Improving the organizational structure of the municipal entity management. Thesis: Analysis and improvement of the local government system on the example of the Vasilievsky municipal district. Organizational structure of the Akhtuba rural population

The object of study is the mayor's office of the city of Yaroslavl. The subject of study is the organizational structure of the mayor's office of the city of Yaroslavl. The type of the municipality predetermines the list of issues of local importance from which the powers of the administration are formed

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INTRODUCTION ……………………………………………………………………… 7

1.1 Status and powers of local self-government bodies of the urban district …………………………………………………………………………… .10
1.2 Features of the organizational structures of management of the municipal entity in Russia and abroad ..................... 21
1.3 Algorithm for the analysis of the current organizational structure of the management of the municipal entity ............................................................. 27
CHAPTER 2 ANALYSIS AND ASSESSMENT OF THE ORGANIZATIONAL STRUCTURE OF MANAGEMENT OF MUNICIPAL EDUCATION IN THE CHELYABINSK CITY DISTRICT
2.1 Analysis of the organizational structure, composition and powers of local self-government bodies in the Chelyabinsk urban district ………………… ... 41
2.2 Analysis of the organizational structure and organization of activities of the representative body of local self-government ………………………… ... 42
2.3 Analysis of the organizational structure and organization of activities of the executive body of local self-government …………………………… ..48
2.4 Analysis of performance and efficiency indicators of local government bodies .............................................................. 63
2.5 Identification of problems of functioning of the current organizational structure of management of the municipal formation ...
CHAPTER 3 DEVELOPMENT OF RECOMMENDATIONS FOR IMPROVING THE ORGANIZATIONAL STRUCTURE OF MANAGEMENT OF MUNICIPAL EDUCATION IN THE CHELYABINSK CITY DISTRICT
3.1 Recommendations for improving the organizational structure of municipal entity management in the Chelyabinsk urban district ……………………………………………………………………………… ..79
3.2 Evaluation of the effectiveness of measures to improve the organizational structure of management of a municipal entity …………………………………………………………………………………………………………………………………………………………………………………… 98
CONCLUSION …………………………………………………………………… 100
REFERENCES ……………………………………………… 101
ANNEXES
APPENDIX A. STRUCTURE OF ISG BODIES ......................................................... 105
APPENDIX B. ORGANIZATIONAL STRUCTURE OF THE CITY DUMA OF THE CITY OF CHELYABINSK ... ........................................ ............................ 106
APPENDIX B. STRUCTURE OF THE CITY ADMINISTRATION ..................... ... 107

INTRODUCTION

Municipal governance is a relatively new phenomenon in modern Russia. As a special type of government, as a scientific discipline and as an area of ​​practical activity, municipal government appeared in the country only in the 90s of the XX century, along with the revival of local self-government. According to the Russian Constitution, local government bodies are not part of the system of government bodies. Because of this, municipal government has its own specifics, which distinguishes it from other types of management activities, including public administration.
The system of municipal government, like the entire system of local self-government, is at the stage of formation in modern Russia.
The economic and financial resources of local self-government are insufficient and do not ensure the satisfaction of the basic living needs of the population. The practical experience of organizing local self-government, especially at the grassroots, settlement level, is extremely small. In view of all of the above, the municipal authorities are in dire need of qualified personnel who can effectively manage municipal property, finance, municipal enterprises and institutions, urban facilities and social sphere in a market environment, develop and implement local development programs, involve business structures in this work, public associations, all segments of the population, skillfully interact with government bodies. The training of such personnel requires serious work, including the release of educational literature.
The object of municipal management is the organizational structure of the management of the municipality. The subject is the population of the municipality, united by common interests in solving local problems of life support and development - the local community, as well as local self-government bodies elected by residents and acting on their behalf.
The subject of municipal management is a methodology for analyzing and optimizing the organizational structures of management of a municipal formation.
Municipal government is closely related to the public administration system. Almost all government decisions concerning the interests of citizens, in one way or another, go through local authorities, which can become either an obstacle to the implementation of public policy, or its powerful catalyst. Consequently, not only municipal, but also civil servants must understand the system of municipal government. In many areas of activity, the tasks of state and municipal policy are closely interrelated. The term "urban governance" has spread in the literature as a general one, since in many countries only cities are considered municipalities, and for rural self-governing territories there are other names. In this context, city government is equal to municipal government. However, in Russia, municipalities are not only cities, but also rural settlements, administrative districts and other territories. Considering that municipal governance in urban and rural areas has significant differences, certain problems of municipal governance are presented in the textbook mainly in relation to urban governance, and consideration of the features of municipal governance in rural areas is highlighted in a separate chapter.
In a scientific sense, municipal government can be viewed as an integral part of the general science of management in complex socio-economic systems and, at the same time, as an integral part of municipal science - of local self-government. It is a complex science that includes elements of a number of disciplines: economics, law, political science, sociology, demography, management theory and many others. This reflects the multifaceted nature of the municipal activities themselves.

The main purpose of the diploma is to develop recommendations for improving the organizational structure of the management of the municipal formation in the Chelyabinsk urban district.
In accordance with the set goal, the tasks of the thesis are:
1. To get acquainted with the status and powers of local self-government bodies of the urban district;
2. Compare the features of the organizational structures of the municipal entity management in Russia and abroad;
3. Analyze the algorithm for analyzing the current organizational structure of the management of the municipality;
4. Analyze the analysis of the organizational structure, composition and powers of local self-government bodies in the Chelyabinsk urban district;
5. Analyze the analysis of the organizational structure and organization of activities of the representative body of local government;
6. Analyze the analysis of the organizational structure and organization of activities of the executive body of local self-government;
7. Analyze the analysis of performance and efficiency indicators of local government bodies;
8. To identify the problems of functioning of the current organizational structure of the municipal entity management;
Books, magazines, articles, encyclopedias, websites were used to create the thesis.

CHAPTER 1 THEORETICAL ASPECTS OF FORMATION AND IMPROVEMENT OF ORGANIZATIONAL STRUCTURES OF MANAGEMENT OF MUNICIPAL EDUCATION

1.1 Status and powers of local self-government bodies of the urban district

The concept of “structure of local self-government bodies” was introduced into legal practice in the following context “The structure of local self-government bodies is determined by the population independently”. The independence of the population in determining the structure of local self-government bodies means - the right of the population of the relevant territory to decide this issue, both through direct expression of will and through representatives powers to resolve issues of local importance "Federal Law" On General Principles of Organization of Local Self-Government in the Russian Federation. "
Taking into account the shortcomings of the organizational structures of local self-government, formed in accordance with the Federal Law of 1995, and the transition to a two-tier system of municipalities, the Federal Law of 2003 provides for a number of significant changes in the formation procedure, structure and powers individual bodies local government.
First of all, the presence in the municipality of a representative body, the head of the municipality and the local administration became mandatory, while the 1995 Federal Law required the presence of a representative body. Securing the legal status of the administration will allow to regulate the relationship of executive bodies, both with representative bodies of local self-government and with executive bodies of state power of the constituent entity of the Russian Federation, as well as the entire budgetary process provided for by the Budget Code of the Russian Federation.
The status of the head of a municipal formation has been significantly changed in the 2003 Federal Law. In accordance with the charter of the municipality, its head:
Elected in municipal elections or by a representative body from among its members;
If elected in municipal elections, he is a member of the representative body of the municipal formation with the right to vote and is its chairman, or heads the local administration;
If elected by the representative body of the municipality, he is the chairman of the representative body of the municipality;
Cannot be at the same time the chairman of the representative body and the head of the local administration (with the exception of settlements with a population of less than 1000 people).
The implementation of these provisions makes it possible to use the following models of building municipal power.
First option. The head of the municipality is elected by the population and heads the local administration. The work of the representative body is organized by the elected from among .......

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As a manuscript

Elena Nikolaevna Starchenko

IMPROVEMENT OF ORGANIZATIONAL STRUCTURES OF CITY ADMINISTRATIONS IN THE CONDITIONS OF LOCAL GOVERNMENT REFORM

Specialty: 08.00.05 - Economics and National Economy Management

dissertation for a scientific degree

candidate of economic sciences

Kemerovo 2007

The dissertation work was carried out at the Department of Municipal Management of the Novokuznetsk branch-institute of GOU VPO "Kemerovo State University".

Supervisor:

Babun Roald Vladimirovich

Official opponents: Doctor of Economics, Professor

Surnin Vladimir Sergeevich

candidate of economic sciences, associate professor

Afonasova Margarita Alekseevna

Lead organization: GOU VPO "Ural State Economic University"

The defense of the thesis will take place on May 29, 2007. at 930 hours at a meeting of the Dissertation Council DM 212.088.05 at the State Educational Institution of Higher Professional Education "Kemerovo State University" at the address: 650043, Kemerovo, st. Ermak, 7.

The thesis can be found in the library of the Kemerovo State University.

general description of work

Ak the relevance of the research topic. The level of municipal government is closest to the population and is the key one in the system of public authority. The ongoing reform of local self-government is designed to improve the state of the socio-economic system of cities and increase, on this basis, the quality of life of the population. The solution of these problems in conditions of limited resources makes increased demands on their rational and efficient use. The quality of management work at the municipal level is of particular importance and affects the development of the entire country.

The key role in the system of local self-government bodies is played by the local administration, whose activities largely determine the efficiency of the functioning of the socio-economic system of the city. In turn, one of the factors affecting the efficiency of the local administration is its organizational structure.

The practice of building the organizational structures of city administrations is based, most often, on empirical approaches. Local changes in the organizational structures of administrations occur quite often. However, at present, the organizational structures of most city administrations suffer from major deficiencies. One of the most common shortcomings is the overloading of the head of administration with the need to address many of the current sectoral issues. Sectoral divisions of administrations are, in a way, departmental monopolists engaged in lobbying the interests of their own municipal enterprises and institutions and preventing the formation of a competitive environment in the provision of municipal services. In many cities, there are no program-functional structural units, which indicates a lack of attention to solving long-term problems of the city's socio-economic development.

In literary sources, the issues of building the organizational structures of municipal administrations are not fully covered. The classification of the functions of local administrations is, as a rule, of a sectoral nature, according to which the tasks of the administration in managing certain areas of municipal activity are listed, and the specific functions in these areas are reduced to mentioning that the administration is an executive and administrative body.

There is a widespread point of view according to which the development of practically meaningful recommendations on this issue is generally impossible, since the situation in each city is unique and inimitable. In our opinion, some general patterns in the construction of the organizational structures of city administrations still exist. These provisions determined the relevance of the topic of dissertation research.

The degree of scientific elaboration of the problem. O.B. Alekseev, E.G. Animitsa, R.V. Babun, A. G. Voronin, V.B. Zotov, L.A. Kalinichenko, A.D. Levanov, V.A. Logachev,
Z.Z. Mullagaleeva, A. Yu. Nesterov, V.E. Rokhchin, V.S. Surnin, V.G. Churkin,
V.A. Shabashev, A.N. Shirokov, S.N. Yurkov and many others.

The principles of formation and criteria for assessing the effectiveness of the organizational structures of city administrations are touched upon in the works of such authors as Yu.P. Alekseev, A.N. Alisov, R.V. Babun, A.G. Voronin,
V.B. Zotov, V. V. Ivanov, L. A. Kalinichenko, A.N. Korobova, A.V. Kulagin,
I.I. Kuryanov, N.F. Lukyanova, A. Yu. Nesterov, B.A. Raisberg, N.S. Subochev, M.V. Talan, V.G. Churkin, V.A. Shabashev, A.N. Shirokov, S.N. Yurkov and others.

