. M., 1998. S. 34.; Scientific and practical commentary on the Constitution of the Russian Federation / Collective of authors / Ed. V.V. Lazarev. M., 1997. S. 66-69.

5 real estate. At the same time, the state authorities, taking into account the expenditure powers of the municipalities, could provide them with long-term norms for deductions from regular taxes” 3 .

Thus, the relevance of the development and reform of the system of self-government bodies always remains high, because being the most dynamic social organization, the local community constantly needs the progressive development of the system of bodies and institutions of self-government. Only developed self-government, based on an interested attitude to local problems and the civic duties of local residents, can become a reliable basis for democratic federalism.

With sufficient research of the entire set of relations that are developing at the municipal level, it can be stated that most authors are moving away from analyzing the nature of the interaction of subjects of municipal legal relations, from a sociological assessment of cause-and-effect relationships.

The concept of decentralized management, applied at the present stage in the Saratov region, has a specific social character that distinguishes it from true self-government. Local governments have a dual nature here. They remain free self-governing, but at the same time act as territorially separate divisions of the state, i.e. their authorities are simultaneously representatives of the interests of the local community and representatives of the state in the given territory.

The key features of this concept are:

Local authorities, as in self-government, remain elected, but along with them there may also be appointed (in particular, in the Saratov region, representative authorities of municipal

3 See: Address of the President of the Russian Federation to the Federal Assembly of the Russian Federation // Rossiyskaya Gazeta No. 71(2939) dated April 9, 2002.

entities are elected by the residents. And the heads of district administrations are appointed from the district center, there are no representative bodies at the district level at all);

The administrative autonomy of the institutions of self-government exists
wow. But limited by regional and federal laws, that is,
state bodies carry out their administrative functions in full
volume, while others are divided between the state and local communities.
societies (delimitation of powers and subjects of jurisdiction). In addition
First, local governments are subject to a guardianship regime with respect to both
the appointment of officials and their own activities;

Municipalities have the status of a legal entity and
divided by budgetary autonomy, but guardianship is carried out here too.

In practice, centralization 4 has become a "natural form of government" everywhere, as A. Tocqueville noted. The state actually manages the activities of local governments, even in the countries of "Western democracy".

With the transition to market relations in the Russian state, with the transfer of most of the functions of managing the economic complex from the center to the regions, with a conceptual change and redistribution of the role of federal authorities, state authorities of the subjects of the Russian Federation, local governments in the structure of managing the life of the state, as never before there is a need for active rule-making activities, in order to legally consolidate the changes taking place in society. And it is very important that the newly adopted legal acts regulating the formation and development of local self-government in Russia do not reproduce the old models of state territorial programs that regulate the development of local economy in the conditions of the USSR, that is

4 See: A. Tocqueville. American Democracy// Western Sociology of the 19th Century. SPb., 1997.

7 in terms of directive management and planning. This is possible only in the case of a permanent and purposeful consideration of the public law interests of the population living in municipalities, based on scientific methods (organizational, legal, economic) to determine the main areas of work of bodies and officials of local self-government.

One of the fundamental problems of our time is the lack of a culture of goal-setting and goal-fulfillment in the processes of political and legal development, including at the municipal level. The purposefulness of power, both state and local, the expediency of its actions, are directly related to a previously meaningful result. In relation to human coexistence, expediency is understood as the correspondence between actions and a predetermined goal that grows out of the needs of a person or a group of people, and is realized in this activity. However, the setting of goals by the authorities and the selection of the necessary means to achieve them are far from always based on an assessment of the real needs and interests of the population, on objective and subjective possibilities and conditions for their implementation.

The methodological basis of social management, created by the fundamental works of M. Weber, E. Durkheim, R. Merton, N. Douglas, M. Mescon, M. Albert, F. Hedouri, A. Prigogine, N. Smelser, Romanov P.V., Yarskoy E.R., Bychenko Yu.G. makes it possible to carry out scientifically substantiated sociological studies of the mechanisms of formation of local self-government in the systems of state power and civil society 5 . Undoubtedly, research in the field of

5 See: Weber M. The Protestant Ethic and the Spirit of Capitalism // Izbr. works. M, 1990. S. 44-639; Durkheim E.O. Division of social labor. M., 1994; Durkheim E. Sociology. M., 1995; Meskon M.Kh., Albert M., Hedouri F. Fundamentals of management. M., 1992; Smelzer N. Sociology. M., 1994; Socio-economic problems of the development of modern Russia / Ed. V.N. Yarskaya. Saratov, 2003; Alekseev O.A., Bychenko Yu.G., Golovanov I.A. Improving the social organization of municipal service in modern Russia. Saratov, 2003.

8 management of social structures by such sociologists as R. Boudon, J. Bourden, E. Giddens, E. Duran, P. Land, J. Chevalier 6 .

The above considerations determined the nature of the content, the choice and relevance of the topic of the dissertation research. An analysis of the category of "social organization of municipalities", the degree of its influence on the social organization of local self-government and the proposed conclusions is not an end in itself, but a means of solving socially significant problems that are relevant in modern conditions for the Russian Federation as a whole, for the subjects of the Federation and individual municipalities.

At the present stage of the development of sociological thought, attention is increasing to the problems of scientifically based development of local self-government, both on the part of scientists from the Saratov schools of sociology (L.S. Anikin, O.A. Alekseev, A.V. Lyapin) 7 , and on the part of officials bodies of urban and rural self-government (Yu.N. Aksenenko, V.V. Baksalyar, A.G. Voronin, V.A. Lagin, Yu.P. Rogachev, D.Yu. Shapsugov) 8 . At the same time, the studies no longer affect the general provisions of the formation and development of self-government, but narrower aspects that characterize the education

6 Budon R. A place of disorder. M., 1998; Bourg den J. Public service and state
gift servants in France. M., 1996; Duran E. Local authorities in
France. M., 1996; Land P. Management - the art of managing. M., 1995; Chevalier J.
Public service. M., 1996.

7 Anikin L.S. Formation of local self-government in the Russian Federation. Sa
rats. 1997; Alekseev O.A. Innovative trends in public administration
Russia // Innovation processes in management systems in Russia. Astrakhan,
2002; Lyapin A.V. Modern socio-political and economic aspects in
activities of rural municipalities// Socio-economic and
managerial thesauri of reforming Russian society Volgograd, 2002.

8 See: Aksenenko Yu.N. Sociological methodological principles of technology
optimization of the job structure of municipal employees // Effective tech.
technologies in the system of state and municipal government. Rostov-n/D, 1999;
Baksalyar V.V. Organization of urban self-government in Europe and Russia //
Social institutions and processes at the third stage of reforming the Russian
society. Saratov, 2002; Interaction between state authorities and local authorities
self-government: problems and prospects. Rostov-n/D-Pyatigorsk, 1998; Voronin A.G.,
Lagin V.A., Shirokov A.N. Fundamentals of municipal management. M., 1997;
Shapsugov D.Yu. Local authorities in Russia and Germany. Rostov-n/D, 1995.

9 challenging needs of employees of the state and municipal service, the specifics of urban and rural self-government, the role of managerial and national traditions in the process of institutionalization of local self-government in various districts of the Saratov region and various regions of the Russian Federation. In recent years, a large number of works have appeared on issues related to the personnel problem and personnel management. The most intensively developed are the organizational aspects of building various branches of local government, which are reflected in the works of I.I. Ovchinnikova, V.V. Maletina, V.M. Ryabova, E.S. Shugrina, T.A. Orekhovsky 9 .

Along with the works covering aspects of the historical formation of local self-government (I.A. Emelyanov, V.V. Eremyan, A.V. Ivanov, V.F. Abramov, A.V. Venkov, A.L. Yabrov), in the context the topic declared by the dissertation student, it is necessary to point to the works devoted to the analysis of modern practices (G.V. Barabyshev, V.I. Vasilyeva, V.V. Skrebnev, M.V. Kuzmichev, I.V. Stazaeva), which contain provisions, concerning the role of traditions in the formation of self-governing forms.

Despite the diversity and ambiguity of the authors' work, they provided significant assistance to the author in developing the chosen problem. The works of these authors consider a wide range of problems related to the development and formation of grassroots rural institutions and their impact on local governments. Referring to the above works allows not only to assess the prospects to a certain extent and outline some directions in the development of the domestic model of local self-government institutions, but also to anticipate possible obstacles

9 See: Ovchinnikov I.I. Local self-government in the system of democracy. M., 1999. Maletin V.V. The state of the economy of the Saratov region and the need for its transformation // Innovations in the regional economy. Saratov, 1997; Makarov R.G., Ryabov V.M. Modern mechanisms of municipal government. Samara, 1998; Shugrina E.S. Organizational bases of local self-government. Novosibirsk. 1992; Orekhovsky P.A. Municipal management. M., 1999.

10 and difficulties in the social institutionalization of local self-government in Russia.

The analysis of the specialized literature gives grounds to conclude that there are a number of issues that have not yet been developed by researchers. The degree of necessary linkage of personnel policy in rural self-government bodies to the social and administrative needs of rural municipalities has not been sufficiently determined. There is no sufficiently developed scheme for the formation of new forms of self-government structures in the social space of the village that is conflict-free for rural social institutions. The domestic experience of implementing the democratic traditions of managing the rural community is not fully used, in particular, the experience of using rural social institutions as a factor in the development of local self-government bodies.

The purpose of the dissertation work is to identify priority forms and directions for improving the structure of the social organization of local government bodies and institutions at the district and district levels in the context of stabilizing the socio-economic and political situation in modern Russia.

To achieve this goal, the following research tasks are formulated:

reveal the most significant, at the present stage, the foundations of the organization of social and personnel management at the local level in modern Russia;

determine the Russian mentality of the nature of the functioning of the bureaucratic system of local self-government and compare it with world analogues;

in accordance with the new political realities, to substantiate the importance of a scientifically based approach in the formation of the district and district bureaucratic level of local governments;

analyze the organization of work with personnel in the bodies of municipal

penal service, taking into account the socio-political features of the formation of self-government bodies in the Saratov region;

Based on the results of the empirical study, create a sociological portrait of officials of various ranks of municipal governments that meets the needs of the largest number of voters.

The object of the study is the social organization of the state and municipal administration of the district level.

The subject of the research is the social forms, factors and consequences of the functioning of local (rural) self-government.

When solving the set research tasks, the author tries to adhere to the synthesis of various social theories to the extent that it helped to achieve the goal. Fundamentally important for us theses contain the concepts of participation in management by M. Weber, the learning organization A. Etzoni, the organizational society R. Presthas, the delegation of authority by R. M. Kanter and F. Schumacher. The provisions of R. Park and E. Burges on the types of social control, T. Parsons on structural functionalism, J. K. Homans on social exchange, E. Gidtzens on the level of democratic participation, C. Cooley on symbolic interactionism were applied.

The topic of the dissertation is located at the intersection of several social and humanitarian disciplines, so it was necessary to involve sociological theories, the legal foundations for the activities of self-government bodies and institutions, historical factors in the implementation of self-government in Russia, methods and practices of municipal government. In this regard, we also turned to the sociological ideas contained in the works of representatives of Russian socio-philosophical thought - I.A. Ilyin, P. Sorokin, A. Solovyov. In preparing all sections of the study, the method of scientific modeling was used, as one of the main methods of modern sociology of management and social management.

12 The research hypothesis is based on the assumption of the need for a radical reform of the modern model of the social organization of local self-government, in the light of the proposals made by the President of the Russian Federation, in connection with the socio-political, economic and managerial changes that have taken place in the Russian Federation since the beginning of the 21st century. The modern structure of state power and the change in the powers of the regional administrative elites require bringing the social organization of the municipal level of power into line with the new administrative realities.

The hypothesis was tested through the study of both materials that make it possible to characterize the content of the social organization of modern self-government, which has developed in the course of the evolutionary development of municipal bodies in Russia, and data on the social expectations of the population regarding the activities of local self-government bodies. Local self-government, which is an instrument of independent and under its own responsibility for solving local issues by the local community, should become a real counterbalance to the regional system of power and a body of control from the bottom of the activities of regional elites at the local level. Local self-government, in cooperation with federal authorities, should control the activities of the regional level of government, which will significantly increase the efficiency of both general government and the implementation of social programs aimed at improving the welfare of the population. Scientific novelty of the dissertation:

it is proposed to build a vertical of power in the state on the basis of delegation of authority as opposed to directive leadership, taking into account the Russian traditions of democracy;

substantiates the need for the transformation of local governments into a viable form of social control over the activities at the local level of regional state authorities, by the local community;

in accordance with the latest changes in the structure of government and society carried out by the President of the Russian Federation, the value of the social organization of local (rural) self-government of the domestic model is justified;

on the basis of empirical material and expert surveys of specialists, sociological portraits of an employee of rural self-government bodies who meet the social expectations of local residents and the changed socio-economic and political factors in the development of modern Russian society are shown;

Ways are proposed for transforming the district bodies of rural self-government in the Saratov region from the conductors of state policy in the countryside into a legitimate form of control by the population over the activities of municipal governments at the level of the rural district.

The empirical base of the study was the data obtained as a result of sociological surveys conducted by specialists from the Volga Region Academy of Public Administration and FSUE NIPI GIPROPROM-SELSTROY, among which were sociologists, political scientists and economists. The questionnaire was compiled and the survey was conducted with the participation of officials of the executive and representative bodies of the Aleksandrovo-Gai, Balakovo, Krasnoarmeisky, Krasnopartizansky, Marksovsky, Novouzensky, Engelsky municipalities of the Saratov region. The studies were carried out in 2001-2002 as part of the monitoring of public opinion among residents of municipalities, on the eve of the elections of deputies to representative bodies of self-government and deputies of the Saratov Regional Duma of the III convocation. The opinion of residents of seven municipalities of the Saratov region, as well as residents of the city of Saratov, was studied. In addition to a survey of residents, an expert survey of officials of representative and executive bodies of local self-government bodies of these municipalities was conducted in order to study their opinions on possible ways and methods to improve personnel work at the municipal level. In the process of working on the dissertation, an extensive data bank was used

14 Volga Academy of Civil Service, created in the 90s as a result of a sociological study of the personnel of municipal employees in the Saratov region.