However, many issues related to the construction of organizational structures of local administrations have not been sufficiently worked out and need further research.

Research object are the organizational structures of city administrations (mainly classified as large cities).

The subject of research is the improvement of the organizational structures of city administrations in the context of the reform of local government and the resulting management relations.

The purpose of the dissertation work: development of theoretical and methodological provisions on the construction of organizational structures of city administrations in the context of the reform of local self-government.

In accordance with the stated goal of the study, the following tasks have been identified:

1. Investigate and clarify the classification of functions of the city administration, to reveal the mechanisms of their implementation in the organizational structure.
2. Explore the principles of formation and criteria for assessing the effectiveness of organizational structures; to develop a method of comparative analysis of the organizational structures of the administrations of various cities.
3. Conduct a study of the organizational structures of the administrations of Russian cities on the example of cities in Siberia and the Far East, as well as foreign cities, to identify their advantages and disadvantages.
4. Investigate the impact of local government reform and administrative reform on changing the functions of local government bodies, and on building the organizational structures of city administrations.
5. Develop a model of the organizational structure of the city administration based on the proposed classification of administration functions and the principle of separation of power and economic functions.
6. Adapt the developed model of the organizational structure of the administration for a specific city (for example
   Novokuznetsk).

Field of study: The content of the dissertation corresponds to the passport of the specialty 08.00.05 - Economics and management of the national economy: regional economics (clause 5.16. "Management of the regional economy at the national, regional and municipal levels, functions and management mechanism; development, methodological justification, analysis, assessment of the effectiveness of organizational schemes and control mechanisms ").

Theoretical and methodological basis of the research. The study used the works of domestic and foreign scientists and specialists, Russian legislation, municipal legal acts of cities and other official materials. The solution to the tasks was carried out on the basis of the general provisions of the systemic and situational approaches, structural-functional and process approaches using the methods of comparative, factor analysis, the method of grouping, as well as methods of sociological research.

Research information base are normative legal acts, statistical collections, methodological, scientific, educational and reference books, as well as materials on the Internet and the information network of the Association of Siberian and Far Eastern Cities (ASDG).

The most significant scientific results obtained by the author, and their scientific novelty:

1. A previously non-existent process classification of the functions of the city administration is proposed, which allows organizationally separating the planning and regulatory processes from the processes of organizing the provision of municipal services and managing local resources:

• planning and forecasting function, which consists in the development of municipal policy, development by the administration of programs for the socio-economic development of the city, their submission for consideration and approval of the representative body of the municipal formation;
• regulatory and legal function, which consists in the development and adoption (within its competence) or submission for consideration and approval of the representative body of various municipal legal acts;
• the function of managing local resources (territory, municipal property, financial, material, technical and environmental resources);
• the function of organizing and monitoring the execution of municipal services on the territory of the city is intended for the management of certain sectoral spheres of municipal activity.

1. A method of comparative analysis of the organizational structures of various cities has been developed, which includes the following components:

• development of a system of indicators for comparative assessment of the organizational structures of city administrations;
• determination of the values ​​of indicators for assessing organizational structures for compared cities;
• comparison of the obtained values ​​of indicators for a certain city with their optimal values;
• comparison of the obtained values ​​of indicators for a number of cities with each other.

Indicator (Latin "pointer") - an element that displays the course of the process or the state of the object of observation, its qualitative or quantitative characteristics. For a comparative assessment, the following indicators are proposed:

• the share of structural divisions of the city administration from their total number covered by large blocks focused on a holistic perception of the relevant areas of management;
• the degree of deviation from the norm of controllability (primarily at the level of the head of administration and his first deputy);
• the number of structural divisions of the administration that simultaneously perform both power and economic functions and have the status of a legal entity;
• the presence or absence of program-functional structures in the organizational structure of the city administration, aimed at solving the strategic tasks of the development of the municipality.

1. A reengineering strategy for reforming the organizational structures of city administrations is formulated, which is different from the currently used strategy of local changes (evolutionary strategy). The reengineering strategy provides for a radical change not only in the organizational structure, but also in the technology of the local administration based on the principle of separation of power and economic functions.
2. A qualitatively new model of the organizational structure of the city administration has been developed for the conditions of using the reengineering approach, which has three stages:

• the first stage - includes subdivisions engaged in the formation of municipal policy, its regulatory and legal support, the development of programs for the socio-economic development of the territory;
• the second stage - divisions that perform the function of ensuring the implementation of municipal policy with the most important local resources;
• the third stage - sectoral structural divisions involved in organizing the provision of municipal services, realizing the goals and objectives of municipal policy in the relevant area.

The theoretical and practical significance of the research results. The theoretical significance of the dissertation work is that the results of the study expand the scientific understanding of the formation of the organizational structures of local administrations. The use of process and structural-functional approaches, as well as the principle of separation of power and economic functions in relation to
to the city administration allows to overcome the existing shortcomings in the construction of its organizational structure.

The practical significance of the dissertation research is
in that its results can be used:

• in the development of organizational structures of city administrations
  (in the dissertation work, the proposed model of the organizational structure of the administration was adapted to the conditions of Novokuznetsk);
• to assess the effectiveness of the organizational structures of city administrations;
• in the educational process of universities in the specialty "State and Municipal Administration".

Approbation of research results. The main theoretical and practical results of the study were reported at 7 scientific and practical conferences of various levels and the All-Russian Forum of Young Scientists, at seminars of graduate students and applicants for the Faculty of Economics of the NFI GOU VPO "KemSU", as well as at educational and methodological seminars of the Department of Municipal Management of the NFI GOU VPO "KemSU ". The results of the study were recommended for practical use at the seminar of the heads of the cities of Siberia and the Far East "Actual problems of socio-economic development of cities
and issues of municipal management ”, which was held within the framework of the XIX General Meeting of the Association of Siberian and Far Eastern Cities. The main conclusions and provisions of the thesis were used in the development of the concept of socio-economic development of Novokuznetsk
until 2017 Also, the results of the study are used at the Department of Municipal Management of the NFI GOU VPO "KemSU" in the study of the disciplines "Municipal Management" and "City Management System".

Research publications. The main content, conclusions, recommendations and proposals substantiated in the dissertation work are reflected in 11 works written personally by the author and in co-authorship, with a total volume of 3 pp, including 1.2 pp. copyright.

Dissertation structure

Introduction

Chapter 1 Theoretical and methodological foundations for the formation of organizational structures of city administrations

1.1 City administration in the system of municipal government

1.2 Classification of city administration functions

1.3 Principles of formation and criteria for assessing the effectiveness of organizational structures of city administrations

Chapter 2 Research of organizational structures of city administrations and directions of their reform

2.1 Methodology for analyzing the organizational structures of city administrations

2.2 Analysis of the organizational structures of the administrations of Siberian and Far Eastern cities

Chapter 3 Reengineering of organizational structures of city administrations in modern conditions

3.1 Transformation of functions of city administrations in modern conditions

3.2 Model of the organizational structure of the city administration

3.3 Development of the organizational structure of the administration
Novokuznetsk

Conclusion

List of sources used

Applications

The dissertation work is carried out on 154 pages, contains 12 tables, 24 figures, a list of used sources of 159 titles, 17 appendices.

MAIN PROVISIONS OF THE DISSERTATION,
SUBMITTED TO PROTECTION

The "process" classification of the functions of the city administration has been developed.

The dissertation work analyzed the legal framework and charters of various cities, as well as other literary sources. The analysis showed that almost all organizational structures of administrations are built according to the sectoral (functional) criterion (in accordance with clause 8 of article 37 of the Federal Law of October 6, 2003 No. 131-FZ "On general principles of organizing local self-government in the Russian Federation"). No other classifications of the functions of local administrations (except for the components of management - for the general functions of management) have been identified in the literature. The classification of functions by management components is not applicable for building the organizational structures of city administrations, since in its activities each structural unit of the administration carries out the entire set of general management functions. The sectoral classification of functions in building the organizational structure of local administration does not allow for the organizational separation of planning and regulatory processes from the processes of organizing the provision of municipal services and management of local resources, which contains a large reserve for increasing the efficiency of the administration. This was the main reason for the development of a new classification of the functions of local administration.

The proposed process classification of the functions of local administration includes:

1. planning and forecasting function;
2. regulatory function;
3. the function of managing local resources;
4. the function of organizing the performance of municipal services.

A method of comparative analysis of the organizational structures of various cities has been developed.

This methodology involves the use of a system of indicators for assessing the organizational structures of city administrations, determining their values, and then comparing the obtained indicator values ​​for a particular city with their optimal values ​​and with the values ​​of indicators for a number of other cities.

The study of the criteria for assessing the effectiveness of organizational structures, developed by different authors, showed that almost all authors as criteria determine the compliance with one or another principles of the formation of organizational structures. However, the boundaries of the practical use of a particular system of criteria are complicated due to the lack of relevant information or the difficulty of obtaining it. The task of choosing efficiency criteria becomes more complicated if it is necessary to compare the organizational structure of the administration of a particular city with the organizational structures of other cities.

In this regard, a system of indicators for assessing the organizational structures of city administrations is proposed:

1. The share of structural divisions of the city administration covered by large blocks focused on a holistic perception of the relevant areas of management (economic, urban, social, administrative). At the same time, the time savings of the head of administration are achieved by unloading him from solving a variety of current issues by at least 10 - 20%; the tension of making managerial decisions decreases; the reliability of the system as a whole is increased by ensuring the unity of actions of the subdivisions included in the corresponding blocks. The value of this indicator should be as close as possible to 100% (all subdivisions are included in the corresponding blocks).
2. Deviation from the norm of controllability (primarily at the level of the head of administration and his first deputy) - the norm of controllability, which is given by the theory of management, is equal to seven structural units. In the work, taking into account the personal factor, it is assumed that it is advisable to directly subordinate to the head no more than 9-11 structural units.

The analysis of potential relationships between the manager and subordinates, carried out according to the formula below, showed a rapid increase in their number and complexity with each successive subordinate (Table 1).

C = n ,

where C is the number of potential connections;

n is the number of employees responsible to the manager.

Exceeding the standard of manageability is seen as a serious flaw in building an organizational structure; at the same time, the chief leader does not have time to solve promising, strategic management tasks.

Table 1 - The number of potential connections with different numbers of subordinates

1. The number of structural divisions of the administration that simultaneously perform both power and economic functions and have the status of a legal entity. The value of this indicator should tend to zero.

As a rule, a number of structural divisions of city administrations, by the nature of their activities, acquire and exercise property and other rights and obligations, perform the functions of customers of municipal services, conclude economic contracts with their performers, and perform other economic functions. Accordingly, they are endowed with the status of a legal entity. At the same time, they are the authorities that form municipal policy, are endowed with regulatory functions and set the rules for activities in their area. They are also controllers of compliance with the established rules.

The main direction of improving the organizational structures of city administrations, proposed in the dissertation work, is the organizational separation of planning processes and regulatory support from the resource support of municipal activities and from the processes of direct organization of the provision of municipal services, i.e. separation of power and economic functions. At the same time, strict contractual responsibility of customers and specific performers of municipal services to the city administration is established, the departmental monopoly of sectoral structural divisions of the administration is destroyed and conditions are created for the formation of a competitive environment in the performance of services. Improving the quality of performance of individual municipal services ultimately has a positive impact on the quality of life of the population as a whole.

1. Availability of software-functional structures aimed at solving strategic problems of the development of the municipality. The value of this indicator: either there or not. The optimal value is the presence of such a structural unit.

The organizational structures of city administrations, as a rule, are linear and functional. They are based on a combination of sectoral divisions that carry out the main external functions of the administration (in this case, the organization of the provision of municipal services), and functional divisions that ensure the work of the administration. Such structures can operate effectively only when performing rarely changing, similar functions. But in today's rapidly changing conditions, structures are needed that are specifically focused on innovation, to solve the problems of the long-term development of the territory. The lack of program-functional structures is evidence of inattention to the setting of strategic goals and the solution of long-term tasks of the city's socio-economic development.

These indicators make it possible to assess the organizational structure of the administration already in the process of managing the socio-economic system of the city. In addition, they are easy to measure (relevant information for their application is available) and allow comparison of the organizational structures of the administrations of different cities.

When comparing the values ​​of indicators in each specific city with their ideal values, it is proposed to use the following algorithm for analyzing organizational structures (Figure 2).

When analyzing the organizational structures of the administrations of Russian cities, the data obtained from 32 cities were processed. All cities were divided into groups depending on the size of the population, taking into account the classification adopted in economic geography.

The analysis revealed typical shortcomings, including:

1. In most cities, the standard of manageability for the head of administration is exceeded (in 66% of cities); exceeding the norm by 2 times
   and more was noted in 7 cities (in 22% of the total number of cities under study).
   At the same time, underutilization was revealed against the background of the overload of the head of administration of the potential of such a position as the first deputy head.
2. In most cities, the level of blockiness in the management of certain spheres of municipal activity is insignificant, with the exception of the management of the social sphere: in 10% of the cities under study blockiness is completely absent; in 50% of cities, the share of structural subdivisions covered by large blocks is 25%; in 33% of cities - 50%; only
   in 10% of cities - 75%.
3. Combining the fulfillment of power functions by individual structural divisions of city administrations and direct economic activities (the presence in the administration structure of divisions with the status of a legal entity). Of the 20 cities that provided information on this issue, in the largest number of cities, the status of a legal entity is held by the authorities for the management of education (100%), social protection (95%), culture (90%), health care, physical education and sports (55% each) , architecture and urban planning (45%).
4. Lack of specialized software and functional units involved in strategic planning in most cities.

Comparison of the obtained values ​​of indicators with their values ​​in other cities reveals general trends in the existing practice of building organizational structures of administrations; determine the position of a certain city against the background of other cities; to compare the main resulting indicators of a certain city with the indicators of cities using progressive experience in building the organizational structures of administrations.

A reengineering strategy for reforming the organizational structures of city administrations is formulated along with the existing strategy of local changes (evolutionary strategy).

It has been determined that when reforming the organizational structures of local administrations, it is possible to use two strategies: evolutionary and reengineering.

The evolutionary strategy consists in a partial change of certain quantitative and qualitative characteristics of the organizational structure, including: the formation in the structure of the administration along with linear-functional program-functional structural units; optimization of management levels; compliance with the norm of controllability during construction; increasing the blockiness of management, etc. Implementation of the evolutionary reform strategy does not allow solving the problems caused by the combination of the execution of power and economic functions by the sectoral structural divisions of the city administration, since it does not change the technology of the city administration.

The reengineering reform strategy is focused on a radical restructuring of management processes and the organizational structure of the administration. The main difference between the reengineering reform strategy and the evolutionary strategy is the separation of the execution of power and economic functions by the structural divisions of the administration. This strategy is of particular importance in the light of the ongoing administrative reforms in the country, as well as in the context of the reform of local self-government.

Figure 2 - Algorithm for analyzing the organizational structures of city administrations

A model of the organizational structure of the city administration in the implementation of the reengineering reform strategy has been developed.

On the basis of the classification of functions performed by local administrations proposed in the dissertation work, as well as, relying on the principle of separation of power and economic functions, a qualitatively new functional scheme of the city administration has been developed. The existing and proposed functional diagrams are shown in Figures 3, 4, respectively.

The main distinguishing feature of the proposed functional scheme is the division of administration functions into three stages:

• the first stage - includes departments involved in the development of municipal policy, the development of programs for the socio-economic development of the city, regulatory support for the activities of all economic entities in the territory of the municipality;
• the second stage - subdivisions performing functions of managing the most important local resources;
• the third stage - sectoral structural divisions involved in the organization and operational control of the provision of municipal services that implement the goals and objectives of municipal policy.

Each stage is endowed only with its inherent and non-overlapping set of functions.

Thus, the development of the proposed functional scheme of the city administration, in fact, is a reengineering of the organizational structure of the administration, as well as the processes of making and executing managerial decisions. Based on the proposed functional scheme of the city administration, a qualitatively new model of the city administration has been developed, which includes three stages (Figure 5). The main distinguishing feature of this model is the separation of power and economic functions.

First stage the city administration consists of the following functional subdivisions: services of socio-economic development, architecture, urban planning and land management, legal support, ensuring public safety, administrative service. In comparison with the existing structural divisions of city administrations, similar in name, the service of socio-economic development and the service of legal support should be significantly strengthened.

Social and Economic Development Service carries out the functions of analyzing the socio-economic situation of the city; elaboration of municipal policy and strategy of social and economic development of the city; legal regulation within the limits of their competence; control over activities for the organization of the provision of municipal services and management of financial, material and technical, environmental resources, municipal property within its competence.

Figure 3 - The existing functional diagram of the city administration

Figure 4 - Proposed functional diagram of the city administration

Territorial Development Service carries out functions for the formation of urban planning and land policy on the territory of the city; control over the use and protection of land, over compliance with the legislation on urban planning and land management; preparation of drafts of normative and other legal acts on issues of their competence.

Legal support service carries out the functions of preparing normative legal acts and working with the representative body of local self-government in terms of the rule-making function; legal protection of the interests of the city administration; coordination and assistance in the regulatory and legal activities of all structural divisions of the administration.

Administrative Service performs functions (they are quite diverse, therefore their combination under a single name is conditional) in two areas:

1. work with the population, bodies of territorial public self-government, public and other organizations, means mass media; organization of interaction between the administration and the representative body of local self-government, with state authorities, local self-government bodies of other municipalities, their unions and associations;
2. ensuring the functioning of the administration itself (administration apparatus).

Public Security Service takes part in the prevention and elimination of the consequences of emergencies; organization of public order protection by the municipal police; provision of primary fire safety measures; organization and implementation of civil defense activities, etc.

On the second stage the administration of the city houses the bodies for the management of finances, property, material, technical and environmental resources and the territory of the city.

Financial authority the city administration is conditionally divided into two blocks, the first of which is engaged in financial planning, is located at the first stage and is part of the service of socio-economic development; the second is at the second stage and maintains a register of budget expenditures, ensures the treasury budget execution and the allocation of financial resources to the administrators of budget funds.

Municipal Property Management Authority It is also divided into two blocks: the first one is at the first stage, directly enters into the service of socio-economic development, is responsible for the formation of municipal policy in the property sphere; the second one is at the second stage, maintains the register of municipal property and carries out practical management of it.

Figure 5 - Model of the organizational structure of the city administration

Material and technical resources management body provides centralized provision of the organizers of the provision of municipal services, as well as the administration apparatus with the most important material and technical resources, concludes contracts for their purchase on a competitive basis, maintains a procurement register.

Territory administration authority carries out the maintenance of an information system for ensuring urban planning activities, monitoring objects of urban planning activities, preparing the necessary materials and documents for making decisions in the field of urban planning and land use, performing land management work on a paid basis.

Environmental Resource Management Authority carries out the study of the state of the city's environment, the formation of a data bank on the sources and volumes of its pollution, on the state of natural resources and their use, on the volumes of generated, utilized and stored waste, etc.

Subdivisions third stage city ​​administrations are created according to the spheres of activity for which, in accordance with the Federal Law, the local authorities are entrusted with the appropriate powers, as well as on issues transferred to local self-government bodies as separate state powers. The composition of these structural units may vary depending on the size and specifics of a particular city. Unlike the existing industry divisions, they do not have planning and forecasting and regulatory functions.

Such a construction of the organizational structure of the city administration ensures the separation of the planning and regulatory bodies from the bodies that function in accordance with the established standards, which allows eliminating departmental monopoly in the relevant areas; the efficiency of municipal property management is increased due to the creation of its complex balance sheet holder; saving budget funds by centralizing the procurement of material and technical resources.

The effectiveness of the organizational structures of city administrations can be assessed through the end result of the administration's activities - improving the quality of life of the population. However, the establishment of a direct correlation between the organizational structure and the quality of life of the population is not possible due to the versatility of the very concept of the quality of life and the presence of many multidirectional factors influencing it. The organizational structure of the administration is just one such factor. In addition, the human factor, first of all, the personality of the head of the administration, has a great influence on the efficiency of the administration. With the most perfect organizational structure and an insufficiently qualified head of administration, it will work ineffectively, and vice versa, a competent head of administration is able to significantly improve its work with any organizational structure, although he will inevitably be engaged in its improvement. Thus, the relationship between the organizational structure of the administration and the quality of life of the population is only mediated.

It seems most reasonable to assess the effectiveness of reforming the organizational structures of city administrations through improving individual components of the quality of life, depending on local conditions and determined by the quality of providing residents with specific municipal services. Wherein improving the organizational structure of the administration only creates the preconditions, but in itself does not guarantee an improvement in the quality of municipal services, since and here an important role will be played by the initial state of the economy and social sphere of the municipality, as well as the personal qualities of the organizers and specific performers of services. Nevertheless, with a more perfect organizational structure, the tasks of improving the quality of municipal services can be solved more efficiently.

Adaptation of the developed model of the organizational structure of the administration for the city of Novokuznetsk.

The reengineering strategy of reforming organizational structures has been adapted to the conditions of Novokuznetsk (Figure 6).

Figure 6 - Proposed organizational chart
Administration of Novokuznetsk

1. Starchenko, E.N. Transformation of the organizational structures of city administrations in the context of the reform of local self-government [Text] / E.N. Starchenko// University Bulletin(State University of Management). – 2006. - №4 (20). – S. 175-181.
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9. Babun, R.V. Improvement of organizational structures of city administration management [Text] / R.V. Babun, E.N. Starchenko // Socio-economic transformations in Russia: collection of scientific papers. Issue 3. - Kemerovo: Kuzbassvuzizdat, 2004. - pp. 168-174.
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For the effective functioning of the local self-government system, it is necessary to have an appropriate structure of local self-government bodies.

Taking into account the diversity of forms of local self-government, various bodies and structures of local self-government can be formed. They can be classified, in particular, according to their goals and objectives into representative and executive.

The first group of bodies includes: duma, zemstvo assembly, municipal assembly, etc.

The second group includes the administration of the municipality.

Bodies and structures of municipal government are also classified by the nature of their activities and competence into the following types.

• 1. Bodies of general competence (head of the municipality, local administration as a whole, municipal assembly).
• 2. Bodies of special (sectoral) competence (sectoral departments, services and administrations of the local administration). For example, agriculture department, education department, etc.
• 3. Bodies of functional competence (committees and services performing certain functions). For example, the environmental committee, the municipal property management committee, etc.

The main factors on which the composition and structure of municipal government bodies depends are:

• Ш Goals and tasks facing the bodies of the municipal formation, the functions they perform.
• Ш Existing legal framework on local self-government issues.
• Ш Financial and economic base of local self-government.
• Ш Infrastructure of the municipality (territory, population, social sphere, etc.).
• Ш Priorities of socio-economic development of the territory (industry, agriculture, science, etc.).

Consider the features of education of the local Administration of the village of Zelenogradsky.