Positions to be defended:

Activities for the management of social communities and institutions include not only directive methods based on the strict subordination of lower levels of management to higher ones, but also on the principles of delegation of authority to authorities by local communities. Self-government is a product of social interaction of the local community with state authorities based on the voluntary self-organization of members of the local community. The use of this type of self-organization in public administration significantly increases its effectiveness and is an important factor in the development of civil society as a whole.

Improving the organization of local self-government should go in the direction of developing a scientifically based personnel policy both at the district and district levels. This can be achieved by creating a long-term system for improving the professional and educational levels of employees of all structures and institutions of local self-government. The centralized training system can significantly improve the quality of the municipal bureaucracy, which will increase the efficiency of interaction between the municipal and regional bureaucracies in order to protect the interests of the local community.

3. Improving the organization of local self-government in
temporary Russia should correspond to the changed state
device. If the Soviet form of self-government answered unitary
new state structure of the Soviet Union, then in modern
conditions for building democratic federalism, it is necessary to build
interaction between the state and civil society on the principles of action
exercising authority. The main condition of which should be the creation

15 no viable municipal formations that will cease to play the role of administrative and economic units, but will become full participants in the process of organizing the management of the life of local communities at the district and district levels. In this case, the principle of economic feasibility of the existence of a particular municipality should be important, so that the bodies and institutions of local self-government created in it do not fall into financial dependence on regional and federal government structures, which undoubtedly limits their ability to defend the social interests of local communities.

For the effective functioning of the management system of the municipality, in addition to sufficient funding for local life support, it is very important to have coherence in the functioning of self-government bodies and institutions, this can be achieved if the head of the administration, deputies of the representative body, the administration apparatus can unite into a strong team of like-minded people who are able to understand the main idea of ​​the moment, organize around itself the maximum possible number of citizens, and coordinate their efforts to translate this idea into reality. Such a social management system is able to bring the greatest social and economic benefit to the residents of the municipality and significantly increase their level of material well-being.

When carrying out social and personnel reforms at the municipal level, it is necessary to use as fully as possible the existing constructive experience in organizing a management system and personnel training. Obtained in the course of an empirical study of social expectations of the population in relation to the personal qualities of municipal officials, a sociological portrait allows us to conclude that national and traditional forms and methods of management have a significant impact on the management orientations of the population. Therefore, the created self-government bodies, if possible, should become an institutionalized expression of the will of the population of a particular municipality with

taking into account the various social and administrative specifics of a particular local community. The system of local governments, as the most democratic form of government, cannot be unified for the whole country, it must meet the needs of the population of the municipality in order to become real tools for expressing their interests, and not turn into agents of state influence in the local community. In this capacity, self-government bodies quickly lose the trust of the population and, as a result, cannot effectively manage the local community.

The conducted research is applied in terms of determining the place and role of scientifically based improvement of the social organization of local self-government bodies during the period of reforming state and public administrative structures experienced by Russian society.

The materials and results of the study can form a scientific basis for the development of programs for the development of district and district self-government, and can also be used in scientific and pedagogical activities in the preparation of special courses and special seminars on the sociology of management.

Theoretical provisions, methodological approaches, practical results, suggestions and recommendations contained in the dissertation were used in the development of the federal program of state support for the development of municipalities and the creation of conditions for the implementation of the constitutional powers of local self-government (for 1999 - 2014), in speeches at scientific conferences held in 2001-2003 at the Volga Academy of Public Administration, as well as in three publications.

Self-government as a form of social organization

The term "organization" (from the French аішаіїop, late Latin organiso - I inform, slender appearance, I arrange) is used in several meanings: 1) as an element of the social structure of society; 2) as a type of activity of any group; 3) as a degree of internal order, consistency in the functioning of the elements of the system. In this regard, social organization is understood as a system of relations that unites a certain number of individuals (groups) to achieve a specific goal.

The concept of "organization" is used in economics, sociology, political science, and many other sciences and fields of activity, i.e. wherever social groups operate and their activities are ordered. The reality of the existence of social groups is manifested in their activity, which is possible within the framework of social organization (in the form of industrial, religious, national, scientific organizations, political parties, trade unions, etc.). Social organization formalizes social groups into a community. A.I. Prigozhy defines it as a group of people who jointly and in a coordinated way realize a common goal10.

The community of people in the form of a social organization receives the institutionalization of social differences that have formed in different spheres of people's life. Each member of the local community has his own position, reflecting his position in the system of division of social labor. For example, the social organization of a municipality includes citizens - representatives of different professions and ages. It performs an integrative function on the part of the social system.

Social organizations have a number of basic features. Firstly, they have a target nature, since they are created to achieve certain goals, they strive to achieve this goal as quickly and efficiently as possible. Organizations are both a means and an instrument for ensuring the function of uniting people, regulating their activities to achieve a goal that cannot be achieved in alone

Secondly, members of the organization are distributed along the hierarchical ladder according to roles and statuses. Thus, a social organization is a complex system of interconnected social positions and roles of its members. It enables the individual to realize his needs, interests within the boundaries that are established by the social status of a person, the norms and values ​​adopted in a particular social organization.

Thirdly, a characteristic feature of the organization, according to A.I. Pregozhiy, is due to the division of labor, its specializations according to a functional basis. Organizations are built vertically and horizontally. In vertical structures there are always control and controlled subsystems. The control system coordinates the functioning of horizontal structures. Building an organization vertically ensures the achievement of unity of purpose, gives the organization efficiency and stability of functioning.

Fourthly, the control subsystems form their own mechanisms and means of regulation and control over the activities of various elements of the organization. Among the most important means, a significant role is played by institutional, or intra-organizational, norms that are created by the activities of institutions with special powers. These institutions carry out, implement regulatory requirements in life and apply their sanctions for this. These four factors, according to A.I. Prigogine, determine the organizational order.

The effectiveness of organizational forms is explained by the emergence of the synergy effect (Greek synergia - cooperation, commonwealth). It is synergy that is the temptation for which organizations arise. And this depends precisely on the way people are organized, on this or that combination of their efforts.

The manifestation of synergy in social organizations means an increase in additional energy that exceeds the sum of the individual efforts of their participants. Moreover, in municipalities this phenomenon turns out to be manageable, it can be strengthened, modified, if we understand the sources of the organizational effect, namely: the increase in total energy depending on the type of connections within the local community.

There are several stages in the process of increasing the social energy of the local community. A tangible effect is already given by simple mass character, that is, simultaneity, one-pointedness of efforts. The same people cannot lift the same log in turn, but they are quite capable of doing it together. In addition, the so-called secondary effect of association arises here - the psychological interaction of participants, self-identification of "we", mutual comparison, competitiveness, group control.

The introduction of even the simplest forms of delimitation of powers and the distribution of managerial functions at the municipal level, the consolidation of the powers of the district and district levels of local self-government and territorial public self-government in relation to each other in a consistent relationship further enhances the cumulative effect.

A new level of efficiency of local self-government as a social organization is given by the presence of a professional bureaucracy that has been in the management system for a long time at the municipal level, that is, when an employee achieves high management results by improving the skills of performing any one management operation. At the same time, a new social product of specialization appears - a partial official. Thus, the secret of the organizational effect is rooted in the principles of combining individual and group efforts: unity of purpose, division of labor, coordination, and other ways of implementing the latter are very diverse.

Local self-government in the social system of federal and regional government

In itself, the adoption of the Constitution and the presence in it of provisions that secure the guarantees of the rights of local self-government does not solve the problem of the real existence of local self-government. And the question still remains whether self-government will take place as an integral institution of a legal civil society, or its formal existence will remain only as an inevitable compromise between state power and political forces that support the ideas of self-government.

The following concepts have entered the scientific and law enforcement circulation. 1. A municipal formation is an urban, settlement (urban-type), rural settlement, several settlements united by a common territory (district, village councils, districts), part of a settlement, other populated territory provided for by law, within the limits of which local self-government is exercised, there is a municipal property, local budget and elected bodies of local self-government. 2. Issues of local importance - issues of direct support for the livelihoods of the population of the municipality, classified as such by the Charter of the municipality in accordance with the Constitution of the Russian Federation, the federal Law "On the General Principles of Organizing Local Self-Government in the Russian Federation", this law. 3. Local referendum - voting of citizens on issues of local importance. 4, Bodies of local self-government - elected and other bodies empowered to resolve issues of local importance and not included in the system of state authorities. 5. Representative body of local self-government - an elected body of local self-government, which has the right to represent the interests of the population and make decisions on its behalf that are valid on the territory of the municipality. It should be noted that the legislative base of local self-government in the Saratov region developed in parallel, and in some issues even ahead of the legislation of the USSR. Back in 1991, a permanent commission on local self-government was established in the Saratov City Council of People's Deputies. It was the initiative of the deputies of this commission that made it possible already in 1993 to adopt the Law of the Saratov Region “On Local Self-Government in the Saratov Region”. The completion of the preparatory stage of local self-government reforms in the Saratov region, that is, the creation of a legislative framework for its further development, can be discussed only from December 22, 1996. It was then that in 39 municipalities of the Saratov region, referendums on the approval of the Charters of municipalities and elections to the representative bodies of municipalities were held simultaneously.

The key role in the development and functioning of the management system is played by its personnel. The effectiveness of solving economic, social and other problems largely depends on their competence and ability to work fruitfully.

Social management has long drawn attention to the need for a special analysis of this link, as this makes it possible to critically assess the situation, draw appropriate conclusions and proposals.

The process of formation and development of local self-government in Russia at the present stage depends on the political trends in the development of the country and on the personnel policy pursued by the state and local authorities. Significant, as always, are the managerial personnel of the grass-roots bodies of state and municipal government. In a period of ever-increasing decentralization and change, the main political and moral guidelines in society, apathy towards political actions is growing, disbelief in the possibility of legally defending civil rights. Under these conditions, the tendencies of a scientific approach to the formation of local self-government bodies and advanced training of personnel are becoming more widespread. It is the officials of the lower and middle levels of government that have a decisive influence on the worldview of the population, on the formation of their civic position and attitude towards the local self-government bodies that are being formed. In the process of changing the social institutions of the village, the main forms of active and passive influence of the population on the state and its relations with local governments are realized.

A free society is always a democratic society (demos - people, kratos - power), in which the self-determination of the individual does not conflict with the self-government of the state, but is a necessary prerequisite for the latter. The criterion of truth in the organization of public affairs is the good of all members of society. But at the same time, each citizen is free to decide for himself what exactly is good for him personally, and is free to behave as he pleases within the framework of the rules and laws established by society.

Modern local self-government in the West is supported not so much by the force of law, but thanks to finely worked out, honed and coordinated with each other norms of human relationships, as well as political culture, the quality of personality21. Almost all researchers of local self-government, as a social organization, distinguish several common positions, namely: - management bodies and institutions independent of the state and each other; - independent sources of income from the state; - variety of forms of ownership; - structured society and the predominance of the middle class; - material basis - a developed industrial and post-industrial society; - natural-historical nature of the formation of institutions of self-government; - constant variability, incompleteness, openness and internal inconsistency; - rooted in it democratic values; - continuity with the rule of law. Local self-government is a tool for meeting the private daily needs of people; the state, on the contrary, is called upon to express and protect the integrated interest of society as a whole. If the state strives for unification, leveling differences in details, shades, then local self-government creates the prerequisites for their existence and mechanisms for their development. The state ensures the rights of a citizen, local self-government - human rights.

They also differ in methods, ways of realizing their mission: the state uses coercion, tax mechanisms, and institutions of power for this; local self-government is governed primarily by moral norms and requirements.

Let us formulate the concept of local self-government, taking into account the Russian mentality. Today, many scientists: sociologists, political scientists, social scientists agree that local self-government is, first of all, a free society in the interests of the individual, the rallying of all for the sake of the survival of everyone, the school of compromise in the interests of good neighborliness, natural Russian collegiality and self-organization of citizens, amateur activity of the population in the corresponding territory based on self-management and self-financing.

Structuring the social system of local self-government

The social organization of local self-government is nothing but a structured target system. Its elements, like the elements of all social systems, are people interconnected on the basis of a hierarchy of social statuses and social roles. A social organization is a target community, the hierarchical combination of elements of which is determined by the achievement of a joint (group) goal. This means bringing people together for a goal that cannot be achieved by any of them separately, although it is important for everyone. Achieving this goal forces them to be distributed according to roles, according to goals - “horizontally” and according to leadership, subordination (statuses) - “vertically”.

The organizational effect of the structuring of the social system consists of specialization, synchronicity, unidirectionality of actions included in the functioning of individuals. The effect can be greater or lesser depending on how exactly internal connections are built, and on the social qualities of individuals (professionalism, competence, and so on) who are the real carriers of these connections. The restructuring of ties and the selection of adequate social qualities of individuals can give a significant production and social effect. It is the solution of this problem that is the essential aspect of the current restructuring carried out in our country. It is based on publicity and democracy, designed to activate the creative potential of the individual.

Citizens unite in a social organization of local self-government in two cases: when the achievement of some common goal is possible only through the achievement of individual goals - earnings, the realization of their abilities, prestige, and so on (this is how enterprises and institutions arise) or when individual goals are achievable only through the promotion and achievement of common goals. At the same time, social goals have a value-rational content. The larger and broader they are, the greater the value principle in them, the less accurately and specifically they are described. Significant contradictions arise between, firstly, the goals of each element of the social organization - a person, secondly, the personal and group goals of the remaining elements of the organization, and thirdly, the attitude of the latter to general organizational goals. To harmonize these discrepancies, to prevent targeted conflicts, social management, based on scientific sociological knowledge, is called upon.

The structuring of the social system is embodied, in particular, in the organizational structure of local (rural) self-government. Given the breadth of the sphere of influence of local governments on the social environment, we can say that the structure of local governments of the district is the social structure of the municipality.

Social ties, on the basis of which the relations between the elements of social systems in local self-government organizations are formed, acquire the specifics characteristic of each specific form of organization. The organization of local self-government is not able to cover and control all the variety of social ties and relations, and there is no need for this. The organization selects only those that are related to the implementation of its goals. However, it does not take into account the individual characteristics of the people included in it. Moreover, it gives sanction only to the manifestation of certain individual characteristics, thereby revealing its own function of a social institution.