By the decision of the Executive Committee of the Moscow Regional Council of Working People's Deputies No. 414 of April 24, 1962 "On the transfer of the center and renaming of the Kaliningrad region", the administrative center of the region was moved to the city of Pushkino, and the region itself was renamed to Pushkinsky. After that, the Zelenogradsky summer cottage settlement became part of the Pushkin district of the Moscow region.

On October 7, 1977, the New Constitution of the USSR was adopted, according to which the name of the bodies of state power has undergone changes. After that, the Zelenograd Village Council of Working People's Deputies was renamed and the Zelenograd Village Council of People's Deputies.

In accordance with the Law of the RSFSR "On Local Self-Government" of July 6, 1991 by Decree of the President of the RSFSR No. 75 of August 22, 1991 "On Certain Issues of the Activities of Executive Power Bodies in the RSFSR", the legislative and executive bodies were separated at all levels. The executive committees as the executive bodies of the Soviets were abolished, and instead of them it was envisaged the formation of administrations, new local executive bodies, independent from the legislative bodies - the Soviets. The administration of the Zelenogradsky settlement was formed in accordance with the decree of the Head of the Administration of the Pushkinsky District No. 10 dated January 4, 1992.

On the basis of the Decree of the President of the Russian Federation No. 1617 "On the Reform of the Representative Bodies of Power and Local Self-Government Bodies in the Russian Federation" dated October 9, 1993 by the Resolution of the Head of the Moscow Region Administration No. 167 dated October 11, 1993, all settlement and village councils in the territory of the Moscow Region, in including the Zelenograd village Council of People's Deputies of the Pushkin region, were disbanded. After that, the Zelenogradskiy village administration remained the only local government body on its territory.

According to the Charter, all settlement and rural administrations of the district were transformed into territorial administrations. However, in practice, this change in the legal name of the local authority of the district was not implemented: forms of documents, stamps, etc. remained unchanged. And only in the middle of February 2003, the village and settlement administrations of the district, including the Administration of the Zelenogradsky settlement, in their practical activities switched to new names.

On January 1, 2006, the reform of local self-government began in accordance with the Federal Law of October 6, 2003 No. 131-FZ "On the General Principles of Organization of Local Self-Government in the Russian Federation." The state authorities of the Moscow region have established the boundaries of the newly formed municipalities, including the urban settlement of Zelenogradskiy.

The structure of the administration of the municipality is formed most often according to the linear-functional principle. And although in large municipalities administration structures can be characterized as multiple management structures, in essence they represent a cumbersome set of a number of linear-functional structures.

The activity of the administration of the urban settlement is ensured by the activity of its structural divisions (divisions, departments, offices, committees, etc.) in accordance with their profile.

Structural divisions of the administration:

• Ш organize the work of subordinate enterprises, organizations and institutions according to the profile of their activities;
• W carry out the collection of information, analysis of the state of the socio-economic and environmental situation within the municipality;
• Ш prepare reference, information and analytical materials necessary for the effective operation of the administration;
• Ш on behalf of the head of administration or on their own initiative prepare draft resolutions;
• Ш carry out legal and other types of expertise of draft resolutions of the head of administration (mayor) according to the profile of their activities, endorse these projects;
• Ш provide the head of administration with expert advice;
• Ш take measures for the organizational and logistical support of the activities carried out by the head of the administration;
• Ш carry out other activities on behalf of the head of administration.

The activities of the administration (district, city) are organized in accordance with its competence, enshrined in legislative acts, the Charter of the municipality, regulations.

The head of the apparatus is the head of the administration (head of local government) and manages the apparatus on the principle of one-man management.

Head of the urban settlement:

• Ш organizes the development and implementation of the local budget;
• III organizes the preparation of a plan for socio-economic development;
• Ш determines the structure and staffs of the administration and submits them for approval to the representative body of local self-government;
• Ш on behalf of the administration concludes contracts;
• Ш reports once a year to the population and representative bodies;
• Ш is in charge of the civil defense of the municipality;
• Ш appoints and dismisses the heads of structural divisions of the administration and municipal enterprises;
• Ш issues resolutions, orders.

The diagram will reflect the structure of the administration of the urban settlement Zelenogradsky.

Figure 2.1-Organizational structure of the administration of the urban settlement Zelenogradsky

The advisory body under the head of the administration is the collegium. The collegium includes: the head of the administration (chairman of the collegium), his deputies, the business manager, heads of some leading structural divisions, and may also include heads of enterprises, highly qualified specialists in certain areas of municipal administration.

Board meetings are usually held as needed, but at least once a month. The board examines issues of a complex nature:

• Ш projects of the city budget and its execution;
• III program of socio-economic development of the municipality;
• Ш proposals for plans and programs adopted by the authorities and administration of the subject of the federation and affecting the interests of the municipality;
• W drafts of contracts for the supply and purchase of products at the expense of the budget or other funds at the disposal of the administration;
• Ш programs for environmental protection, issues of construction and reconstruction of environmental protection facilities;
• Consideration of issues related to the activities of structural divisions of the administration;
• Ш proposals for the location, development and specialization of enterprises and organizations of various forms of ownership, whose activities are of vital importance for the municipality as a whole.

Another important element in organizing the activities of the administration is weekly operational meetings with the head of the administration, at which the results of the work over the past week are summed up and the tasks for the next one are outlined.

Another mechanism for organizing the activities of the administration of the municipality is meetings and mass events with the participation of employees of the administration, which are held according to the calendar plan approved by the head of the administration. As a rule, the issues brought up to the meetings are aimed at coordinating the activities of structural divisions in solving individual problems of the municipality.

An important point in the activities of the administration is the control over the execution of administrative documents in the administration, structural divisions.

One of the fundamental factors in the activities of the administration is the organization of the workflow, carried out in accordance with the Instruction on office work, which is approved by the head of the administration. Responsibility for the state of office work is assigned to the management of the administration. The formation of cases in the structural divisions of the administration is carried out in accordance with the individual instructions on the office work and the nomenclature of the affairs of the division.

In municipal management, it is advisable to separate operational and strategic management.

Strategic management ensures the achievement of the promising development goals of the municipality. It is carried out in stages:

It should be noted that the function of strategic management at the municipal level in practice does not play such an important role as it does at the regional, and even more so at the federal level. The governing bodies at the municipal level are primarily loaded with operational activities to create conditions for ensuring the normal life of the population. However, without strategic management, it is impossible to solve the most fundamental issues of management and development of the municipality.

The main difference between strategic and operational management at the municipal level is that operational management ensures the achievement of the current goals of the functioning of the municipality, and strategic management is aimed at achieving the long-term development goals of the municipality.

The specific content of the entire management process, the development and implementation of management decisions are determined primarily by the activities of people who represent the staff of the municipal management system.

Municipal personnel are included in the category of "management personnel". Management cadres include employees whose professional activities are fully or predominantly related to the performance of functions for the management of socio-economic processes.

Municipal management personnel are divided into three groups in accordance with their participation in the preparation, adoption and implementation of management decisions:

• Ш heads;
• Specialists;
• Ш service personnel.

The composition of the personnel of this or that municipal government body is determined by its staffing table.

The main thing in the management of personnel employed in the municipal service is the methods of selection and appointment of employees, mechanisms for their promotion, a clear definition of their job responsibilities, a system of material incentives, a system of dismissal.

The methods of selecting employees in municipal administrations can be divided into two groups: elections and appointments. Elections are competitive.

One of the main directions of personnel management in municipal authorities is the development of a system of additional vocational education staff. A set of regulations governing the process of formation and development of personnel of state and local government bodies of the constituent entities of the Russian Federation determines the principles of personnel selection for additional professional training. They are based on social guarantees of the rights of municipal employees to receive vocational education.

Professional retraining and advanced training are legally included as a condition in the mechanism for career advancement of an employee along the vertical of positions and as criteria for changing the internal position, qualifications of employees of state authorities and local self-government, which contributes to increasing the motivation of educational activities of personnel.

FEDERAL EDUCATION AGENCY

State educational institution of higher professional education

RUSSIAN STATE HUMANITARIAN UNIVERSITY

INSTITUTE OF ECONOMY, GOVERNANCE AND LAW

MANAGEMENT DEPARTMENT

Department ________________

Full Name

Analysis and improvement of the local self-government system on the example of the Vasilievsky municipal district

Diploma work of student (s) ____ course ________ forms of study

Speciality "___________________________________________"

Approved for protection at the State Aviation Complex

Head chair

Doctor of Economics, Professor

N.I.Arkhipova

"__" ____________ 201

supervisor

Senior Lecturer

L.N.Solyankina

"__" _____________ 201

St. Petersburg

Introduction

1. Theoretical foundations of local 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 cities federal significance

3.3 Improving the state of the local self-government system in St. Petersburg on the example of the Vasilievsky municipal district "

Conclusion

Applications

Introduction

The experience of carrying out transformations in various spheres of social and economic life has shown that only those of them have a chance of success, which 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 "the success depends on how synchronously, jointly, and in solidarity the state, on the one hand, and civil society, on the other hand."

The current conditions require the most careful attention to the efficiency of the work of the authorities and administration of 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 specificity of the local self-government system relies on power structures in matters of implementation, within the limits of their own competence of the assigned powers, on civil society with maximum proximity and interaction with the population, as well as on economic 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 local self-government system is just such a single institution that combines all of the above components.

The problematic of the study is 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 their activities. There is a tendency for 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, declining health and quality of life. The solution of real pressing socio-economic problems in the field of the formation of regions and districts of our state requires widespread use in regional practice of a rational approach to the formation of effective competitive strategies focused on the current and future social and economic needs of the population.

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

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

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

1) consider the methods and ways of improving LSG 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 work related to the self-government of territories through the transition 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 local government bodies, how these functions affect the provision of feedback between the population and the government, how it is possible to organize work to organize and facilitate the implementation of civil control;

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

5) conduct a comprehensive study of consumer characteristics, analyze resource provision based on planning the volume of material, labor, financial resources to provide the necessary services in all areas and determine the concept of strategic development of the LSG structure using the example of the Vasilievsky municipal district.

The object of the research is the methodology of analysis and improvement of the structure and resource provision of local self-government on the example of the Vasilievsky municipal district.

The subject of the research is the indicators of the development of the Vasilyevsky municipal district, as well as the indicators of other local self-government bodies of federal significance, which are necessary for conducting a comparative analysis.

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

The theoretical basis of the research is a comprehensive analysis of the management and development processes of the Vasilievsky municipal district. The work used - decisions of state and government bodies of the Russian Federation on the modernization and development of the Vasilievsky municipal district. When developing the set goals and objectives, the works of domestic and foreign authors, materials published in the 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 local self-government 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 of the socio-economic development of local self-government on the example of the Vasilievsky municipal district.

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 the 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, which establishes a number of essential 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. 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 began to function 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 LSG as a whole states that self-government naturally meets local needs and certain corporate interests of the population of the MO, while the LSG body should have the right to free choice of decisions. The methods, means of their implementation in the scope of the powers granted are used under the personal responsibility of the local government. Quite an 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 a local self-government body has the right, within the framework of national economic policy, to own a sufficient amount of its own financial resources, which they can freely use exclusively within the framework of their powers and decisions of certain local issues.

Local government judicial protection is also guaranteed. It occupies 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 bodies, in accordance with Article 11 of the European Charter of Local Self-Government, should have the right to judicial protection in order to guarantee them the ability to freely exercise their powers and to comply with a number of principles of local self-government enshrined in the country's constitution and legislation.

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.

V recent times there is also one type of model - “territorial”. All these models are interdependent, as well as confirmed by constitutional norms.

The pre-revolutionary stage was marked by various reform 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, soon after the abolition of serfdom, Emperor Alexander II signed a decree to the government Senate on the entry into force from January 1, 1864 of the "Regulations on Zemstvo Institutions." The most significant factor contributing to the birth of a zemstvo was the decree of February 19, 1861, according to which more than 20 million serfs were acquired by "free" peasants.

The Zemskaya Reform, which took place in 1864 and the city reform that took place in 1870, pursued the only goal - to decentralize government and develop the beginnings of local self-government in the Russian Empire. The transformation was based on two ideas. The first is the election of the authorities. This type of self-government implies that all local governments are elected and controlled by voters. They would be under the supervision of the representative authorities, and these branches of government would be controlled by the legislator. Zemstvo self-government bodies were adherents of state authorities, trying to maintain legitimacy and consistency in society. The second idea is the proposal that local government should have a real financial basis for its activities. Since the 19th century, up to 60% of all payments collected from 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 were already working on self-financing in 43 provinces of the Russian Empire with a total population of about 110 million people. The functioning of zemstvos was carried out using 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 from the time of the October Revolution and was marked by a complete reconstruction of the zemstvo administrations.

The Bolsheviks introduced the widespread liquidation of zemstvos, since they considered the zemstvo bodies of self-government to be the legacy of the bourgeois system, and, in addition, the policy of the new government was to centralize 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, to the state, which by its nature is centralized.

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

1) the principle of the 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 between 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 primary 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 delimiting objects of reference 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 efficiency of their application by the provided level;

4) the principle of transferring to LSG bodies relatively broad rights in economic and economic areas 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 rural formations, health services and culture.

The experience of local self-government, accumulated before the revolution, mainly of zemstvo self-government bodies, 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 planned projects for economic and social development, as well as the local budget fund; to manage the bodies of state power, enterprises, institutions and organizations subordinate to them; guarantee compliance with the law, protect state and public order, stand up for the protection of the rights of citizens; and contribute to strengthening the defense capability of the state.

Within the limits of their own powers, LSG bodies were supposed to guarantee large-scale economic and social development directly on their own territory; to carry out 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, correct use of labor resources, production of consumer goods, socio-cultural, household and other spheres of public services.

Interest in problematic issues of self-government in Russia increased only in the second half of the 1980s, by the time the need for a transition from the administrative to a predominantly economic component of management methods was recognized. Little by little, the point of view began to be asserted that LSG bodies are an independent level of the people exercising power, which belongs to them in accordance with the Constitution of the Russian Federation. At the same time, the view began to take hold that the democratic foundations of society are possible only when the LSG 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, village committees and other bodies, as well as local referendums, assemblies and other configurations. direct democracy. The primary territorial level of local self-government was achieved by the village council, the district settlement, and the urban district. The law regulated the granting of the union and autonomous republican autonomies 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 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 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 had to be 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 funds, and also transferred to them free of charge by union 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 stage 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 the higher executive and administrative bodies within the boundaries of their powers, represented the local administration. The head of the local government administration was elected by universal direct and equal elections by secret ballot, also for a term of 5 years. The head of the administration performed his powers based on the principle of one-man command. He had to solve 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 and collegial forms of executive activity to the position of one-man management in the LSG leadership.

The massive democratic transformations that emerged in the mid-90s in the Russian Federation led to the fact that the idea of ​​separating LSG from the system of state authorities, which was present in the pre-revolutionary period, began to be restored.

In 1993, a new Constitution of the Russian Federation was adopted, which legalized the provision that local government bodies are no longer included in the system of government bodies. In accordance with Art. 132 defined the sphere 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 vested by law with certain state powers with the transfer of material and financial resources necessary for their implementation. The implementation of the delegated powers is under the control of the state. "

In the Constitution of the Russian Federation of 1993, in Chapter 1 of Article 12, local self-government was for the first time 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. ISG is recognized, guaranteed and implemented throughout the territory of 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 Law 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 that moment on in the Russian Federation, at the constitutional level, local self-government was approved - a specific degree of power, since the separation of local self-government bodies from the systemic apparatus of public authorities determined the original division of state functions along the vertical.

A significant eventful stage in the formation of the local self-government 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 to elect or be elected to LSG bodies in accordance with elections; and equal access to municipal services.

This is how the main principles of founding local self-government in the Russian Federation were determined, which are provided for the present stage ample opportunities for a variety of configurations for its implementation. Nevertheless, the residents of the Russian Federation, for all sorts of reasons, just as before, could not fully participate in the implementation of democracy through the local government bodies. Then, as one of the most significant constitutional and legal reforms in Russia, the reform of local self-government was carried out. Taking into account the historical experience of the development of LSG bodies in the Russian Federation and with the application of advanced foreign experience, a reform was launched, which, ultimately, helped to consolidate the two-tier nature of LSG on a legal basis. As a result of the reform, the population will have the opportunity to more actively participate in the life of their okrug, oblast, rayon and show 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 the limits of its powers, is an independent body. In accordance with the legislation, local governments are not considered part or a participant in the system of public 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 the people exercising their power.

Also, the main points and principles of this institution are especially detailed in Chapter 8 of the Constitution of the Russian Federation, in which Articles 130, 131, 132 and 133 set forth 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 making independent decisions on some issues that are only of local importance. For example, such issues may include issues such as ownership, use and disposal of elements of municipal property. Decisions on issues are made by a meeting of citizens through the convocation of referendums, elections, as well as other forms of direct expression of will, through elective and other bodies of local self-government. Local self-government is exercised in urban, rural settlements and in 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 in force 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. Bodies of local self-government may be endowed by law with certain state powers with the transfer of material and financial resources necessary for their implementation. The implementation of the delegated powers is under the control of the state.

Local self-government in the Russian Federation is guaranteed by the right to judicial protection, to compensation for additional costs arising 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 governments to regulate and manage a significant part of public affairs, acting within the law, under their responsibility and in the interests of local population.

The Federal Law "On 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, which ensures, within the limits established by the Constitution of the Russian Federation, federal laws, and in cases established federal laws, - the laws of the constituent entities of the Russian Federation, independent and under its own responsibility the decision by the population directly and (or) through local government bodies 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 system of the Russian Federation, is recognized, guaranteed and implemented throughout the 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: FZ "On General Principles of Organization of Local Self-Government in the Russian Federation" and the Law "On Local Self-Government in the Russian Federation", which are applied in the part that does not contradict the provisions of Chapter 12 of the Federal Law of 06.10.2003 N 131-FZ , and will expire on January 1, 2009. There also exists and operates the Federal Law "On ensuring the constitutional rights of citizens of the Russian Federation to elect and be elected to local government bodies", which ensures the protection of these rights in the event 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 assessing the effectiveness of local government bodies in urban districts and municipal districts" Federation ”, as well as Resolutions 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 its responsibility decision by the population directly and (or) through local self-government bodies of issues of local importance based on the interests of the population, taking into account historical and other local traditions. The legal basis of local self-government is the 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 determined by the nature of local self-government, which underlie the organization and activities of the population, the bodies formed by them, independently managing local affairs.

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

1. The principles predetermine the structure and functioning of the municipal government.

2. As a theoretical basis for 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 assessing the current system of local self-government: to what extent it meets 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 received their legal confirmation in the European Charter of Local Self-Government, which serves as the legal foundation for the municipal legislation of the member states of the Council of Europe.

The Constitution of the Russian Federation, the Federal Law “On General Principles of Organization of Local Self-Government in the Russian Federation”, based on the provisions of the European Charter on Local Self-Government, consolidate 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 peculiarities of the organization of local self-government in border areas, closed administrative-territorial formations, legal regulation of local self-government in the constituent entities of the Russian Federation, taking into account historical and other local traditions, is carried out.

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 the system of organizational forms and methods of municipal work corresponding to these principles.

The general principles of local self-government include:

a) the independence of the population to resolve issues of local importance;

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

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

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

e) a variety of organizational forms 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;

To) state guarantee local government.

Due to the general principles in accordance with which LSG functions, its bodies carry out their work smoothly and in accordance with a certain order. But, at the same time, their work is predetermined by the foundations that exist in this 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 opportunities for 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 to achieve which municipal activities are directed. Local self-government is one of the constituents of the foundation of any democratic system, as it is the personification of the people's power and ensures the approximation of government 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 independence 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 capabilities of self-governing units on territory of the country.

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

Taking into account the role of local self-government in organizing and exercising 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 resolving issues of local importance;

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

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

4) ensuring the satisfaction of the needs of the population in socio-cultural, communal 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, federal laws.

Planning is central to the management cycle in municipal (as well as corporate) management. All other management functions, ultimately, depend on what are the goals of the organization and what are the ways to achieve them, which is determined during planning. Thus, planning can be defined as an activity aimed at defining goals and methods of action that ensure the achievement of these goals.

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

To begin with, the goal of any plan, be it 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 stems from the very nature of any organization that exists to achieve goals through conscious cooperation. Hence, it follows that planning as a function of local self-government is possible only when the widest possible layers 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 government in relation to organization, leadership and control are designed to contribute to the achievement of the goals of the municipality, planning logically precedes the implementation of all other management functions. And although in practice all management functions are intertwined, "planning is unique in 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, since unplanned actions cannot be controlled.

Planning is a number of functions of all who, in one way or another, at a professional level, are engaged in management activities, and municipal authorities are no exception in this regard. Naturally, the nature and volume of planned work will change depending on the powers that specific employees of municipal bodies have. However, in any case, not a single job description or any other document regulating the activities of employees of the municipal administration can so restrict their choice so that they do not have the slightest freedom of action, without which there can be no planning, tk. planning, by its nature, always involves a choice of 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 in front of 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 the correctly set 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.

To better understand the need for planning, consider the following factors highlighted for corporate management, but which are no less significant for municipal governance. After the goals and ways to achieve them have been identified in the course of planning, it is time for the organization. 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 provides for the formation of a system of governing bodies of a municipal formation, their internal structure, connections both within these bodies and between them. In this regard, the formation of the optimal organizational structure of municipal government bodies is of particular importance. In addition, this management function ensures the coordination and interaction of joint activities of the management bodies of several municipalities, as well as with regional and federal authorities. Finally, this function is aimed at the formation of mechanisms of interaction between municipal authorities and business structures that operate on the territory of the municipality.

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

The function of leadership is directly aimed at employees of the organization and is designed to ensure that their behavior is aimed at achieving the goals of the organization, in this case, the system of municipal government. For this reason, effective leadership becomes a highly valued quality of a leader, which is of particular importance in the field of municipal governance also because often such a leader has to ensure not only the proper behavior of the employees of the municipality, 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 what outstanding leadership qualities the leaders have, this may turn out to be insufficient if the system of municipal government bodies does not provide proper motivation, which, in management practice, is manifested in the formation of different systems stimulating activities aimed at achieving corporate goals.

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

Definition of standards (norms) to be achieved;

Information that captures the deviation between reality and planned standards;

Corrective actions to achieve planned standards.

Concluding the consideration of management functions, it should be noted once again that “isolated” consideration of individual functions is a convenient methodological method, but in practice, it is often extremely difficult to single out individual of the functions discussed above, due to the fact that they are interrelated 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, defining the structure and competence of government 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 competence established by legislation, this composition of functions remains the same for each level of government.

Methods of science of municipal management ensure the transformation of the competence of municipal government bodies 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 a governing body is a complex legal category, the structure of which includes the subject of competence, rights and obligations. The subjects of jurisdiction 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.