The institutionalization of relations within the organizational structure of local self-government inevitably turns into a certain depersonalization, or deindividualization, of a person and his social functions (roles), makes him a formalized social structure, although this, of course, does not exhaust the entire scope of real social relations and behaviors. In this regard, an acute problem arises related to the most rational combination of the entire variety of social relations with the institutional relations inherent in a given organization. Its production and social efficiency largely depends on its solution.

The function of the formal structures of local self-government is to conditionally reduce the entire variety of types of people's life activity (its elements) in a particular social organization to some rational and mandatory set of them. In other words, the formal structures of local self-government, as it were, simplify the organization and overcome its social complexity. The relations and behavior of the elements of social organization are summed up as patterns - institutionalized and, to some extent, independent of the individual characteristics of their carriers. Their integral combination creates a formal (administrative) social system, inevitable and necessary for any social system of local self-government.

Local (rural) self-government has such properties that are essential for social organization, such as impersonality (which means that it does not depend on the subjective fluctuations of individuals - individuals are different, but functions are the same), unambiguity (that is, it is designed to solve specific problems and it does not fit all the variety of social relations). The formal system limits the behavior of people strictly within the framework of their statuses and social roles.

Improving personnel policy at the municipal level

Any organization can be represented as a set of its constituent elements (subsystems), interconnected and interacting with each other.

So, some authors distinguish technical, administrative (management) and human, or personal-cultural subsystems as a subsystem of personnel management. Others in the management of organizations distinguish two parts: management of activities and management of people.

Activity management consists of planning activities, setting long-term goals, creating a system for measuring the quality of work, monitoring the implementation of tasks. People management includes ensuring cooperation between all parts of the workforce, personnel policy, training, informing, and motivating personnel.

In the literature, insufficient attention is paid to the issues of determining the personnel management system and its elements. There is no uniform definition of this concept.

You can find in the literature and other options for structuring the organizational system. However, attention is drawn to the fact that the personnel component is almost always singled out as an element of the management system, which is not accidental.

The most important area of ​​activity of any organization, including municipal bodies, has been and will remain employment: attracting professional employees, their development, creating conditions for the use of their labor potential. The personnel management system is a set of techniques, methods, technologies, procedures for working with personnel. The personnel management system is also understood as a set of methods, procedures, methods of influencing organizations on their employees in order to maximize their potential to achieve organizational goals. Consequently, the personnel management system in the municipal service is a purposeful, planned, coordinated and consciously organized process in the field of work with personnel, contributing to the achievement of the goals of municipal bodies and the municipal employees themselves.

The following can be distinguished as the main elements of the personnel management system in the municipal service: selection, competition, training and development, assessment, formation of a reserve, remuneration, and release of personnel.

The formation of a personnel management system involves taking into account the goals of both employees and the administration, ensuring their least inconsistency, identifying the role and place of personnel management in ensuring the main goals of the municipal service.

Further, issues related to the organizational structure of the personnel management service are resolved, the structural units of the service are identified, their target tasks and functions are formulated, the construction of the personnel management structure depending on the characteristics of the organization and the existing management structure in it, questions about the relationship between the structural divisions of the personnel management service among themselves and with other management structures.

At the next stage, depending on the organizational and structural construction of the personnel management service, issues of information support for management decisions are being worked out - content, movement paths and information carriers. The personnel management system is based on the use of a whole range of legal documents, among which the federal law “On the Fundamentals of the Municipal Service of the Russian Federation”, the law of the Saratov Region “On the Municipal Service of the Saratov Region” occupies the most important place. A whole range of norms and standards (number, length of service) of generally accepted procedures for working with documents is also applied.

In the personnel management system as a process, the following subsystems can be distinguished:40 - planning - determining the goals of personnel management, the means to achieve them; - organization - work on recruitment, career guidance, professional selection, recruitment, hiring, placement in jobs, vocational training, improving the organization of work, improving working conditions; - regulation - the movement of personnel, the study of the number of personnel, the level of wages; - control - control of the number, rationality of use, compliance with the position held, execution of personnel orders, etc.; - accounting - obtaining information about changes in the composition of personnel, maintaining state and internal reporting on personnel, etc. Human resource management can also be viewed as a decision-making process. In this case, the personnel management system is the very decision-making, control over the execution of the decision, evaluation of the results, adjustment of personnel management tasks. There is no alternative to linking personnel management systems with the goals of the organization, or rather, the alternative is the inefficient use of human resources, the inability to achieve organizational goals, the crisis and the dying of the organization.41

Introduction

organizational executive committee

Relevance of the research topic.The relevance of the research topic is due to the fact that at present the efficiency of the state power is of great importance. Of great importance is the idea of ​​strengthening the mechanism of state power, which builds the executive vertical of relations between the federal center and the subjects of the Russian Federation.

No state can function successfully without a stable power vertical. The relationship between the center and the authorities of the regions, based on the principles of subordination, is an integral feature of the state.

The apparatus of state power continues and completes the organization of the mechanism of the state, making it ready and suitable for the practical implementation of the tasks and functions of the state. In each link of the state mechanism, the apparatus of state power brings life, a set of measures, means, forms and methods for real, practical activity. In the formation of statehood of any kind, the apparatus of state power acts as the first organizational means for the state to fulfill its goals.

The development of institutions of state power, and the very fact of maintaining the controllability of social processes, is due to the demand for state institutions by society, the fact that these institutions meet the expectations of society. And in modern Russia, the issues of distribution of powers between the President of the Russian Federation and the system of presidential power, the Government of the Russian Federation and the system of executive power, the chambers of the Federal Assembly, control and judicial bodies are the central issue of discussions on improving the system of state power. However, the scattered and opportunistic nature of many proposals in this area does not make it possible to combine the "incompatible" within a single concept. At the same time, the key to modernizing the system of state power in Russia in order to strengthen Russian statehood is to achieve a new quality of state institutions.

The degree of development of the topic.Currently, this topic is widely discussed in scientific circles, on the pages of monographs, textbooks, a lot of laws and by-laws are being published. This is due to new approaches to the understanding and place of public authorities in the modern Russian state, as well as to the reforms being carried out in this direction.

The problems of state authorities at the federal and regional levels are reflected in the works of S.A. Avakyan, A.P. Alekhina, I.S. Iksanova, M.A. Sahle, K.V. Cherkasov.

The purpose of the final qualifying workis to develop proposals on the issues of building the organizational structure of state authorities of the constituent entities of the Russian Federation on the example of the Executive Committee of the Tetyushsky municipal district of Tetyushi.

In accordance with the goal of the study, the following tasks:

1. Explore the essence of the organizational structure of public authorities of the constituent entities of the Russian Federation.

Consider the principles and approaches to the formation of the organizational structure of public authorities of the constituent entities of the Russian Federation.

To reveal the features of the formation of the organizational structure of state authorities of the constituent entities of the Russian Federation.

Give a general description of the activities of the Executive Committee of the Tetyushi municipal district of Tetyushi.

Analyze the organizational structure of the Executive Committee of the Tetyushsky municipal district of Tetyushi.

Develop proposals for improving the organizational structure of the Executive Committee of the Tetyushsky municipal district of Tetyushi.

Object of studyis the Executive Committee of the Tetyushsky municipal district of the city of Tetyushi.

Subject of researchis the organizational structure of public authorities of the constituent entities of the Russian Federation (on the example of the Executive Committee of the Tetyushsky municipal district of Tetyushi).

To solve the tasks set in the work, general scientific research methodsKey words: comparative and situational analysis, generalization methods, induction and deduction, classification, factor analysis, time series analysis, expert assessments, sociological and statistical methods.

The information base of the study was made up of legislative and regulatory legal acts of the Russian Federation and the Republic of Tatarstan; reporting data of the Executive Committee of the Tetyushsky municipal district of the city of Tetyushi.

The structure of the final qualifying workconsists of introduction, three chapters, conclusion, list of references.

The first chapter examines the theoretical aspects of studying the organizational structure of public authorities of the constituent entities of the Russian Federation: the essence of the organizational structure of public administration, principles and approaches to the formation of the organizational structure of public administration, features of the formation of the organizational structure of public administration.

The second chapter analyzes the organizational structure of the Executive Committee of the Tetyushsky municipal district of Tetyushi.

The third chapter suggests directions for improving the organizational structure of the Executive Committee of the Tetyushsky municipal district of Tetyushi.

1. Theoretical aspects of studying the organizational structure of public authorities of the constituent entities of the Russian Federation

1.1 The essence of the organizational structure of public authorities

The subject of the federation is a limited legal entity that has some features of statehood, which is part of a single federal state. The subjects of the Russian Federation meet the following criteria:

do not have sovereignty;

do not have the right to secession or secession;

citizens of any subject of the Russian Federation have equal fundamental rights and obligations on the territory of the Russian Federation;

the law of the subject of the Russian Federation cannot contradict the Federal Law;

subjects of the Federation are equal in the face of federal power.

The Russian Federation is a federal state that combines entities organized both on a national and territorial basis.

According to the Constitution of the Russian Federation, the subjects of the Russian Federation are republics, territories, regions, cities of federal significance, an autonomous region and autonomous districts.

The constitutional and legal status of a constituent entity of the Russian Federation is characterized by the following key points for all types of constituent entities of the Russian Federation: in accordance with Art. 5 of the Constitution of the Russian Federation, the republic has its own constitution and its own legislation, and the territory, region, city of federal significance, autonomous region, autonomous district has its own charter and its own legislation. The constitutions (charters) of the subjects of the Russian Federation fix the foundations of the constitutional system, the foundations of the legal status of the individual, the state structure, the electoral system, the system of state authorities of the subject of the Russian Federation, the procedure for changing the constitutions (charters) of the subjects of the Russian Federation; Each subject of the Russian Federation has its own territory within the borders of the subject of the Russian Federation. Borders between subjects of the Russian Federation can be changed with their mutual consent. The state power of a constituent entity of the Russian Federation extends only to its territory; the subject of the Russian Federation has its own system of state authorities.

The system of public authorities of the subject of the Russian Federation, according to Art. 77 of the Constitution of the Russian Federation, is established by the subject of the Russian Federation independently in accordance with the fundamentals of the constitutional order of the Russian Federation and the general principles of organization of representative and executive bodies of state power established by federal law. Such a federal law has not yet been adopted, and therefore the constituent entities of the Russian Federation should now be guided by the fundamentals of the constitutional system of the Russian Federation, which enshrine such general principles for the organization of public authorities as the separation of powers, the separation of local self-government from state power, and the secular nature of public authorities.

Each subject of the Russian Federation has the right to have its own symbols, flag, emblem, anthem, as well as the capital (center) of the subject of the Russian Federation.

The federal nature of the Russian state implies that state power in it is exercised by both federal bodies and bodies of the constituent entities of the Federation. There is a close relationship and interaction between these levels of state power, ensuring the unity of state power in the Russian Federation. At the same time, in order for federalism to be real, and power to be democratically decentralized, it is necessary to provide the subjects of the Federation with the opportunity to exercise state power with the help of their own bodies, the organization and activity of which would correspond to regional conditions and the general principles of delimitation of powers between the Federation and its subjects.

The creation of a mechanism of power in the constituent entities of the Russian Federation is one of the issues whose foundations require consolidation at the constitutional level - both in the Constitution of the Russian Federation and in the constitutions (charters) of the constituent entities of the Russian Federation. Naturally, the general federal foundations for the organization of state power in the constituent entities of the Russian Federation are enshrined in the Constitution of the Russian Federation, and the specific systems of authorities corresponding to them are fixed in the constitutions (charters) of the constituent entities.

State power, being in its essence social, public, public, went along with society a difficult path of development, taking various forms.

The institution of power as a concept means education:

) not naturally occurring, but specially created by people;

) due to the emergence of any general, public needs, interests and to satisfy them;

) on the basis of official political (public) legal decisions, regulations;

) having the ability to exert an authoritatively controlling influence on society, individual social groups, relationships and processes.

A public administration body is a structure established in accordance with the established (official, legal) procedure, performing on behalf of the state any of its functions in accordance with its purpose, having organizational unity, its own competence (a range of issues that fall within its jurisdiction), powers (a set of rights and obligations), which he must implement and beyond which he must not go in his activities. The body of state administration may be an official or a specialized structure authorized by the state to implement power-management functions.

Bodies of state administration are a set of all subjects of state-administrative activity, including subjects of state power. They are created as a working mechanism of representative, executive and judicial powers, that is, a state apparatus that ensures their better organization and functioning. It is important to emphasize that state power and public authorities are not the same thing. The mechanism for revealing the will of the majority is referendums on the most important state problems, democratic elections.

The resources of state power can also be financial, economic, natural, demographic, social, informational, ideological, power. In the arsenal of the most important resources of state power is the right, which makes it possible to control influence, knowledge and competence, which determine the ability of persons vested with authority to make decisions. Resources make it possible to encourage and punish, stimulate and coerce, convince and use all methods, all means for dominating. Thus, state power and management as a way of its implementation is:

) the right and duty of state bodies to influence the totality of socio-economic relations in the country;

) the system of public authorities;

) the activities of persons vested with appropriate powers of authority.

In accordance with Art. 5 of the Constitution, the subjects of the federation have their own legislation, as well as a constitution (of the republic) or a charter (other subjects of the federation - territory, region, city of federal significance, autonomous region, autonomous district). Federal laws and laws adopted in accordance with them and other regulatory legal acts of the constituent entities of the Russian Federation are issued on subjects of joint jurisdiction of the Russian Federation and the constituent entities of the Russian Federation (Article 76, paragraph 2). Outside the jurisdiction of the Russian Federation, joint jurisdiction of the Russian Federation and constituent entities of the Russian Federation, republics, territories, regions, cities of federal significance, autonomous regions and autonomous districts exercise their own legal regulation, including the adoption of laws and other regulatory legal acts (Article 76, paragraph 4). It inevitably follows from this that each subject of the Russian Federation needs bodies that adopt such legislation.

But, besides the function of adopting legislation, these bodies also serve as representative bodies, that is, they are elected by the people; precisely because of this, the laws adopted by them are of a generally binding nature, as an expression of the state will of the people of the Russian Federation. This implies the implementation of the constitutional right of citizens of the Russian Federation to elect and be elected to public authorities (Article 32, paragraph 2 of the Constitution). Not a single law in the subjects of the federation can be issued if it is not considered and approved by the legislative (representative) bodies of this subject. Also, these bodies carry out certain control functions in relation to the executive branch (approval of the budget, the right to refuse confidence in the government, etc.).