Further, it is argued that the management 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 (transfer of more functions of object management to LSG bodies);

3) positive regulation (regulation from the top).

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

The problem of the creation, functioning and improvement of municipal government is investigated by the science of municipal government, which uses concepts such as purpose, task, function, law, responsibility of government bodies, purpose, task, duty, right and responsibility of employees of these bodies.

For the reason that most municipal government bodies are formed and operate in accordance with the legislation, 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 the science of municipal government ("function", "Duty"), which will provide a legal basis for the activities of municipal authorities and their employees.

Therefore, from the standpoint of the science of municipal government, under the term "powers of the governing body" it is advisable to understand 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 fraught with certain difficulties, which are a source of erroneous decisions. To exclude them, it is necessary to create legislative and other normative legal acts on the organization, functioning and improvement of municipal management using the concepts of the science of municipal management - a goal, task, function, duty.

Conclusion on the first chapter: as a result of the research carried out 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 the development of the economy and social spectrum in the regions and oblasts far back. Only at this point in time, 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 exclude the emergence of 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 LSG 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 General Principles of Organization of Local Self-Government in the Russian Federation” (hereinafter referred to as the Law) helped to lay the foundation of the basic principles of the formation and functioning of LSG bodies. "Local self-government as the basis of the constitutional system 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. President of Russia D.A. Medvedev outlined the work on the development of local self-government as one of the priority tasks of the state - "local self-government should open up to citizens the opportunity to independently solve their local problems without instructions and orders from above." The conditions in which the process of forming the basic principles of the organization of local self-government took place were characterized by the following features:

1. Transitional characteristics 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 the bearer of a compromise character, while retaining the rudiments of the old Soviet system. On the other hand, the law was also imprinted 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 power over its fundamental provisions, for the reason that For the first time, legislative bodies attempted to set a framework for 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 context 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 revenues 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 self-government bodies. This fact can explain a number of economic stabilization processes that followed during this period, which helped to restore the economy until the turn of the century. Nevertheless, it was the provision of such opportunities to LSG bodies that determined the subsequent attempts of regional centers and the state center to regain most of their powers by accusing the LSG bodies of their incompetence or inability to fulfill them. (See Figure 2.1.)

Interestingly, 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 appear in the LSG bodies, as it was in post-war Japan and Germany. In the framework of the ever-increasing turnover of the economic crisis, state authorities use local self-government, assigning it the title of an essential element in anti-crisis management, since this level of government is the closest in relation to the population and has the ability to most flexibly manage resources in the interests of the functioning of the population's life support systems.

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

3. The adoption of the law was carried out during the period of preparation for Russia's accession to the Council of Europe. For the reason that the recognition of the European Charter of Local Self-Government was a mandatory and unconditional condition for joining this European organization, the law was automatically adapted to the maximum 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 found to be fully compliant with the European Charter of Local Self-Government. This made it possible for the Russian Federation to ratify the European Charter of Local Self-Government in 1996 without any reservations.

The above factors 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-tier system of legislative regulation of local self-government (federal and sub-federal levels of government). This feature 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 the procedures of activity, 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 existing legal field to be implemented, 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 were well aware of this. Until 1917, there were more than twenty different systems of 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 government bodies (Article 12 of the Constitution of the Russian Federation states that LSG bodies are not included in the system of government bodies) gives the population the right to determine the structure of LSG bodies according to a certain procedure. The provision of the Constitution on the organizational isolation of LSG bodies within the framework of the power hierarchy allows creating the necessary level of minimum guarantees for local self-government, which is especially important for a country that is moving from the system of omnipotence of state officials, and also allows flexible consideration of the peculiarities of local conditions of power action, building a governance 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 innermost organization, each LSG body, each region has its own characteristics. However, this provision also had negative consequences. First of all, this concerns the rupture of information spaces and the weakening of coordination of the activities of local government bodies (territorial divisions of federal and regional government bodies).

The two-channel system of forming 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 fulfillment of certain public tasks to these bodies) makes it possible to take into account local peculiarities most fully. 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 period of transitional economy, the basis of the financial and economic model was based on the principles that provide that the main needs of citizens are satisfied through municipal and state enterprises. The model of financial relations was also oriented towards this.

For all 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 centralization of life support systems, monopoly in most sectors of the municipal economy, large amounts of social obligations of the state. An even more important feature is the traditionally low tax capacity 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 a municipal institution. In this case, the municipality of St. Petersburg assumes a dual role, becoming automatically both the owner and the customer. This provision is capable of creating certain difficulties in the process of managing 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 self-government bodies. The result of this contradiction leads to some problems such as:

1. the use of municipal orders 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 requests from municipal enterprises and institutions;

3. mixing of the functions of the customer and the contractor in the activities of enterprises and institutions, corruption in the management bodies. 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 low tax capacity of the population and unsettled interbudgetary relations.

The norms of the law on inter-budgetary regulation based on the 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 for interbudgetary regulation. However, today this concept is not clearly defined in the legislation, which makes it possible to reduce it to ordinary financial standards (in this case, the need for their development disappears) or to consider them as some ideal standards for the consumption of certain types of services (which leads to the impossibility of using them as the basis of 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. Value expression calculated on the basis of financial standards (such as a consumer basket). The procedure for establishing should be determined by federal law, the standard itself should be approved by the Decree of the President of the Russian Federation for several years, and financial standards should be established annually by the Government when formulating the budget.

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

The need for local government autonomy 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 local self-government bodies in St. Petersburg. Unfortunately, economic crisis the last decade and the associated limitation of effective demand to a greater extent work 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, in Russia there is not enough social conditions for the formation of a full-fledged local government. Our society, brought up on distribution system and lumpenized over the past decade, with hard work perceives the very idea of ​​local self-government. At the same time, without the formation of a full-fledged LSG in St. Petersburg, it is impossible to form the civic 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 local self-government in St. Petersburg is implemented in a bureaucratic version.

2.2 Functions

Under such a concept as "the functions of local self-government" is understood 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 to achieve which municipal activities are directed:

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

2. Management of municipal property, financial resources of the MO.

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

4. Satisfaction of basic life needs.

5. Protection of public order.

6. Protection of the interests and rights of local self-government in St. Petersburg, guaranteed by the state.

Functions of the 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 exercised by citizens by way of 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 elective collegial body as an institution of representative democracy and, thirdly, other bodies of local self-government, a special it attaches importance to the participation of the population in solving local issues.

Such forms of direct implementation of local self-government by the population 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 a significant part of municipal employees does not understand the peculiarities of working with various categories of the population in fundamentally new conditions, cannot and does not want to treat the population as equal partners. Today there is a real need to listen to and understand each other, while simultaneously solving two problems: to bring the authorities closer to the population and to attract this population to participate in government.

Poor preparedness of municipal officials to use modern technologies for working with the population in their activities, 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 legal 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, processions and picketing", etc. A large number of such laws have been adopted by the constituent entities of the Russian Federation. They concretize 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 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 municipal entity (Article 215 of the Civil Code of the Russian Federation), that is, property of urban and rural settlements, as well as their finances, which, at the same time, are separated into a separate component (a set of funds generated and used to resolve issues, related to the financing of certain events). Currently, municipal property is enshrined 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 the same cannot be said about 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 issues of local importance directly or through local self-government bodies, proceeding from the interests of the population, its historical and other traditions” (Federal Law “On General Principles of Organization of 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 system 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 corresponding territory. And since the local community is, in fact, the population living in 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 ownership, use and disposal of municipal property is the local community (the population of the municipality). Local governments 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 subdivisions 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 funds from the local budget, municipal off-budget funds. They act as financial resources for 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 of 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-targeted method provides opportunities for the subsequent implementation of integrated approaches to the development of the city as a whole, which unites many socio-economic processes occurring in labor, household, educational, cultural, environmental spheres, as well as to combine social goals and objectives with resources, which will subsequently be necessary for their implementation.

The program-target methodology is a means of developing a territory or an industry and began to be applied back in 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 regulatory and 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 target 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, an orientation only to 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, as by the incompleteness of the measures taken and the imperfection of the system. economic management, both by country and region. The focus on 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 social and the economic growth regions.

In the context of the capitalization of the economy and the development of market relations within the territory of the Moscow region, there are opportunities 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, it can be concluded that it is necessary and possible to use the program-targeted 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 use of the program-target method today is fundamentally different from its use in the past, especially within the framework of LSG.

The economic situation does not contribute to the attractiveness of long-term investments in the production and socio-cultural sphere of cities and districts. Enterprises and individuals strive to implement projects that give immediate returns. In such conditions, the concentration of the necessary investments for solving social problems requires from local governments special methods associated with increasing 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 main activities of enterprises investing in the city's socio-economic programs.

Consequently, the first feature of the use of the program-target method in the conditions of the Moscow region is to supplement it with methods of stimulating the interest of entrepreneurs in the implementation of programs for the development of the territory.

Another feature is related to the new procedure for the implementation of 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 Moscow region. At the same time, the representative bodies of local self-government are entrusted with the duties of monitoring and countering the expanding commercial sale of goods and services of social and cultural industries.

Thus, the inter-sectoral nature of the socio-economic problems of territorial development necessitates the use of the program-targeted 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 joint efforts of all levels of government. At the federal level, the development should be based on the corresponding 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 a given territory and pursuing 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 General Principles of Organization of Local Self-Government in the Russian Federation" are the main areas of activity 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, presupposes, firstly, the concentration in the Ministry of Defense of resources sufficient to carry out the program activities, and, secondly, the preparation and implementation of appropriate programs at lower levels of management. hierarchies that act as subroutines 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 to determine a set of measures for the development of their 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 corresponding programs of the city and the subject of the federation is the basis for obtaining public funds for the development of a particular municipal district. The experience of Western countries also shows that the socio-economic development of local communities is carried out not only at their own expense. The state provides 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 indicate that financial and budgetary policies are formed based on the needs of resource provision of plans and programs, forms and methods of their implementation. Territory development programs and plans are the central link in the local government system.

2.3 Features

What happened to the law of St. Petersburg "On local self-government in St. Petersburg" fully shows how large-scale can be the features and a number of conditions, which have already been discussed above. The draft law 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. 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 self-government bodies 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 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 public authorities. This principle automatically gave rise to many problems that are associated with the conjugation of state authorities and local self-government, which for such a city as 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 municipal formation and, therefore, the presence of a local government body and an official in local government at the level of the city of St. Petersburg is generally not provided for by legislation.

A municipality 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” dated December 25, 1996, establishes a certain list of the territorial unit of the city, within the boundaries of which more than a hundred of eleven municipalities will be located.

3. Legislation provides for the possibility to endow a local self-government body with a number of separate powers, as a public authority. 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 a municipal formation 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 regulations 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. Among the first are municipal councils, three times formed by the local administration, the head of the municipality and subordinate structures.

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

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

In the opinion of some, in this case, a latent, but quite conscious desire of the deputies of the representative body of state power to intervene within the competence of the local community is revealed. But in this case, there is automatically a potential likelihood of appealing this kind of law in the course of 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, Y. Luzhkov) that have come into force regarding a special procedure for the formation of a system of local self-government in cities of federal significance Moscow and St. Petersburg removes many seeming contradictions with federal legislation.

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

At the same time, the legislator has determined that the delimitation of subjects of jurisdiction between local self-government bodies and state authorities of St. Petersburg on these issues is made by the laws of St. Petersburg.

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

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

In accordance with federal legislation, the economic basis for local self-government in St. based on 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. Municipalities are assigned on a gratuitous basis natural resources, movable and immovable property, now in the state ownership of St. Petersburg.