In accordance with federal law No. 184-FZ of October 6, 1999, the legislative (representative) body of state power of a constituent entity of the Russian Federation is the permanent supreme and sole legislative body of a constituent entity of the Russian Federation. Its name, structure, number of deputies and their terms of office are established by the constitution (charter) of the constituent entity of the Russian Federation.

Executive authorities carry out a special type of state activity, which is of an executive and administrative nature. They directly execute acts of representative bodies of state power, decrees of the President of the Russian Federation, organize the execution of these acts or ensure their implementation by their orders.

In accordance with Art. 77, par. 3 of the Constitution, within the jurisdiction of the Russian Federation and the powers of the Russian Federation on subjects of joint jurisdiction of the Russian Federation and the constituent entities of the Russian Federation, federal executive authorities and executive authorities of the constituent entities of the Russian Federation form a single system of executive power in the Russian Federation.

Federal executive authorities, in agreement with the executive authorities of the constituent entities of the Russian Federation, may delegate to them the exercise of part of their powers, if this does not contradict the Constitution of the Russian Federation and federal laws (Article 78, paragraph 2)

The executive authorities of the constituent entities of the Russian Federation, by agreement with the federal executive authorities, may delegate to them the exercise of part of their powers (Article 78, para. 3)

In accordance with federal law No. 184-FZ of 06.10.1999, a system of executive authorities is established in a constituent entity of the Russian Federation, headed by the highest executive body of state power of a constituent entity of the Russian Federation, headed by the head of the highest executive organ of state power of a constituent entity of the Russian Federation or the highest official of a constituent entity of the Russian Federation, if the constitution (charter) of the constituent entity of the Russian Federation establishes such a position. Legislative definition, organization scheme, structure, procedure for the activities of the executive authorities in the subject of the federation are determined by the legislative bodies of the subject of the federation.

As a rule, the executive power in the subjects of the Russian Federation is represented, firstly, by the highest official - the Head or President of the Republic, the Head of the Executive Committee or the Governor in other subjects of the federation. Secondly, this official appoints the Government (Cabinet of Ministers, Administration) - the highest body of executive power (such a body can be directly elected by the population), as well as executive bodies of special competence - ministries, departments, committees, etc.

The system of executive authorities includes their governments, ministries, state committees and other departments. As a rule, this system is headed by the President, Head of the Republic, Head of the Executive Committee, but may be headed by the head of government.

According to the nature of their powers, executive authorities are divided into bodies of general competence, in charge of all or many branches of executive activity (governments of the subjects of the Russian Federation), and bodies of special competence, in charge of certain branches or areas of executive activity (ministries). It is also necessary to distinguish between collegiate (government) and one-man (ministries and a number of other bodies) executive authorities. In accordance with Article 56 of the Charter of the Moscow Region, the Government of the Moscow Region is the highest, permanent, collegiate executive body of the Moscow Region, endowed with general competence.

In general, in the subjects of the federation, the highest administrative body of executive power is usually the Government or the Administration of the subject of the Russian Federation. In the Republic of Adygea, the Chechen Republic, the Chuvash Republic - this is the Cabinet of Ministers, in the Kabardino-Balkarian Republic and the Republic of Tatarstan - the Government is also the Cabinet of Ministers. In the Krasnoyarsk Territory, this body is called the Council of the Executive Committee. In the Republic of Dagestan, the supreme body of executive power is the State Council, headed by the Chairman; this Council forms the Government, which is chaired by the Chairman of the State Council. The Charter of the Republic of Kalmykia does not provide for such a body.

Such bodies can be formed either by the highest official himself, or with the participation of the Prime Minister (or Prime Minister), if he is another person, with the consent of the majority of deputies of the legislative body.

In accordance with Article 118 of the Constitution, para. 3, the judicial system of the Russian Federation is established by the Constitution of the Russian Federation and federal constitutional law. The bulk of the courts in Russia are federal courts, and in accordance with Article 124 of the Constitution, courts are financed only from the federal budget and must ensure the possibility of full and independent administration of justice in accordance with federal law. The federal courts include: the Constitutional Court of the Russian Federation, the Supreme Court of the Russian Federation, the supreme courts of the republics, regional and regional courts, courts of federal cities, courts of the autonomous region and autonomous districts, district courts, military specialized courts that make up the system of federal courts of general jurisdiction; The Supreme Arbitration Court of the Russian Federation, federal arbitration courts of districts, arbitration courts of constituent entities of the Russian Federation, which make up the system of federal arbitration courts.

The operation of federal courts on the territory of the subjects of the federation, as a rule, is indicated in their constitutions and charters, although not all courts are listed in these documents. Sometimes (Republic of Buryatia, Bashkortostan, Karelia, Mordovia, Tuva, Udmurtia, Krasnodar, Khabarovsk Territory, etc.) they mention only district and city courts, and sometimes (Republic of Khakassia, Chuvash Republic, St. Petersburg) - only the Supreme or Arbitration court). Nevertheless, all the same, these courts administer justice in all subjects of the federation, in accordance with the federal constitutional law "On the judicial system of the Russian Federation", and their competence, organization and activities are established by legislative acts of the Russian Federation.

The courts of the subjects of the Russian Federation include constitutional (statutory) courts, justices of the peace, who are judges of general jurisdiction of the subjects of the federation.

Thus, the specific outlines of the organizational structure depend on various objective and subjective conditions and factors, including the public functions of the state and the state policy pursued by it, internal conditions and factors of management itself (human potential, information support, democracy, management style), etc.

There are a large number of organizational grounds (standard modules) for creating all kinds of state government bodies, taking into account specific subjective and objective conditions and factors that can successfully solve management problems.

The principal scheme for building the organizational structure of power includes the following structural units:

management (for example, the minister, his deputies, the collegium of the ministry);

branch divisions (for example, heads of ministries);

functional branch divisions (for example, departments and departments of ministries, state committees);

support and service units (eg secretariat, offices, forwarding commissions).

Thus, the simplification and cheapening of the administrative apparatus is associated with the strictest observance of state staff discipline, which involves a certain procedure for establishing and changing the staff of institutions, organizations and enterprises.

2 Principles and approaches to the formation of the organizational structure of public authorities of the constituent entities of the Russian Federation

When designing the organizational structures of public authorities of the constituent entities of the Russian Federation, it is important to observe a number of important rules (principles) for their construction.

Focus on achieving goals:

the organizational structure should contribute to the achievement of management goals, which is ensured by establishing the rights and necessary full responsibility of each management link for achieving the tasks assigned to it;

balancing the tasks of the links of one level of management in relation to the tasks of a higher level;

rational division and cooperation between links and levels of management and their interaction.

perspective;

state authorities of the constituent entities of the Russian Federation should, while solving operational issues, simultaneously carry out work to determine a strategy related to the socio-economic development of the constituent entity of the Russian Federation;

in the organizational structure, it is necessary to provide for a block of long-term, strategic management, separating it from the block of operational and current management;

to divide powers between representative and executive bodies, and also to create special subdivisions in the organizational structure of the state authority of the constituent entities of the Russian Federation that deal with the development strategy of the constituent entity of the Russian Federation.

Ability to develop (adaptability):

the organizational structure must monitor and promptly respond to constant changes in external conditions, respond to the challenges of emerging disproportions in the public administration system;

under these conditions, the organizational structure should be sufficiently elastic, able to adapt to the perception of corrective actions;

the organizational structure should be receptive to periodic changes in the state authorities of the constituent entities of the Russian Federation, by creating temporary target units (headquarters, commissions, committees).

Complexity.

When building and improving the organizational structure of public authorities of the constituent entities of the Russian Federation, it is necessary to take into account the possibility of structural support for all stages of management activities;

analytical (analysis of problems, identification of possible solutions);

setting goals (identifying activity priorities);

making a managerial decision (choosing a technology and an algorithm for solving a problem, determining the final and intermediate results);

execution of the decision (specific activity for the implementation of the management decision);

periodic monitoring and evaluation of results (analysis of performance results, preparation for the next analytical stage and a new cycle).

The principle of complexity requires in the analysis of the structure to proceed, first of all, from the integrity of a particular function. This is especially important when the performance of the function is “divorced” by different structures or for the performance of this function it is necessary to involve several structural divisions of the state authorities of the constituent entities of the Russian Federation. It is desirable that the issues assigned to the jurisdiction of one or another structural unit are as complete as possible, which is especially important for sectoral structural units.

Individualization:

the formation of an organizational structure should be based on taking into account the individual characteristics of a particular subject of the Russian Federation;

typical organizational structures can only be used as advisory and indicative;

adaptation of unified models to the conditions of the constituent entity of the Russian Federation, reliance on analysis and consideration of specific features give positive results.

Economy:

the organizational structure should ensure the effective and rational implementation of the public administration process, the ability to obtain the necessary results in an economical way;

by introducing positions (system administrator, information technology specialist, etc.), whose functions include analysis of the current organizational structure, functional and hierarchical division of powers;

remuneration of civil servants;

mechanization and automation of management processes in order to improve them.

The organizational structure of state authorities of the constituent entities of the Russian Federation is based on the principles of unity of command and hierarchical subordination. The process of forming the organizational structure of public authorities of the constituent entities of the Russian Federation includes the formulation of goals, objectives and functions, determining the composition and location of units, their resource support (including the number of employees), the development of appropriate regulatory procedures and documents.

Real public administration systems are distinguished by a wide variety of organizational structures. But at the same time, there are general approaches to building organizational structures. The most promising is a system-targeted approach with a focus on the final results of the system. The definition of a system of goals (“tree of goals”) and tasks of a particular subject of the federation is the main guideline for the formation of its organizational structure. When forming an organizational structure based on the "tree of goals", it is necessary to decompose the goals and objectives of public administration to specific management functions.

Thus, with a system-target approach, real conditions are created for individualizing the process of forming an organizational structure in relation to the characteristics of a particular subject of the federation.

1.3 Features of the formation of the organizational structure of public authorities of the constituent entities of the Russian Federation

The process of forming the organizational structure of public authorities of the constituent entities of the Russian Federation includes the formulation of goals, objectives and functions, determining the composition and location of units, their resource support (including the number of employees), the development of appropriate regulatory procedures and documents.

The subject of public administration is the state as a whole, but this does not mean that all its bodies, enterprises, institutions and organizations are involved in governance. The organizational structure of public administration is a certain composition, organization and stable relationship of people, technical and other means allocated and expended by society for the formation and implementation of state influence and the maintenance of the life of the subject of management.

As a system-forming element of the organizational structure of public administration, a state body is associated with the formation and implementation of state-administrative influence.

There are various characteristics of a public body:

Functional - a state body as a structure that performs certain functions of the state;

Legal - as a structure endowed with a certain competence (a set of functions and powers), state-power powers;

Sociological - a state body as a team of people allocated by society in the order of the social division of labor to perform tasks in the field of public administration and activities.

Organizational - a certain structure is considered from the standpoint of the organization of its elements and their relationships in connection with belonging to the state apparatus.

A state body is a formally created by the state structure of power, for the implementation of certain functions of the state and empowering it with the powers of the state. In this regard, it is necessary to distinguish between a state body that creates and implements management decisions, and state institutions, organizations and enterprises that implement and create material, social and spiritual products and services.

The basis of the organizational structure of public administration are the executive authorities. It is they who concentrate almost all administrative information and the most important means of state coercion. Therefore, the actual orientation of state administration, the state regime, etc. depends on the practical activities of the executive branch.

The specific outlines of the organizational structure depend on various objective and subjective conditions and factors, including the public functions of the state and the state policy pursued by it, internal conditions and factors of management itself (human potential, information support, democracy, management style), etc.

The state and placement (or position in the social system) of managed objects has a certain influence on the organizational structure of public administration. Traditionally, according to the object in public administration, the following governing bodies are distinguished:

management of economic processes;

management of socio-cultural processes;

for the management of administrative and political processes.

There are a large number of organizational grounds (standard modules) for creating all kinds of state government bodies, taking into account specific subjective and objective conditions and factors capable of successfully solving managerial tasks.

In the formation of a certain type of public administration structure, several organizational bases are used:

Linear basis - a strictly formalized structure is created with a predominance of vertical subordination of state bodies in the form of a strict hierarchical pyramid, with the presence of strict one-man management and unity of management, stable and effective for carrying out power requirements. With this basis for the construction of a control body, feedbacks are poorly expressed, its narrow focus is observed, which reduces universality and efficiency.

Functional basis - state bodies are formed that are specially adapted to conduct specific management functions, which makes it possible to select highly professional specialists. Negative for this reason is the complexity in interfunctional coordination, which limits the advantages of specialization in the conduct of individual management functions.

Linear-functional foundation - a combination of the two previous foundations makes it possible to create a structure in which some bodies make and authoritatively implement management decisions, while others provide them with advisory, statistical, coordinating and other information, which makes it possible to increase the level of public administration.

Program-target basis - the basis for the creation of a structure is any goal (a set of goals), a comprehensive program, the implementation of which all elements of the structure and their interconnections are subject to, which contributes to the integration of intellectual, natural, industrial, information and other resources to solve pressing public issues . This foundation was developed at the end of the last century.

Matrix base - a type of structures associated, as a rule, with territorial administration. Combines linear and program-target management. Provides an integrated approach to management in a particular area and enables a flexible, quickly adaptable approach to actively developing and dynamic managed objects.

Typical external relationships have a certain formative influence on the internal organization of a state body. Each independent unit structure (organ) must have interconnections that could provide:

full responsibility of each management body for achieving the set goals or performing the management function;

balancing the goals of all links of a certain level of management in relation to the goals of a higher level;

complexity of performance (interconnection) of all management functions, both vertically and horizontally;

division and cooperation of actions between the links and levels of the state apparatus;

concentration of powers and responsibilities in solving each specific task due to the rational redistribution of competence at each level of management horizontally and delegation of powers vertically;

compliance of the organizational and economic mechanism for monitoring execution with the scope of competence in the field of responsibility and decision-making authority for each managerial task.

There is no single classification of state bodies in the field of public administration. However, there are some criteria that allow you to group controls. These criteria include:

Territorial scale of competence. On its basis, there are: federal (central) bodies, subjects of the federation and their local bodies, as well as local governments.

Subordination of organs to each other. This allows you to divide the organs into higher and lower.

The order of education. Such a basis classifies bodies into those formed (by a superior body within its competence) and elected (by the population or a representative body).

The nature and content of powers leads to the division of management bodies into bodies of general, sectoral and intersectoral (functional) competence.

The procedure for resolving issues of competence separates the bodies of collegial and sole management.

The source of funding serves as a way to single out budgetary bodies and non-budgetary, economically independent ones.

Various grounds for the formation of public administration bodies speak of many types of state bodies that differ from each other, but at the same time they all have many common features and properties.

State bodies that are characterized by the same position and homogeneity of managerial functions are designated as "a link in the state-management system". Attribution of one or another state body to any link is possible on the basis (features, properties) of a certain coincidence of the legal status, structure and external relationships (with managed objects and within the framework of the subject of public administration). As a link in the organizational structure of public administration, one can consider: the President, the Government, ministries, departments, similar bodies of the subjects of the federation and executive bodies of local self-government.

The unification of state bodies in specific areas of interrelations, taking into account their specialization, forms their certain integrity in relation to the entire structure of public administration.

This integrity forms a corresponding subsystem of public administration. The defining features for attributing individual management bodies (links) to a particular subsystem are:

Competence, when it is formulated according to one leading feature (economy, production, services, a comprehensive development program, territory, state function, etc.).

Subordination. There are direct structural and functional connections between the organs of one subsystem, there is a subordination of organs.

internal organization. Each subsystem has an independent structure, isolated from other subsystems with an independent subsystem control center.

Stability, constancy of the subsystem, which allows it to act outside (in the control action on the control object and inside the structure) and be perceived by other subjects of control and managed objects as a specific whole.

Specificity of interaction. Each subsystem has only its own types of interaction with managed objects or other subsystems of state bodies. Subsystems can be vertical (federal executive authorities) and horizontal (territorial authorities of a subject of the federation, city, district).

The formation of a balanced organizational structure of public administration, the achievement of the integrity of subsystems and their effective integration into an organizational structure is ensured by the interconnections of its parts, including:

Relationships of construction, through which the establishment (creation) and transformation (change) of both the entire organizational structure and its subsystems, individual organs, their internal organization and composition take place.

Functional relationships that reflect the channels for the formation and implementation of internal management functions of state bodies and ensure the integrity of the structure and its components.

Relationships of the “feedback” type, which allow for constant monitoring of the activity and expediency of the movement of individual links and bodies, subsystems, as well as checking their compliance with objective requests (whether or not certain government bodies are needed).

Information relationships that create conditions for the exchange of information between all components of the organizational structure of public administration.

Each state body has its own structure, which is understood as the totality of its divisions, positions, the distribution scheme between them of the functions and powers assigned to the body, as well as the system of relationships between departments and positions. The structure of any state body depends on its place in the organizational structure of state administration, the scope and content of its competence, and its role in managing social processes. The construction of the structure of the body is carried out from top to bottom, or on the basis of the staffing table. The structure of each state body should be adapted to effectively solve its main specific management tasks in conjunction with managed objects and ensure effective management of the activities of its own apparatus.

For this organizational structure of public administration:

Mobility. The numerical composition and the number of internal divisions are established according to the optimal criteria for manageability.

Profitability. The cost of maintaining the management apparatus and the costs of the management activities of its employees.

Efficiency. The timeliness of adoption, the quality and speed of execution of management decisions, the speed and quality of the passage of information, the complexity of internal and external relations of the state body.

Potential rate of controllability. The ability to cope with its goals is sufficient and can guarantee the necessary level of control over the relevant processes related to the scope of this body.

Structural subdivisions are created for the implementation by the governing link of the state body (management) of functions and powers. They themselves do not exercise the competence of the state body, but professionally ensure the activities of the management.

Within the framework of the volumes and types of management activities assigned to them, the units perform the necessary management actions. There are several approaches to defining the structure and building a unit:

with a horizontal structure, a large group of positions is created, headed by one leader (1 + 6);

with a vertical construction in the structure of the unit, small groups of positions are created with subordination to several managers, several sectors headed by the head of the department (1 + (1 + 2) + (1 + 2).

The optimal number for the unit is 7 people.

The vertical structure has many negative aspects, both objective and subjective:

increase in the time of passage of commands, information and their distortion;

the removal of the performer from the leadership reduces his performance;

weakness of horizontal connections between employees (coordination of efforts of employees);

the emergence of competition for influence on the implementation of the competence of a state body;

the probability of manifestation of the dominance of group interest over the interest of the state body, etc.

An important place in the organizational structure of the state body is occupied by the allocation and description of positions and jobs. There are certain differences between these concepts. According to the position, activities are carried out that, to one degree or another, but are directly related to the implementation of the competence of the state body, with the maintenance of the authority of the leadership. The position is described through managerial duties and powers for it, and it is performed. The performance of a position is measured by correlating the efforts of the employee with the competence of the state body and their influence on its implementation. The workplace is a type and scope of activities for the maintenance and provision of management processes (maintenance of premises, maintenance of information systems, provision of necessary resources, etc.).

In building the structures of a state body, the same foundations are used as in building the organizational structure of public administration as a whole in relation to the features of the body: linear, functional, linear-functional, program-targeted. Additionally, a line-headquarters, when a division is created in the body for its intellectual and information support.

Thus, in conclusion of the first section, we can conclude that the organizational structure is the most important factor in the activity of a state authority of a constituent entity of the Russian Federation, the form in which the process of public administration is implemented. The organizational structure is understood as the composition and subordination of interrelated organizational units (individual positions), links (management units) and steps (levels) endowed with certain rights and responsibilities to perform the relevant target management functions.

2. Analysis of the organizational structure of the executive committee of the Tetyushi municipal district of Tetyushi

.1 General characteristics of the activities of the Executive Committee of the Tetyushi municipal district of Tetyushi

The municipal formation "city of Tetyushi" is located in the southwestern part of the Republic of Tatarstan on the right bank of the Kuibyshev reservoir. The municipal formation "city of Tetyushi" borders on the municipal districts of the Tetyushsky municipal district: Monastyrsky, Lyashevsky, Narmonsky, Ivanovsky. On the eastern side, the border of the municipal formation "city of Tetyushi" with the Spassky municipal district runs along the river. Volga.

The distance from Tetyushi to Ulyanovsk is 90 km, to Kazan - 140 km, to Cheboksary - 220 km.

The city of Tetyushi is connected with the neighboring regional centers of Buinsk, Apastovo, Kamskoye Ustye by paved roads. The federal highway Kazan-Ulyanovsk passes through the territory of the municipality "city of Tetyushi" from north to south. Transportation of the population and goods is carried out by road and in the summer by water. The availability of water transport is ensured by the presence of the Tetyushi pier, which includes a cargo berth with a port crane and a berth for receiving passenger river vessels.

The total area of ​​lands of the municipal formation "city of Tetyushi" is 8142 hectares. There are 3,356 residential buildings on 97 streets of the settlements of the municipal formation "City of Tetyushi", which includes the following settlements: the city of Tetyushi, Pitomnik, the village of Lyubimovka and the village of Krasnaya Polyana, there are 3356 residential buildings, of which 84 apartment buildings are served by the management company "Tetyushi Zhilservis" LLC . More than 10 new streets have been set aside for the construction of houses for large families in the western microdistrict of the city.

The green zone in the municipality "city of Tetyushi" is 522 hectares or 6.4% of the total area, the preservation, reproduction and improvement of which is ensured by 2 institutions of the forest district - the State Budgetary Institution "Tetyushskoye Lesnichestvo" and the State Budgetary Institution "Tetyushles", as well as the Municipal Unitary Enterprise "Tetyushi- Zelenkhoz.

On the territory of the municipal formation "city of Tetyushi" there are local roads with a length of 115 km.

Transportation of passengers by road is represented by: Tetyushskoye ATP LLC and individual entrepreneurs. There are regular bus routes, intracity, suburban, intercity, interregional. The service "taxi" is provided by the companies - "Volga", "Taxi Plus".

The housing and communal complex of the municipal formation "city of Tetyushi" is represented by the following enterprises: OJSC "Tetyushi enterprise of thermal networks", OJSC "Tetyushi-Vodokanal", LLC "Tetyushi Zhilservis", District electrical networks, gas service.

In the communication market, communication services are provided by the wire communication operator Tetyushsky RUES of the Buinsky ZUES OJSC Tattelecom.

Stationary trade enterprises operate in the city,
catering establishments, including canteens and cafes, there are several hotels. In the city of Tetyushi there are: 7 preschool institutions, 4 secondary schools, including the Cadet boarding school. Two secondary - special educational institutions: a pedagogical college and an agricultural technical school, 1 branch of a higher educational institution KSUI. There are two driving schools, a Center for additional education for children, a school of arts, a sport school for clay shooting, a children's youth sports school, a branch of the Kazan Youth Sports School "Batyr", a branch of the Central Sports School for Children's Sports School for Chess. R.G. Nezhmetdinov.

year in the Tetyushsky district was declared - the Year of a healthy lifestyle.

The sports complex "Bars" is operating, children's and sports grounds have been built in many microdistricts of the city. The swimming pool is under construction. In winter, the city operates: 1 ski base in the southern microdistrict, 3 ice skating rinks on the territory of the technical school, the pedagogical college and at the Bars sports and recreation complex. Various sports are developed in the city of Tetyushi: volleyball, freestyle wrestling, national wrestling, football, athletics, cross-country skiing, clay shooting, table tennis, basketball, checkers and chess.

Provision of medical and preventive care to residents of the city of Tetyushi is carried out by the Tetyushi Central District Hospital. MTZ and SZ RT in the Tetyushsky municipal district coordinates the activities of: 1) Branch No. 39 of the Republican Center for Material Assistance, which performs the functions of assigning and paying benefits and compensations, housing and communal subsidies, accounting for social support measures provided to citizens and 2) SAUSO "Center social services for the population "Tetyushskoe radiance", which provides social services for the elderly and disabled, provides social, social, medical, socio-psychological, socio-legal and socio-economic services.

In the field of culture, the following activities are carried out: MBU "Tetyushskaya centralized club system", which includes the District House of Culture, Ludogovsky House of Culture, MBU "Museum of the History of the Tetyushsky Territory", Tetyushskaya Children's Art School, Central Library, Children's Library.

State and municipal services to the population are provided by a multifunctional center, which houses: the Tetyush department of the Office of the Federal Service for State Registration, Cadastre and Cartography in the Republic of Tatarstan; department of the Federal State Institution "Land and Cadastral Chamber for the Republic of Tatarstan" in the Tetyushsky district; branch of the Federal State Unitary Enterprise "Rostechinventarization - Federal BTI" in the Republic of Tatarstan; MU "Chamber of property and land relations of the Tetyushsky municipal district of the Republic of Tatarstan".

On the territory of the municipality "city of Tetyushi" there are many historical and cultural territories that are of interest in historical, ethnic, cultural terms. Since 2007, archaeological research has been carried out at the archaeological monument of republican significance - the Tetyush second settlement under the guidance of Doctor of Historical Sciences A.K. Rudenko. From May 15 - 17, 2009, the first scientific and practical conference "Archaeology of the Early Medieval City of the Middle Volga and Cis-Urals" was held in the city of Tetyushi. On August 3 - 5, 2011, the second scientific and practical conference "Migrations and their role in the history of Eurasia" was held.

The development of cultural and educational tourism is still one of the leading activities of the museum. In 2013, the third tourist season was completed (beginning of May to November inclusive). The activities of the museum are aimed at working with individual tourists, small groups, and with organized groups. When meeting independent tourists, the museum acts as a tour operator - in fact, the host, providing, together with other local partners, its own tourist cycle, including the organization of cultural programs, entertainment, food, transport, etc. In the case of organized groups, the museum acts as one from the elements of external cultural and tourist programs (routes), working on a contractual basis with certain travel agencies. Geography of tourist attendance in 2013: Buinsk, Kamskoe-Ustye, Zelenodolsk, Moscow, Sochi, Kazan, Samara, Syzran, Germany, Holland, America, France, etc. The number of car tourists in Tetyushi and Dolgaya Polyana has noticeably increased. There are republican motor ship and bus tours.

Local self-government of the Tetyushsky municipal district is a form of exercise by the population of its power, which ensures, within the limits established by the Constitution of the Russian Federation, federal laws, and in cases established by federal laws, laws of the Republic of Tatarstan, independent and under its own responsibility, the decision of the population directly and through local governments of issues of local importance based on the interests of the population, taking into account historical and other local traditions.

The legal foundations for the organization and implementation of local self-government include issues of local importance:

) formation, approval, execution of the budget of the Tetyushsky municipal district, control over the execution of this budget;

a) establishing, changing and abolishing local taxes and fees;

) possession, use and disposal of property owned by the municipality;

) organization within the boundaries of the municipal district of electricity and gas supply to settlements;

) road activities in relation to motor roads of local importance outside the boundaries of settlements within the boundaries of a municipal district, as well as the exercise of other powers in the field of the use of motor roads and the implementation of road activities in accordance with the legislation of the Russian Federation;

) participation in the prevention of terrorism and extremism, as well as in minimizing and (or) eliminating the consequences of manifestations of terrorism and extremism in the territory of the Tetyushsky municipal district, etc.

The legal basis of local self-government is made up of generally recognized principles and norms of international law, international treaties of the Russian Federation, the Constitution of the Russian Federation, federal constitutional laws, the Federal Law "On the General Principles of the Organization of Local Self-Government in the Russian Federation", other federal laws, and other regulatory documents issued in accordance with them. legal acts of the Russian Federation (decrees and orders of the President of the Russian Federation, resolutions and orders of the Government of the Russian Federation, other regulatory legal acts of federal executive bodies), the Constitution of the Republic of Tatrastan, laws and other regulatory legal acts of the Tetyushsky district, the Charter of the Tetyushsky municipal district, municipal legal acts municipal district on issues of local importance of an interdistrict nature, decisions taken at local referendums of the municipal district.