The municipal property includes: the local budget, municipal extra-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, health care, 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 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 can it is in the interests of the population to establish the conditions for the use of land within the boundaries of the municipality ”(clause 3, article 29), but before the adoption of the Land Code of the Russian Federation, most likely, it will be necessary to dwell on what is in the law.

Such a serious issue as economic and financial fundamentals local self-government is difficult to regulate within the framework of the St. Petersburg law 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 governments, in accordance with the law, can establish the procedure for the use of land located within the boundaries of the municipality (clause 3, article 29 of the Federal Law “On General Principles of Organization of Local Self-Government in the Russian Federation”).

In this regard, the legislator found himself constrained by the harsh conditions of rule-making: the lack of development of the relevant federal legislation, the absence of a statutory procedure for the differentiation of property in St. Petersburg into state and municipal, as well as the procedure for delineating the respective powers.

A special role in the practical formation of the local self-government system is assigned in the law by the local budget. The Law of St. Petersburg “On Local Self-Government” includes local taxes, fees and fines, deductions from federal taxes in the composition of the local self-government budget in accordance with the standards established by the legislation; financial resources transferred to local governments for the implementation of certain state powers; proceeds from the privatization of property, 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 self-government bodies and other funds generated as a result of the activities of local self-government bodies.

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 self-government bodies independently”.

As for the articles of the law devoted to the norms of minimum budgetary provision for all municipalities, the creation of municipal extra-budgetary funds, compensation by state authorities for additional costs of local self-government bodies arising in connection with decisions taken by public authorities (Articles 37, 38 of the Law on Local Self-Government Petersburg ”), then they are in accordance with the requirements of federal legislation.

From a practical point of view, the issues of relations between state authorities and local self-government bodies of St. Petersburg are of paramount importance, especially in the initial period of the formation of the local self-government system. It is to these issues that Article 23 of the Law “Relationship between State Authorities of St. Petersburg and Local Self-Government Bodies” is devoted to. Part I of this article contains norms reflecting the obligation of the 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; making 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 on the delineation of powers; conclusion of agreements and contracts between state authorities and local authorities.

The law also provides for the determination by state authorities, in agreement with local authorities, of the conditions and procedure for interaction between structural divisions of state authorities and local authorities of the respective territories. Potential disputes and conflicts between state authorities and local self-government bodies of St. Petersburg can be resolved, according to the law, through the creation of conciliation commissions by them or in court.

Along with Chapter VII “Responsibility of Local Self-Government Bodies and Local Self-Government Officials. Control over their activities ”, the law describes in detail in Articles 42, 43, 44 of Chapter VI of the guarantee of local self-government.

This is one of the most aptly formulated sections of the law. It provides for such guarantees as full autonomy of local self-government bodies within their competence, the obligation to consider official proposals of local self-government bodies by the bodies of state power of St. Petersburg; the establishment of appropriate local government officials social guarantees... 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 associated with the self-organization of citizens at their place of residence in districts, quarters and other territories that are not municipalities. This is the subject of article 26 of the law entitled “Territorial public self-government”.

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;

Territorial public self-government bodies - councils or committees of micro-districts, 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 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 refers to the competence general meetings and conferences of citizens the following issues:

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

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

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

The powers of meetings and conferences are spelled out in the charter of the municipality in accordance with current legislation. The law provides for the possibility of transferring powers falling within the competence of municipal councils and local administrations to bodies of territorial public self-government, as well as the establishment of areas of joint competence. Bodies of territorial public self-government can be, according to the law “On local self-government in St. Petersburg”, legal entities. As such, bodies of territorial public self-government have the right to engage in commercial activities in order to achieve their statutory goals, create, in the prescribed manner, enterprises and organizations that meet the needs of the population in goods and services; to act as a customer for the performance of work on the improvement of the territory and public services for the population, the construction and repair of housing stock, and other social infrastructure; cooperate on a voluntary basis 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 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 a public vote. Possible disagreements between bodies of territorial public self-government and municipal councils are resolved in accordance with the rule of 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 of management of 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 carried out by the local administration.

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 the rule-making work. The legislator will have to develop and adopt laws on the delimitation of powers and subjects of jurisdiction between the state authorities and local self-government bodies of St. minimum local budgets, on the municipal service of St. Petersburg and a number of other laws.

But the biggest problem of the reform of local self-government remains the preparation of the population directly for life in the conditions of self-organization and self-government. Therefore, it is necessary to launch a broad and systematic work to educate and train citizens in the skills and methods of life in conditions of self-government, the foundations 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 accelerate the process of formation of local self-government, the delineation of powers of state authorities and local self-government in St. Petersburg.

The issues of delimiting the powers of the state authorities of St. Petersburg and local self-government bodies are currently a priority problem for the city. The lack of resolution of these issues hinders the normal interaction of government bodies with local government bodies. There are two main reasons that hinder this process:

First, the millennial tragedy of statism is taking its toll on Russian political life;

Secondly, we can talk about the social and psychological unwillingness of the population of St. Petersburg to take responsibility for solving local issues. To this it is necessary to add a kind of information blockade, in which the population stays on issues of local self-government. Thus, the summer (1997) sociological polls of the residents of St. Petersburg showed that 8 out of 10 Petersburgers do not understand the essence of local self-government, do not know what it should do and in what territory it should exist.

In St. Petersburg, as in many other constituent entities of the Russian Federation, one tendency has gained strength and in fact dominates, significantly affecting the processes of interaction between public authorities and local authorities - the desire of public 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 initiative of the population, but by the policy of the state power. The local government itself is not yet in demand by the population. The 17% voter turnout in the elections of municipal councils on February 8, 1998, and their actual failure, convincingly confirm this conclusion.

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

Municipal District Kupchino is a municipal district No. 73 within the Frunzensky District of St. Petersburg. The name of the district (as well as the historical district of the same name Kupchino) 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 in different ways by different sources. From the point of view of the encyclopedia of St. Petersburg, this is an area bounded in the north by Fucik 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, Slava Avenue, Sofiyskaya Street, the Okruzhnaya Railway Line and the Vitebsk Railway Line.

In fact, the borders of Kupchin are somewhat wider. The border of the municipality runs: from Bela Kuna Street along the axis of Bukharestskaya Street to Slavy Avenue, then along the axis of Slava Avenue to the western side of the Vitebsk railway right-of-way, then north along the western side of the Vitebsk railway right-of-way to Fucik Street, then along the the axis of Fucik Street to Budapest Street, then along the axis of Budapest Street to Bela Kuna Street, then along the axis of Bela Kuna Street to Bucharest Street.

It should be noted the significant simplicity of communications within the area, which is lacking in the Vasilievsky municipal district and, on the other hand, the difficulty of passage and travel beyond its boundaries, which makes it possible to clearly distinguish the territory bounded by the lines of railways: the old ring (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 - Sortirovochnaya street. Although according to the documentation, this data is incorrect.

From a historical point of view, only a small area near the railway platform Prospekt Slavy, 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 current streets of Fuchik, Dimitrov and the railway tracks of the Moscow and Vitebsk directions. It was on 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 expanded greatly to the south. The territory from the ring railway to Glory Avenue is sometimes called the new or southern Kupchin.

In connection with the construction of the ring road, the highway to Kolpino (continuation of Sofiyskaya Street) and the active development of the territories located south of the circular railway, it is worth considering including these territories and the Yuzhnaya CHPP in the Kupchino concept. 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 its own name - "Kupchino". About 100 trade, public catering and consumer services are located directly on the territory of the Okrug.

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 - from the economic opportunities of this municipality, enshrined in the standards for the resources used, the set of which must 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 municipal formation (settlement, municipal district and urban district), and does not say anything about “inner-city territories of cities”. To fill this gap, Article 79 of the 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 endow the Kupchino and Vasilievsky municipalities with great functions. Despite the small area of ​​the Kupchino municipality, 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 perceived 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 Constitution of the Russian Federation is constitutionally defined issues of local importance (or a list of issues of local importance), in fact based on the Decree of the President of the Russian Federation of October 15, 1999 No. 1370, which determined that “the Constitution of the Russian Federation names the most important issues of local importance: management of municipal property, the formation, approval and execution of local budgets, the establishment of local taxes and fees, the implementation of public order protection ”, which is not indisputable. It is also impossible to assert with confidence that the Constitution of the Russian Federation classifies "possession, use and disposal of municipal property" as issues of local importance, since these functions are singled out separately (Part 1 of Article 130). In addition, in accordance with budgetary legislation, the formation, approval and execution of the local budget is the competence of local governments as participants in the budget process, and budgetary powers are a means of resolving issues of local importance. According to 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 the law of St. Petersburg and the charters of the Kupchino and Vasilievsky municipalities should be established taking into account the specific aspects of the process of delineating powers between local self-government bodies 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 intracity municipalities, which guarantees equal rights of all citizens to exercise local self-government in the territories of large cities; and the principle of discrepancy between the powers of state authorities of a city of federal significance and the powers of local self-government bodies of intra-city municipalities to resolve issues of local importance, which allows avoiding conflict situations in the process of delimiting powers between local and regional levels of public authority and ensuring efficient spending of budget funds of two levels.

A real analysis of the statutes of the Kupchino MO and Vasilievsky MO 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 Kupchino MO has the following provision: “The vesting of local self-government bodies of the municipality with certain state powers is carried out in the manner prescribed by the current legislation. The judicially recognized inconsistency of the laws of St. Petersburg, other normative legal acts of St. Petersburg, providing for the vesting of local self-government bodies with certain state powers of St. Petersburg, the requirements provided for by federal law, is the basis for refusal to exercise these powers. " But in this Charter there is not a word about the extent to which the IO can be empowered.

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 Charters of the Kupchino MO and Vasilievsky MO are basically similar. Clause 6 of Article 6 of Chapter 4 of the Charter of the Kupchino MO adds to everything one important provision, which is absent in the Charter of the Municipal Council of the Vasilievsky MO. It reads: "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 Charters of intracity municipalities, the Vasilievsky municipal district of St. Petersburg and the Kupchino municipal district, in accordance with the Constitution of the Russian Federation, the Federal Law "On 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 intracity municipal formation, the Vasilievsky municipal district of St. Petersburg.

Conclusion on the second chapter: as a result of the research carried out in the second chapter, we can say that the problems of local self-government in St. Petersburg and individual districts, despite the imperfection of institutions, are being corrected and regional imbalances, especially in some stable local self-government, are decreasing. At the same time, the institutions for the distribution of funds work in such a way that an increase in the salaries of public sector employees and an increase in the volume of social payments simultaneously leads to an equalization of social conditions not only for individual LSGs, but also in the entire city.

3. Improving the LSG system in St. Petersburg on the example of the Vasilievsky municipal district

3.1 Functions of the Vasilievsky municipal district in the system of strategic development goals of the city

As part of the development of the city of St. Petersburg in 2011, a large number of priority programs were planned. For a long time, the Vasilievsky District has been one of the most actively developing parts of the city of St. Petersburg. The head of the municipality and the management group constantly carry out constructive actions that are aimed at creating the most comfortable and prosperous living conditions for the townspeople.

Gudimov Anatoly Gennadievich - Chairman of the Municipal Council. Born in 1962, higher legal education, lives on the 13th line of Vasilievsky Island. From 1982 to 1985 he served in the Northern Fleet. From 1985 to 1998, he served in the militia in the Vasileostrovsky district police department as a police officer of the seizure group, district police inspector, deputy head of the 30th militia department, militia captain, was awarded the medal "For impeccable service". From 1998 to the present, he is a deputy of the Municipal Council of the Vasilievsky District (formerly No. 8), chairman of the commission for improvement. Married, two children, daughter 22 years old, son 19 years old (cadet of the Mozhaisky Military Academy).