On issues of local importance, the population of the municipal district directly, local self-government bodies and local self-government officials adopt municipal legal acts. On the issues of exercising certain state powers transferred to local governments by federal laws and laws of the Republic of Tatarstan, municipal legal acts are adopted on the basis of and in pursuance of the provisions established by the relevant federal laws, laws of the Republic of Tatarstan. The system of municipal legal acts includes:

) Charter of the Tetyushsky municipal district;

) legal acts adopted at a local referendum (gathering of citizens), normative and other legal acts of the representative body of the municipal district;

) legal acts of the head of the municipal district and officials of local self-government, provided for by the Charter of the Tetyushsky municipal district.

According to article 37 of the Federal Law "On the general principles of organizing local self-government in the Russian Federation" dated October 6, 2003 No. 131-FZ, a local executive has the rights of a legal entity. The structure of the local administration is approved by the representative body of the municipality on the proposal of the head of the local administration. The structure of the local administration may include sectoral (functional) and territorial bodies of the local administration.

In accordance with the Charter, the Executive Committee of the Tetyushsky municipal district is the executive and administrative body of local self-government. The activities of the Executive Committee are managed on the basis of unity of command by the head of the Executive Committee of the Tetyushsky municipal district.

The Executive Committee of the Tetyushsky Municipal District is the executive and administrative body of the local self-government of the District.

Location of the Executive Committee: Russian Federation, 422370, Republic of Tatarstan, Tetyushsky district, Tetyushi city, Sverdlova, 67.

Table 2.1.1. Powers of the Executive Committee of the Tetyushsky municipal district

Name Authority in the field of planning, budget, finance and accounting - ensures the development of the draft budget of the District, draft plans and programs for the integrated socio-economic development of the District; - organizes the implementation of the budget of the District, the implementation of plans and programs for the integrated socio-economic development of the District; - ensures the preparation of reports on the implementation of the budget of the District, reports on the implementation of plans and programs for the integrated socio-economic development of the District; - organizes the collection of statistical indicators characterizing the state of the economy and social sphere of the Region, and the presentation of these data to state authorities in the manner prescribed by law; - ensures equalization of the levels of budgetary security of settlements at the expense of the District budget. In the field of municipal property management, relations with enterprises, institutions and organizations in the District in accordance with the procedure established by the District Council, within its powers - manages property that is in the municipal property of the District, decides on the creation, acquisition, use, disposal and lease of objects of municipal property; - in cases determined by the decision of the Council of the District, prepares and submits for approval (approval) of the Council of the District proposals for the alienation of municipal property, including its privatization; - creates municipal enterprises and institutions, determines the goals, conditions and procedure for their activities, approves their charters, provides funding for municipal institutions, maintenance of their buildings and structures, arrangement of territories adjacent to them, resolves issues of reorganization and liquidation of municipal institutions and enterprises, appoints basis and dismiss their heads from their positions; - concludes with enterprises, organizations that are not in municipal ownership, agreements on cooperation in the economic and social development of the Region; promotes the creation of enterprises of various forms of ownership in the area of ​​public services; - forms and places the municipal order; acts as a customer of works for the needs of the District using the District's own material and financial resources provided for this in the field of territorial planning, use of land and other natural resources, environmental protection; and ensures their implementation; - carries out planning and organization of rational use and protection of lands owned by the municipality of the Region; - provides and withdraws, including by way of redemption, in the manner prescribed by law, land plots in the Area; - informs the population about the environmental situation, informs the relevant authorities about the actions of enterprises, institutions, organizations that pose a threat to the environment and violate the legislation on nature management; - organizes inter-settlement activities for environmental protection; - organizes and carries out environmental control of industrial and social facilities in the Area, with the exception of facilities, the environmental control of which is carried out by federal executive authorities; - organizes the disposal and processing of household and industrial waste; - creates, develops and ensures the protection of medical and health-improving areas and resorts of local importance in the area in the field of construction, transport and communications - ensures the creation of conditions for housing construction in the area; - ensures the maintenance and construction of public roads between settlements, bridges and other transport engineering structures outside the boundaries of settlements within the boundaries of the Area, with the exception of public roads, bridges and other transport engineering structures of federal and republican significance; - creates conditions for the provision of transport services to the population and ensures the organization of transport services for the population between settlements within the boundaries of the Area through the creation of municipal transport organizations or the involvement of private and other transport enterprises and organizations in transport services to the population on a contractual basis; - approves or coordinates routes, traffic schedules, stops for public transport serving the population between settlements within the boundaries of the Area; - ensures the improvement of places reserved for public transport stops outside the boundaries of settlements within the boundaries of the Area; - creates conditions for providing settlements with communication services in the field of housing and communal, household, trade and other services - organizes electricity and gas supply to settlements within the boundaries of the Area; - cos

Personnel Policy Department The Executive Committee implements the following priority areas of personnel policy:

creation of a holistic personnel management strategy that defines a system of principles, rules, norms, methods focused on achieving the goals of local governments and the municipal authority of the municipality of Tetyushi (hereinafter referred to as local governments);

ensuring the process of optimal conservation, use and development of human resources to improve the efficiency of local governments through the use of effective personnel technologies.

The basic principles of personnel policy, which allow for a holistic, result-oriented, and flexible impact on all personnel processes in the organization:

the principle of legality and social security, which involves strict observance of laws and municipal legal acts in the construction and implementation of personnel policy;

the principle of consistency, according to which personnel policy is considered as an integral, dynamically developing system, covering all areas of personnel management and all categories of employees. This system is aimed at the formation and effective use of the personnel potential of local governments;

the principle of unity and equal opportunities, which affirms equal opportunities for representatives of all social, class, national groups in the selection, placement and rotation of personnel, as well as the use of uniform approaches to personnel management in all structural divisions of local governments, since the main criterion for evaluating an employee is his compliance with professionally important skills to the requirements of the workplace;

the principle of team unity, which determines the focus on employees who are ready to work in a team (a cohesive work team) to obtain a common result and who are able to coordinate their interests with the interests of the team;

the principle of complementarity of roles in the organization, which implies such a selection and placement of personnel in local governments so that the positive qualities of one employee are harmoniously complemented by the positive qualities of another, thereby creating a single efficient, competent and efficient management team.

The goal of the personnel policy of the Executive Committee is to create and develop an integral system of personnel management to ensure high-quality and prompt resolution of the tasks facing local governments through the maximum implementation of human resources.

The main tasks that are consistently solved in the course of the implementation of the personnel policy are:

formation of a highly professional staff through the system of personnel selection, personnel rotation, as well as the creation and replenishment of a database of personnel resources of local governments;

creation of optimal conditions for achieving compliance with the requirements of the workplace to new or changed circumstances of the social and labor environment through an adaptation system;

organization of events to stimulate employees in order to better solve problems by creating an effective motivation system;

creating conditions for strengthening executive discipline and increasing the responsibility of employees for the performance of their duties through a performance monitoring system;

increasing the level of professional competence of employees of local governments through a system of corporate training;

introduction of the norms of ethics of behavior of employees through the system of formation of corporate culture.

The structure of the staff of the Executive Committee of the Tetyushsky municipal district for the last 3 years is presented in table 2.1.2.

Table 2.1.2. Personnel structure 2012-2014

Name of indicators change 20122013% to 20122014% to 2013 Headcount Persons 908594.489104.7 Including: Men Persons 353188.634109.6 Women Persons 555498.255101.8 Average headcount Persons 858094.184105

In 2012, only 90 people worked in the Executive Committee of the Tetyushsky municipal district, the average number of employees was 85 people, since 3 people worked part-time, and 2 people were sent for off-duty training.

In 2013, the average number of employees was 85 people, which is five people less than in 2012. It was 80 people, which is five people less than in 2012. Since 4 people worked part-time, and 1 person was sent to break from production.

In 2014, the headcount was 89 people, which is 4 people more than in 2013. The average headcount was 84 people.

An increase in the number of personnel indirectly indicates the solvency of the organization.

Personnel categories rev.

From the above table 2.1.3 it can be seen that there is a fluctuation in the number.

In 2013, compared to 2012, the number decreased, but by 2014, there is an increase in the number. All these fluctuations are associated with staff turnover.

Table 2.1.4. Analysis of the social structure of personnel

Classification 201220132014- by education Higher Higher Higher-by gender: female65%65%65%Age: 21 to 60 years 22 to 60 years 23 to 60 years of experience 3 to 40 years 2 to 42 years 1 to 45 years

From Table 2.1.4 below, it can be seen that the main category of personnel is specialists with higher education, the age category is represented by employees aged 23 to 60 years, and by work experience - from 1 year to 45 years.

Figure 2.1.1 shows that:

% - managers;

% - chief specialists;

% - heads of departments.

% - managers;

% - chief specialists;

% - heads of departments.

Figure 2.1.3 shows that:

% - managers

% - chief specialists

% - heads of departments.

Of the number of employees in 2012, 10 people are young people over 30 years old, 80 people are over 40 years old, of which 10 women are over 50 years old and 15 men are over 55 years old. The organization employs 30 pensioners, including 17 men and 13 women. Of the pensioners, 10 managers, 19 specialists - all these are specialists with extensive work experience, with high qualifications. All employees in the organization have higher education.

Of those employed in 2013, 10 people are young people under the age of 30, 75 people are over 40, of which 10 are women over 50 and 15 men over 55. The organization employs 30 pensioners, including 16 men and 14 women. All of them are specialists with extensive experience, highly qualified and with a long track record. All municipal employees have higher education, which testifies to the high qualification of employees.

Of the employees in 2014, 12 people are young people under the age of 30, 77 people are over 40 years of age, of which 12 are women over 50 and 16 men are over 55 years of age. The organization employs 32 pensioners, including 17 men and 15 women. All of them have extensive experience and good skills in this area. All municipal employees have higher education, which indicates high knowledge and professional skills.

The level of education of the employees of the Executive Committee of the Tetyushsky municipal district is shown in Figure 2.1.4.

Rice. 2.1.4. The level of education of the employees of the Executive Committee of the Tetyushsky municipal district

According to Figure 2.1.4, the percentage of higher education among specialists is lower than that of department heads and their deputies. Thus, the category “chief specialists” is represented by the following structure: 97.4% with higher education, 1 person or 2.6% with incomplete higher education. The category "leading specialists" has the following structure: 86.67% with higher education, 6.665% with incomplete higher education, and 6.665% with secondary specialized education. Among specialists of the 1st category, the educational level is lower: only 66.67% have higher education, and 33.23% of employees have only secondary specialized education.

The rather high proportion of workers with higher education in the category of “chief specialists” compared to other categories is explained by the fact that higher requirements are imposed by law on higher positions, therefore, among employees of lower positions, we observe a significant decline in specialists with higher education.

In total, for the Executive Committee of the Tetyushsky municipal district, the share of employees with higher education is 93.42% (71 people), with incomplete higher education 2.63 percent (2 people), and with secondary special education 3.95 (3 people).

In the course of the study, an analysis of human resources was carried out by age composition and length of service.

According to the age composition of the employees of the Executive Committee of the Tetyushsky municipal district, the following results were obtained: more than half of the employees, namely 52.64 percent, are people under 30 years old. Employees aged 30 to 40 make up 13.16%, 40 to 50 - 26.32%, and over 50 only 7.88 percent.

According to the length of service in this organization, the following zones were identified: - work experience up to 5 years - "Renewal"; - work experience from 5 to 15 years - "Maturity"; - over 15 years - "Aging".

In general, for the Executive Committee of the Tetyushsky municipal district, the age structure of the entire contingent of employees was: "Renewal" - 65.8%, "Maturity" - 19.74 percent, "Aging" - 14.47%. For further forecasting and management of staffing needs, the ratio of these groups relative to the group of workers with experience from 5 to 15 years was determined as the most effective and pivotal for the activities of enterprises. For the group of employees as a whole, this ratio was 3.3 - 1.0 - 0.7 in 2014.

It follows from the obtained ratios that in relation to the "Maturity" group, the "renewal" group is significantly (3.3 times) larger - 64.49% and is almost equal in size to the "mature workers" group "aging".

This trend is good because there are few people of pre-retirement age in the Executive Committee of the Tetyushsky municipal district, that is, it will not face the problem of a mass retirement of workers.

In the categories of “specialists”, the distributions are different, but the general trend towards the predominance of young employees remains, that is, it can be said with confidence that specialists of the “Renovation” stage predominate in the structure of employees of the Executive Committee of the Tetyushsky municipal district.

In general, the obtained ratios, both general and by category, indicate the predominance of young workers, and an insufficient layer of mature workers who have sufficient experience in this industry (this is largely due to their outflow to work in more prestigious and highly paid jobs, after they have gained the necessary experience).

Table 2.1.5. Distribution of specialists by length of service

Chief SpecialistsLeading SpecialistsSpecialists of the 1st category"Renewal"77.1%66.7%100%"Maturity"14.3%20%"Aging"8.6%13.3%

A large number of new employees (who have worked for less than 5 years) may indicate that there are some shortcomings in the organization's activities: low wages, lack of knowledge necessary to perform the work.

We will analyze the compliance of the existing professional education of municipal employees with the requirements of paragraph 3 of Art. 8 of the Law of the Republic of Tatarstan "On Municipal Service in the Republic of Tatarstan", according to which the highest, main and leading municipal positions can be occupied by persons with higher professional education corresponding to the direction of activity, employees for senior and junior municipal positions must have secondary vocational education in the required specialization ( specialty) or education that is considered equivalent.

Profile education will be considered education in the specialty "State and municipal management". In general, at the time of the study, only 6 people have specialized education, which is only 3.95%. That is, most of the employees of the Executive Committee of the Tetyushsky municipal district do not work in their specialty.

The distribution of municipal employees with higher professional education by areas of training (specialization) is shown in Figure 2.1.5.

Rice. 2.1.5. Profile of education of employees of the Executive Committee of the Tetyushsky municipal district

This figure clearly shows that 25 percent of employees are engineers by profession (19 people); 21.06 percent of employees (16 people) have an economic education, humanitarian (including pedagogical) - 12 people, i.e. 15, 79; legal - 14, 48 (11 people); 1 doctor (1.31%); 1 specialist in agriculture and 10 others (13.16%).

According to the data presented, the proportion of municipal employees who are graduates in the fields of "jurisprudence", "state and municipal administration" is insufficient and inadequate to the modern tasks solved by the municipal service.

Great importance is attached to the personnel component in local self-government bodies. Therefore, it should be included in the estimated indicators and constantly monitored to make the necessary adjustments and introduce control actions.

In general, when studying the personnel potential of municipal employees of the Executive Committee of the Tetyushsky municipal district, the following conclusions were made.

2.2 Study of the organizational structure of the Executive Committee of the Tetyushsky municipal district of Tetyushi

In this paragraph, we will analyze the organizational structure of the Executive Committee of the Tetyushsky municipal district of the city of Tetyushi.

The main purpose of the analysis of any organizational structure of the Executive Committee of the Tetyushsky municipal district of Tetyushi is the analysis of the economic and managerial efficiency of this structure.

Main tasks:

determine the type of organizational structure, its advantages and disadvantages for a given municipality;

analyze the distribution of functions between departments;

analyze the compliance of powers with the functions performed.

As a result, it is expected to get a complete picture that reflects the organizational structure, functions and goals of each unit, identify possible problems and develop ways to solve them.

The analysis consists of two stages:

stage. Determining the type of organizational structure.

stage. Direct analysis of the organizational structure.

Stage 1. At this stage, it is necessary to determine the type of organizational structure - as can be seen from the diagram in Figure 2.2.1, the organizational structure of the Executive Committee of the Tetyushsky municipal district of Tetyushi belongs to the linear-functional type. In this regard, it can be said that, on the one hand, the workload is distributed evenly and is insignificant for the head of the Executive Committee, the units perform specific functions in their field of activity, but on the other hand, the responsibility for decisions made is not always sufficiently accurately defined, conflicts between units are possible for the use of public funds. It should also be noted that only a small part of the departments participates in the formation of the revenue side of the budget (CUMI), while the rest can be considered only cost centers.

Stage 2. At this stage, it is necessary to consider each unit separately, analyze its functions from the point of view of the functional approach and the powers available for their execution. With regard to this example, it can be noted that:

The divisions perform a wide range of functions within their competence;

units have the necessary powers to perform their functions;

each division is responsible within its competence;

the number of employees varies greatly from department to department - some departments need additional staff, while others may need to reduce the number of staff.

Consider the goals facing the Executive Committee of the Tetyushsky municipal district of Tetyushi and its subdivisions, make a tree of goals, it is presented in Appendix 2.

Based on the analysis carried out, the following conclusions can be drawn:

the main goal of the Executive Committee of the Tetyushsky municipal district of Tetyushi can be divided into three main areas: economic development, socio-cultural development of the municipality and the effective functioning of the Executive Committee;

within each direction there are specialized divisions;

each unit has specific goals, groups of goals and sub-goals;

each division has sufficient powers to achieve its goals.

Not all units are located in accordance with their tasks. Moreover, there is no unit responsible for health development.

Some subdivisions of the Executive Committee of the Tetyushsky municipal district of Tetyushi are separate legal entities and have a significant staff in comparison with other departments. Let's take a closer look at these divisions.

The Department of Education also includes the Economic Department of the District Department of Education - a total of 10 employees.

These divisions are separated into separate legal entities with one goal - to be able to independently represent their interests, however, as legal entities, they need an accountant. In addition, in the staff of each such division (except KUMI) there is an information technology specialist, which is not necessary, since the structure of the Executive Committee has an Information Technology Department, whose responsibilities include maintenance of workstations and software.

Consider the structure of the Executive Committee of the Tetyushsky municipal district in terms of performance. We single out units that are able to generate income for the municipal budget, and units that only spend budget funds. If you look closely at the structure of the Executive Committee of the municipal formation Tetyushsky municipal district, it is clear that only KUMI can bring income to the municipal budget, since this unit is engaged in the management of municipal property, i.e. leasing, privatization, sale, etc. e. The rest of the units, due to the specifics of their activities, cannot contribute to the formation of budget revenues (Department of Culture, Department of Education, etc.), or are engaged in the redistribution of budgetary funds (Department of Finance).

Now we will analyze the Executive Committee of the Tetyushsky municipal district on the main elements of building an organization (centralization, departmentalization, distribution of labor, the scale of manageability, hierarchy, levels of management).

Centralization. This structure of the organization is centralized, since there is a concentration of the rights to make key decisions, the concentration of power at the top level of management.

Departmentalization. Functional departmentalization is clearly visible in the Executive Committee, specialized works are grouped around resources. So, the financial and economic department manages money, the archive manages documents, KUMI manages municipal property, etc.

The distribution of labor. The division of work occurs according to the levels of the hierarchy, both in general and in separate parts, i.e. vertical specialization. Work in the Executive Committee does not represent a staged division of work, due to the fact that there is no end product.

control scale. In this case, at the highest levels of management, there is a wide range of controllability. So, the head of the district has 7 people in direct subordination (three of them are deputies and four heads of departments); the first deputy head subordinate to 5 heads of departments. At lower levels, the scale of manageability is much smaller, averaging 3-4 people. For example, in subordination to the chief architect of the district, 2 leading specialists and one chief specialist are subordinate.

Hierarchy. Top managers in the District Executive Committee include: the head of the district and his first deputy. Middle managers include other deputy heads of the district and heads of departments that are directly subordinate to the head of the district and his first deputy, for example, the head of the financial and economic department and the deputy head of the district for life support. The lower-level managers include the heads of departments who are subordinate to the deputy heads of the district: the head of the economic department, the chief architect of the district, the head of the culture department, etc.

Management levels. There are 4 levels of management in the Executive Committee. The first is the interaction of the head of the district and employees directly subordinate to him (the first deputy, the head of the department for managing affairs, etc.). The second level is the interaction of the first deputy and the leaders subordinate to him (deputy head for social issues, chairman of KUMI, etc.). The third level is the interaction of the deputy heads of the district and the heads of departments reporting to them (for example, the chairman of the KUMI and the head of the department of property relations). And the fourth level is the interaction of department heads and specialists of these departments.

Based on the second point, the following conclusions can be drawn. An analysis of the organizational structure of the Executive Committee showed that it belongs to the mechanistic type of structures and is linear-functional. The head of the Executive Committee is the leader, who exercises general leadership. The Council of Deputies of the District Executive Committee controls and directs the activities of the Executive Committee. The subdivisions that have the status of a legal entity have a complex structure that needs to be reviewed.

The main problems identified as a result of the analysis of the organizational structure of the municipality of the Tetyushsky district is the lack of a unit responsible for the development of healthcare. Also, the organizational structure is irrational, because some of the units are not located in their field of activity.

3. Development of proposals for improving the organizational structure of the executive committee of the Tetyushsky municipal district of Tetyushi

In order to resolve the problems indicated in the second subsection, the following recommendations can be applied:

the structure of the Executive Committee should be transformed in such a way that each subdivision is located in its own area of ​​responsibility - this facilitates the work of the Deputy Head of the Executive Committee, does not overload him with unnecessary tasks;

it is necessary to create a unit responsible for the development of health care;

it is necessary to reconsider the structure of the subdivisions deduced into separate legal entities.

Improving the organizational structure of management takes the form of a search for an alternative solution between the centralization and decentralization of power functions. The desire to find an acceptable agreement between centralized and decentralized management leads to the need to create such a management system, which is characterized by a centralized development of enterprise improvement and economic policy with decentralized operational management.

An acceptable model for the Executive Committee of the Tetyushsky district at present could be a scheme of the organizational structure of management using the concept of strategic business units. The organizational structure of management is based on the model of a diversified organization focused on strategic management. This approach assumes the decentralization of the management of organizations.

The scheme of the new organizational structure of the Executive Committee of the Tetyushsky municipal district is presented in Appendix 2.

The application of this model will solve the following problems:

Create a modern organizational management structure that adequately and promptly responds to changes in the external environment.

Implement a strategic management system that contributes to the effective operation of the organization in the long term.

Release the management of the association from daily routine work related to the operational management of the research and production complex.

Increase the efficiency of decisions made.

The top level of management in this model can be represented by a typical management structure or other organizational and legal form. With the transition to a new management structure, the functions of top management change significantly. Gradually, it is freed from the operational management of subdivisions and focuses on the problems of strategic management of the economy and finances of the association as a whole.

A feature of this organizational structure is the allocation of strategic business units within the organization and giving individual production and functional units the status of profit centers. These subdivisions represent a direction or a group of directions of scientific, industrial and economic activity with a clearly defined specialization, their competitors, markets. Each independent unit must have its own purpose, comparatively independent of the others.

An independent business unit can be a branch, a branch, a group of shops or a separate shop, that is, it can be located at any level of the hierarchical structure. Responsibility for each direction rests with one manager - the director. The director is responsible for the strategy, he must be ready to defend, within his powers, interests in the field of technology, production, capital investments. At the same time, when distributing resources between various independent units, the plan of each of them should be specified in order to balance the interests of the organization as a whole.

In our model of the organizational structure of management, independent business units represent the middle level of power through which strategic management is implemented, at the lower level of management there are profit centers created on the basis of production and functional divisions of the organization. Operational management of production is realized through these centers. All centers can be divided into two groups: those included and not included in the independent economic units.

Profit centers included in the composition of independent divisions should be structural divisions by redistribution (workshops, sections, functional services) closely interconnected in the technological chain in one of the main areas of activity. From this group, it is possible to single out separate legally independent entities.

Centers that are not part of independent business units can be divided into two groups:

-subsidiaries of an organization with legal independence;

-subdivisions directly subordinate to the management of the organization, operating on a cost-benefit basis.

Transformation into legally independent organizations is advisable in relation to subdivisions that have a relatively separate technological process, can be separated territorially and property without prejudice to the main organization. And if they are able to ensure their activities on the terms of commercial calculation and self-financing.

In the direct subordination of the organization, it is advisable to keep the units whose activities are vital to ensure the normal functioning of the organization as a whole.

The proposed way to improve the organizational and management structure will allow the District Executive Committee to increase management flexibility, quickly respond to changes in demand and other environmental factors, increase employee interest in entrepreneurial activities, and save jobs.

Assessing possible ways to improve the organizational structure, we can focus on one more structure. Here it is important to take into account the fact that the development of a new or improvement of the old organizational structure of the management of the Executive Committee of the Tetyushsky district must be carried out taking into account the essential principles of this type of organization. As the main principles in the development of the management structure, we take the following provisions:

Purposefulness of activities of municipal employees of the Executive Committee. To implement this principle, it is necessary to determine the strategic goal, decompose it into the goals of a lower level of management, determine the target functions, as well as the responsibility and authority of the leaders of these levels of management in achieving the goals.

Balance of interests and responsibilities of the main participants in the socio-economic development of the region. This involves matching the benefits and obligations of the participants, while achieving both general and individual goals.

The principle of "50/50": this should be the ratio of the working time of managers at various levels to perform the function of reproduction and the function of developing their management object. This requires a clear organization, regulation and planning of all aspects of the activities of the Executive Committee and its divisions.

Focus on innovative development. According to this principle, the activities of the employees of the Executive Committee should be aimed at a systematic search and organization of the implementation of the results of scientific and technological progress in their areas of activity.

Result orientation. It means checking the functions, actions of the employees of the Executive Committee according to the criterion of improving the welfare and quality of life of the population of the district.

When improving the organizational structure of the management of the Executive Committee of the Tetyushsky district, it is important to have the right balance of powers and responsibilities, a clear regulation of the activities of managers and executors. Let's carry out the distribution of management decisions by levels, because this is the most important and responsible part of improving the structure.

First of all, consider the top level of control. It is recommended to make the first deputy head of the Executive Committee of the district directly subordinate to the head of the Executive Committee of the district, and not through the council of the Executive Committee, as it is now. This will allow the head of the Executive Committee of the district to directly exercise control and more quickly receive all the necessary information about the status of the most important areas of activity of the Executive Committee. Thus, the head of the Executive Committee of the district will be able to quickly manage the activities of the Executive Committee and make vital decisions, which greatly increases its flexibility to the effects of the external environment.

It is proposed to abolish the post of Deputy Territorial Security Officer and instead create a functional security unit, such as the Security Service. This unit will combine the entire security complex and will report directly to the head of the Executive Committee of the district, which will allow him to more quickly resolve security issues.

It can be proposed to introduce the position of Deputy Head of the Executive Committee for Financial and Economic Activities, to whom it is recommended to transfer the functions of the financial and economic management department, which will be subordinate to the economic, budget and accounting departments. This transformation is necessary for two reasons:

1)this will make it possible to relieve the first deputy head of the Executive Committee of the district, leaving at his disposal, mainly, industrial and property issues;

2)this will distinguish between financial and economic activities, as well as significantly increase the role of financial and economic issues in the management of the Executive Committee by moving them up the hierarchical ladder.

Thus, a more flexible structure for managing the production and financial complexes will be created.

For the proposed organizational structure of the Executive Committee of the Tetyushsky municipal district of Tetyushi, we calculate the coefficient of efficiency of the organizational management structure:

1.The coefficient of efficiency of the organizational structure of management:

TO E = P P/G At , (3.1)

where R P - the final result (effect) obtained from the functioning of the organizational management structure; W At - management costs (wage fund, expenses for the maintenance of premises, purchase and repair of office equipment, reception and transmission of management information).

Q1 2015

TO E \u003d 98309.91 / 213717.27 \u003d 0.46

2. Link ratio:

TO SW = P ZVF /P ZVO , (3.2)

where P ZVF - the number of links in the existing organizational structure; P ZVO - the optimal number of links in the organizational structure.

KZV = 6/8 = 0,75

Thus, the implementation of the considered proposals for improving the management structure of the Executive Committee of the Tetyushsky municipal district will allow it to more successfully organize its activities through a rational combination of centralization and decentralization, through the effective distribution of responsibilities, powers and roles between structural units and their heads, as well as through taking into account specific principles and the use of modern methods of building organizational structures.

3.2 Legal support of the organizational structure of the Executive Committee of the Tetyushsky municipal district of Tetyushi

The development of the organizational structure of the Executive Committee of the Tetyushsky municipal district would not make much sense if it were not presented in the form of appropriate legal support, i.e., the formation of the organizational structure should end with the development of a draft regulatory document. The most common such documents are the Code of Ethics, the Corporate Code, the Code of Corporate Culture, the Code of Conduct, etc.

The main regulatory document, which is designed to resolve all issues and has a certain legal significance, is the Code of Employee Conduct, since corporate culture cannot develop without purposeful, systematic and scientifically based assistance.

The Code of Organizational Conduct (hereinafter referred to as the Code) is a set of ethical principles and moral norms on which the professional activities of municipal employees of the Executive Committee of the Tetyushsky municipal district are built.

Employees of the Executive Committee of the Tetyushsky municipal district observe ethical principles in all aspects of their activities.

The Code defines uniform standards of conduct in the Executive Committee of the Tetyushsky municipal district, moral norms that should be followed by a municipal employee in the performance of official duties established by labor contracts concluded with them.

The Executive Committee of the Tetyushsky municipal district is guided by the following ethical principles:

·honesty;

· a responsibility;

·Justice;

·transparency;

· compliance with the law;

· observance of human rights;

· mutually beneficial cooperation;

· respect for the local population;

· respect for the environment.

The Executive Committee of the Tetyushsky municipal district expects that its partners will also comply with these principles.

The ethical standards of the Executive Committee of the Tetyushsky Municipal District regulate the following main areas of relations: relations with employees, customers, business partners, government agencies and the public. These ethical standards also apply to all areas of activity of the Executive Committee of the Tetyushsky municipal district, both on the territory of the Republic of Tatarstan and abroad.

The main wealth of the Executive Committee of the Tetyushsky municipal district is the knowledge and skills of employees.

· The Executive Committee of the Tetyushsky municipal district regards human life as the highest value.

· The Executive Committee of the Tetyushsky municipal district recognizes the labor rights of workers as an integral part of human rights. In its activities, the Executive Committee of the Tetyushsky Municipal District observes the rights of employees in the field of labor established by law, recognizes the right of an employee to a decent remuneration for the results of work, helps prevent any form of discrimination and forced labor, supports their participation in resolving fundamental issues of development of the Executive Committee of the Tetyushsky Municipal District.

· The Executive Committee of the Tetyushsky Municipal District recognizes employees as the most important asset and promotes the disclosure of professional and personal abilities, empowers employees through personnel development, creates conditions for professional and career growth, training, maintaining efficiency, and creating incentives for efficient work.

· The Executive Committee of the Tetyushsky municipal district encourages the labor traditions of the team, labor dynasties that contribute to the retention of personnel, increase discipline and productivity, and the effectiveness of educational work in the team.

Ethical standards of behavior of a municipal employee

An employee of the Executive Committee of the Tetyushsky municipal district seeks to acquire and demonstrate the following qualities:

· commitment to the goals of the Executive Committee of the Tetyushsky municipal district a;

· the ability to interact with colleagues on the basis of the principles of mutual assistance, humanism, recognition of the value of a person as a person, his right to freedom, development and manifestation of his abilities;

· the desire to solve problems honestly, objectively and without conflict;

· respect for the traditions of the Executive Committee of the Tetyushsky municipal district, its veterans;

· willingness and ability to transfer their knowledge and experience to young employees of the Executive Committee of the Tetyushsky municipal district, the desire to assist their colleagues in improving their professional level;

· respect for the traditions and way of life in the locations of the structural subdivisions of the Executive Committee of the Tetyushsky municipal district, the desire to help people in difficult life situations.

Municipal employees of the Executive Committee of the Tetyushsky municipal district adhere to the following ethical standards in their actions and decisions:

· Honesty and integrity in the performance of official duties. The employee refuses to receive improper benefits (receipt of gifts, rewards, benefits, advantages, etc. from third parties) for the performance of his official duties.

· Correct behaviour. An employee of the Executive Committee of the Tetyushsky municipal district is friendly and polite in communication and does not allow tactless actions and statements that degrade the dignity of a person.

· Loyalty. The Executive Committee of the Tetyushsky municipal district considers it unacceptable to discriminate against people on such grounds as: race, religion, gender, age, nationality, disability, party affiliation, social origin, language and property status.

· Discipline and responsibility. The fulfillment by the employee of his duties should be an internal need, and the fulfillment of the obligations assumed - the rule without exceptions and references to external circumstances.

Actions that are unacceptable in the behavior of employees of the Executive Committee of the Tetyushsky municipal district.

Forbidden:

· Be under the influence of alcohol or drugs;

· Smoking is not in specially designated areas;

· Use the property of the Executive Committee of the Tetyushsky municipal district for personal purposes. Theft is unacceptable in any form.

Additional Ethics for Leaders

Managers are responsible for organizing the effective work of their employees and are the benchmark for standards of conduct.

The work of the leader additionally requires compliance with the following standards:

· constant search and use of new opportunities to improve the efficiency of the subordinate unit;

· promptly informing employees of a subordinate unit about the adopted activity plans, development directions of the Executive Committee of the Tetyushsky municipal district, and the results of activities;

· providing all subordinate employees with equal opportunities to realize their potential in the course of their work;

· support for a transparent system of motivating employees, taking into account both the results of the work of the Executive Committee of the Tetyushsky municipal district, and the individual contribution of the employee to their achievement;

· exclusion from management practice of intimidation, aggression and unreasonable, illegal and unfair decisions;

· creating a work environment that promotes compliance with this Code. Ensuring under his leadership the participation of employees in the activities implemented by the Executive Committee of the Tetyushsky municipal district, aimed at studying and observing the provisions of the Code.

Conflict of interest

Conflicts of interest may damage the objectivity of judgments and opinions of employees and officials of the Executive Committee of the Tetyushsky municipal district. The Executive Committee of the Tetyushsky Municipal District strives to avoid any conflicts of interest. If such conflicts cannot be avoided, employees and officials should report this to their superiors and should not participate in decision-making on relevant issues.

Confidential information

Information openness for an employee implies the following principle: to say no more than what is asked.

The Executive Committee of the Tetyushsky Municipal District prohibits all officials and employees from using confidential information and has developed a detailed procedure to prevent insider transactions and leakage of insider information.

The circle of employees who have the right to communicate with the media is limited. Only authorized persons may make official comments to the press.

Implementation of the Code

Fulfillment of the terms of this Code is the responsibility of employees, about which an appropriate entry is made in the employment contract concluded between the employee and the Executive Committee of the Tetyushsky municipal district. Each employee, upon hiring, should be given the opportunity to familiarize himself with the text of the Code.

Each municipal employee must be prepared to independently stop the violation of which he became aware.

If a municipal employee does not have the opportunity to stop the violation of this Code on his own, he can inform his immediate supervisor or authorized persons about the fact of the violation.

Such reporting is morally acceptable if more than one of the following conditions is met:

· if the violation of ethical standards causes serious damage to the employee / employees or the Executive Committee of the Tetyushsky municipal district;

· if the whistleblower is genuinely seeking to prevent or stop the harm, rather than taking advantage of the situation for personal gain;

· if the information about the violation is true

If an employee has questions about the correct behavior in situations regulated by these standards, or he is faced with a situation related to violation of the standards, the employee can contact:

· to your immediate supervisor;

· to the department of personnel management;

· to the head of the Executive Committee of the Tetyushsky municipal district.

Thus, a properly developed Code of Corporate Conduct for Municipal Employees will become an indispensable assistant to managers at all levels, improve the moral and psychological climate in the team and help new employees quickly adapt to the corporate culture of the Executive Committee of the Tetyushsky Municipal District. In addition, any attempt to formulate the basic principles of the culture of the organization will create a basis for its further improvement. The next steps may be, for example, more detailed recommendations on the behavior of certain groups of employees, or the development of the Code in terms of the behavior of the entire organization as a whole in relation to the external environment.

Conclusion

At the end of the thesis, the following conclusions can be drawn.

Firstly, any state carries out its various activities through state bodies, each of which is part of the state apparatus. It is customary to call them a set of bodies, institutions and organizations exercising state power in society. The apparatus of the state is not a mechanical combination of its organs, but an ordered, organized, integral system. The meaning of this orderliness lies, first of all, in the fact that each body of the state performs well-defined administrative functions, has its own field of responsibility. A state body is a part of the state apparatus, endowed with state powers and exercising its competence in the manner prescribed by it. In modern society, the nature of the functions of state bodies is determined by the constitution and other legislative acts.

The organization and activities of the state apparatus are directly carried out on the basis of a number of principles, which are understood as guiding ideas, the principles underlying its creation and functioning, and manifested both in the activities of the state apparatus as a whole and in its separate parts, structurally separate units. Most of these principles are enshrined in the Constitution of the country, or in other laws and regulations, where they can be developed and supplemented.

In a constitutional state, the principle of separation of powers is implemented, state bodies belonging to different branches of government exercise their powers independently, interacting with each other and balancing each other.

The federal structure of the state involves the allocation of state bodies of the Russian Federation and state bodies of the subjects of the Federation. State bodies can be divided into those elected by citizens and formed by other state bodies (the prosecutor's office, courts), they are individual and collective.

Thus, the modern civil service of the Russian Federation is a legal matter that is in constant motion: it changes, is supplemented, new tools are being searched for in resolving existing problems, new regulations are being developed that regulate public service relations.

Secondly, the organizational structure is the most important factor in the activity of the state authority of the constituent entity of the Russian Federation, the form in which the process of state administration is implemented. The organizational structure is understood as the composition and subordination of interrelated organizational units (individual positions), links (management units) and steps (levels) endowed with certain rights and responsibilities to perform the relevant target management functions.

The principles of building organizational structures can be refined, and the forms and methods of using these principles can change due to changing external conditions, goals and objectives. However, the basic principles must be observed, as they express general requirements for the organization of public administration.

The organizational structure of the state authorities of the subject of the Russian Federation is based on the principles of unity of command and hierarchical subordination. The process of forming the organizational structure of state authorities of a constituent entity of the Russian Federation includes the formulation of goals, objectives and functions, determining the composition and location of units, their resource support (including the number of employees), the development of appropriate regulatory procedures and documents.

Real public administration systems are distinguished by a wide variety of organizational structures. But at the same time, there are general approaches to building organizational structures. The most promising is a system-targeted approach with a focus on the final results of the system. The definition of a system of goals (“tree of goals”) and tasks of a particular municipality is the main guideline for the formation of its organizational structure. When forming an organizational structure based on the "tree of goals", it is necessary to decompose the goals and objectives of public administration to specific management functions.

Thus, with a system-targeted approach, real conditions are created for individualizing the process of forming an organizational structure in relation to the characteristics of a particular municipality.

The system-targeted approach in this case is that, based on the ultimate goals of managing the subject of the federation:

do not lose sight of any of the management tasks, without which the implementation of the goals will be incomplete;

identify and link in relation to these tasks a system of functions, rights and responsibilities along the vertical of management;

explore and institutionalize connections and relationships along the horizontal of management, i.e., to coordinate the activities of different links and organizational units in the performance of common tasks;

to ensure an organic combination of vertical and horizontal management, to find the optimal ratio of centralization and decentralization in decision-making for these conditions.

Thirdly, the variety of current private tasks and goals of municipal government inevitably gives rise to contradictions between them, due primarily to the limited material and financial resources. Each division is aimed at solving its own problem and seeks to obtain the maximum resources for this. In this case, the entire control system often works inefficiently.

Fuzziness of the system of functional links between individual structural units, duplication of functions, uneven workload of employees, lack of clear organizational procedures by which units interact with each other.

As a result, the bulk of the work falls on the shoulders of the head of the Executive Committee, who has to deal with many coordination issues.

A mixture of managerial functions and direct economic activity. Many structural divisions of the Executive Committee, being legal entities, provide various paid services and earn money for their existence, that is, they are essentially engaged in commercial activities. This business is risk-free, since it is conducted on the basis of municipal property, for the effective use of which there is no proper supervision. For this reason, some administrations from municipal governments began to turn into financial and industrial groups by type of activity.

In general, when studying the personnel potential of employees of the Executive Committee, the following conclusions were made.

An analysis of the structure and number of employees of the Executive Committee of the Tetyushsky municipal district made it possible to identify the following personnel situation:

1. In general, for the Executive Committee of the Tetyushsky municipal district, 93.42% of municipal employees have higher education, 2.637% - incomplete higher education, 3.95 - secondary special
2. In the areas (specialization) of higher professional education, 25% of municipal employees are engineers by profession, 21.06% have economic education, 15.79% - humanitarian, 14.48% legal, 15.78% have other specialties (of which 1, 31% doctor, 1.31% agricultural specialist, etc.).

In the course of getting acquainted with the work of the Executive Committee, one of the important personnel problems seems to us to be the imperfection of personnel structures.

Fifthly, the analysis of the organizational structure of the Executive Committee showed that it belongs to the mechanistic type of structures and is linear-functional. The Executive Committee is led by the head of the Executive Committee, who exercises general leadership. The Council of Deputies of the District Administration supervises and directs the activities of the Executive Committee.

The main problems identified as a result of the analysis of the organizational structure of the Executive Committee can be summarized as follows:

the organizational structure is irrational, because some of the units are not located in their field of activity: the Information Technology Department is located in the field of economic development, although it should be attributed to the area of ​​effective functioning of the Executive Committee; the Department of Physical Culture, Sports and Youth Affairs and the Commission on Juvenile Affairs in the area of ​​the effective functioning of the Executive Committee, while they should be attributed to the area of ​​socio-cultural development;

there is no unit responsible for the development of health care;

only one department within the Executive Committee can contribute to an increase in the revenue side of the budget;

entities that have legal personality have a complex structure that needs to be reviewed.

Sixth, in general terms, the proposed transformations of the organizational structure boil down to its restructuring in the direction of reducing the number of management levels, overcoming the workload of top management managers, clearly delimiting the functions and responsibilities of departments, preventing duplication of authority, as well as optimizing the functioning of the structure and accelerating the communication flow between higher and lower divisions of the Executive Committee. As a result, this led to significant changes in the vertical of management, new divisions and positions appeared, for example, the position of Deputy Head for Financial and Economic Management was introduced. At the same time, some of the existing units and positions were abolished, for example, the position of Deputy Head for Security and Civil Defense was abolished, and his duties were transferred to the head of the organized department of the security service.

In general, it should be noted that the directions for improving the organizational structure of the Executive Committee should be based on the strategic plans being developed, taking into account the upcoming changes in the socio-economic and economic orientation of the region in the coming years.

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Tags: Research and improvement of the organizational structure of public authorities of the constituent entities of the Russian Federation and local governments Diploma Management