Repair of heating networks at the moment is one of the main tasks in the urban planning and repair area of ​​the Moscow region. The problem of heating units is quite urgent, and not only within the framework of a certain municipality, but also throughout our country. The vice-governor of the city of St. Petersburg Aleksey Sergeev believes that it is the development of heating networks that will play a key role in protecting the townspeople from the coming severe winter, which, according to climatologists, may turn into a real disaster for the residents of our country.

The past 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 cleared or processed from harmful pollution. Places near water bodies were used chaotically, and in many cases people dived into water sources directly from rock ledges. This resulted in injuries and injuries of varying degrees among the urban population, which increased especially in July and August.

In this regard, the leadership of the Vasilievsky MO held a meeting with Vice Governor Alexei Sergeev on the development of unorganized recreation sites, the pollution of which began to negatively affect the city residents fleeing the scorching and abnormal sun in the water and in places near it. Opening the meeting, the vice-governor outlined the main goal - to discuss and formulate the main issues of the plan for the maintenance, service, development of beaches and coastal areas [Appendix 4]. Aleksey Sergeev said that at this point in time the weather conditions have worsened 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 negatively affects the general situation, and besides that negatively affects the townspeople, reduces the tourist attractiveness of the city. For 2011, it is planned to massively clean up the coastal areas, the delivery of sand and equipment for the beaches. During the meeting, proposals from district administrations and industry departments on the development and maintenance of territories of this purpose were listened to, as well as fundamentally important decisions were made that relate to the development of unorganized recreation, increase funding for the maintenance of coastlines. It was proposed that until 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 territories near the coastlines with additional parking spaces, and also noted that this work within the Vasilievsky municipal district is already gaining momentum by the summer and should be over by the opening of the 2011 beach season.

Turning to the heads of regional administrations, A.I. Sergeev clearly set the task in the near future to develop a concept of the territorial development program and submit it to the Governor for approval. The main positions, in his opinion, were to be plans for technical equipment with harvesting equipment, improvement of the material and technical base. It was proposed to add showers and changing cabins to 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 establishment of beach rescue units and rescue operations, which are also a very important part of the safety of life in the city. The equipment of civilized beach areas is almost the primary task of the Vasilievsky municipal district, since this territory is surrounded on all sides by water, moreover, 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 Vasilievsky municipal district in the system of strategic goals of the city's development 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, was tasked with making a complete renovation of roofs and insulating the roofs of houses where veterans and blockade soldiers live in the first place. In general, as noted by the Governor, this process should be accelerated and the entire roof should be repaired before the beginning of winter or with little delays. Naturally, as V. Matvienko explained, the entire scope of work will be completed in 2010. A large number of unrepaired houses will survive the winter, the roofs of which have been severely damaged by 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 renovate the entire roof in urban municipal housing. An additional 550 million will be allocated from the city budget for the next roof repair works. This money is planned to be distributed among the districts for their further targeted use. Valentina Matvienko stressed that the repair of municipal housing, primarily in the apartments of veterans and blockade soldiers, 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 has no right to finance the elimination of leaks in the apartments of the owners. The manpower and resources for carrying out these works should be found and distributed by the time frame of 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, according to the governor, should be prepared especially carefully.

By 2011, it is planned to complete the repair of tram tracks on several streets of the Vasilievsky municipal district. Customer - Committee for Landscaping and Road Facilities. In addition, the district administration has approved the project 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 Vasilievsky municipal district either. 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 "Light City" for 2008-2011. Based on these documents in the area for the period up to 2013. the regional program "Light City" has been developed. In 2010, due to serious funding shortfalls, work on the development of outdoor lighting in the Vasilievsky municipal district was complicated. At the beginning of the summer season, a fire hazardous situation also caused deficiencies in the budget, due to which the project was again not fully implemented and even began to lag behind in terms of implementation.

State Institution "Housing Agency MO Vasilievsky" plans to carry out work on lighting staircases, arches, entrances of residential buildings and repair of intra-quarter lighting. The amount of funding for the program will be determined at the expense of the industry 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 uncomfortable areas of the district, including beach areas in the amount of 12 191.8 thousand rubles. In addition, work will be carried out in the district to demolish 83 trees, 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 of public facilities for 2010 has not yet been determined. Routine repair and maintenance of roads. Financial supply of works on the current maintenance and repair of roads in the region is carried out at the expense of the State Institution "Center for Integrated Improvement".

3.2 Budgetary financing of LSG

The main funding was 11 275, 0 9 751.0 MSU MO "Vasilievsky" took place through taxation, which in the total income amounted to 7 887.2 thousand rubles in the last half of the year. The tax levied in connection with the application of the simplified taxation system to the treasury amounted to 4,571.5 thousand rubles. The tax levied on taxpayers who chose their 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. Property taxes to the treasury of the LSG MO “Vasilievsky” amounted to 1,849.7 thousand rubles. Property tax individuals levied at the rates applicable to taxation objects located within the boundaries of intracity municipalities of federal cities of Moscow and St. Petersburg amounted to 1,849 thousand rubles.

The revised financing plan for 2011, taking into account entrepreneurial activity, 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 for subsections:

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

General government issues -55% of the total expenses,

Housing and communal services - 19%,

Social policy - 15.7%.

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

table 2

Revenues of the Vasilievsky MO for the first half of 2010 from taxes

The budget of the LSG MO "Vasilievsky", as well as the budget of the city, has a pronounced social orientation - more than 80% of budget funds are spent on the social sphere: these are the costs of wages to employees of institutions of the MO "Vasilievsky", payment of various types of material assistance to the population, payment of subsidies , subsidies, purchase of products for the needs of the district institutions. The current budget of the LSG MO "Vasilievsky" is a development budget and at the same time a socially oriented budget. Over the past five years, funds have been increased many times over for social programs, health care, road construction and repairs, and landscaping of courtyards. Work is actively underway to implement the national projects "Education", "Health", "Affordable and Comfortable Housing - for the Citizens of Russia."

Expenses in the field 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 economy.

Municipal target programs to improve the level of security of the housing stock in the territory of the municipality 97.1 thousand rubles. The performance of functions by the local self-government bodies of the Vasilievsky municipal district, as well as the previous figure, was 97.1 thousand rubles [Appendix 3].

A considerable 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 costs of 884.2. (Table 3)

Table 3

Culture, cinematography and the media in the first half of 2010 were one of the top spending areas. The total amount was 1,295.8 thousand rubles. 923.0 thousand rubles were spent on the development of culture. Organization of local and participation in the organization and holding of city festive and other entertainment events amounted to 907.0 thousand rubles, not exceeding the plan. Local government bodies performed their main functions in the amount of 907.0 thousand rubles.

Municipal target 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 side functions by local government bodies 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 LSU of the Vasilievsky municipal district. This includes a number of municipal target programs for information activities and dissemination of mass information in the territory of the Municipal Formation, the implementation of which required costs in the amount of 365.0. This number also includes the performance of functions by local government bodies in the framework of periodicals.

Other issues in the field of culture, cinematography, mass media amounted to 7.8 thousand rubles. Municipal target programs for information activities and dissemination of mass information on the territory of the Municipal Formation amounted to 7.8 thousand rubles of expenses. Fulfillment of functions within the framework of these target programs by local authorities amounted to 7.8 thousand rubles.

Social policy in many regions and municipalities is one of the main parts of the budget. So the social policy in the Vasilievsky municipal district amounted to 2,118.8 thousand rubles of budget expenditures. They include family and childhood protection, 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 stood at 1,500.1 thousand rubles. Execution 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 the Vasilievsky MO for the first half of 2010 on Culture, cinematography and the media

Payment of remuneration to adoptive parents amounted to 578.7 thousand rubles, of these funds, the fulfillment of certain state powers at the expense of subventions from the compensation fund of St. Petersburg also amounted to a share of 578.7 thousand rubles. Other issues in the field of social policy in local education cost the treasury 40,000 rubles. This included municipal targeted social policy programs. The performance of functions by local government bodies within the framework of social policy amounted to 40.0 thousand rubles. (Table 5)

It is possible to note the favorable state of the Vasilievsky No. in the field of financing, since the items of expenditure are expedient, and also do not exceed an unmarked number, in addition, they do not exceed revenues that go to the treasury in a structured and organized stream.

Table 5

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

3.3 Improving the state of the LSG system in St. Petersburg on the example of the Vasilievsky municipal district

Urbanized sparsely populated regions, for example, Karelia, Krasnoyarsk Territory are characterized by a rather high role of municipal bodies, variability of their organizational structures (including the use of the city manager model in some municipalities), 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 a low population density and settlement, such as Yakutia and the Tomsk region, follow the path of preserving the existing municipal mechanisms in combination with the deconcentration of public administration (transfer of 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 with the decrease in the degree of development of the territory and the density of settlement (Yakutia, Krasnoyarsk Territory, Tomsk and Arkhangelsk regions).

Finally, the city of federal significance, St. Petersburg, considered in this thesis study, stands apart, combining the maximum urbanization and population density with the minimum density of settlement 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 self-government, the Vasilievsky municipal district and other districts.

In part, this separation of power and self-government may be a consequence of the historical distrust of people in power. These are the results shown by a public opinion poll. So, for the residents of St. Petersburg, their power ends at the level of their elected leaders of homeowners' associations, 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 TPSGs, 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 implementation of these opportunities depends on ordinary people including.

Some of the respondents believe that the prospects of local self-government are directly behind TPSGs (house committees, street committees), but this requires appropriate changes in public consciousness. Some respondents propose to supplement the scheme with the level of homeowners' associations, which they also consider to be a kind 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. So, the position of the residents of the Vasilievsky municipal district is interesting, who want to strengthen the role of HOAs 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 TOS.

Most of the respondents are convinced that the heads of territories should be elected by the population, and not appointed by state bodies. Among residents of the North-West, Yaroslavl Oblast and Primorye, this is a consolidated position, in Siberia and the Volga region, it is dominant. Sometimes the research participants express certain doubts about the effectiveness of electoral mechanisms, but still do not see the possibility or any other ways for the formation of municipal bodies.

Most of the respondents from these regions believe that local self-government bodies should not be part of the structure of government bodies, 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 regional government, was 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 the elected deputies, according to the respondents, is their proximity to the residents, as well as their local origin.

In this regard, it is rather difficult to characterize the LSG system of the Vasilievsky MO as positive. The low trust of the city authorities leads to the emerging mistrust among the population, in relation to the 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 light of this, the population ceases to present local authorities as acting instruments, using which people can achieve certain results of their petitions. Therefore, the best proposal would be to endow the local self-government bodies of the Vasilievsky municipal district with great functions and rights, which would increase the possibilities of cooperation with the local population and raise the status of local self-government.

An important point lies in 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 the provision of methodological and advisory assistance in the preparation and conduct of elections of deputies of municipal councils of municipalities of the fourth convocation in St. Petersburg. It is important to assist in organizing and conducting field reports of the head of the district administration and heads of local government to the public and residents of the district on the issue: "On the results of economic and social development of the Vasilievsky municipal district in 2010 and tasks for 2011". Such meetings can be held at special conferences. Representatives of local self-government bodies should take part in meetings, flower-laying dedicated to memorable dates. This will definitely help bring the population and local government closer together. It is necessary to continue the work on information exchange with local self-government bodies.

Conclusion on the third chapter: in the diploma study, which was carried out in the first chapter, it was substantiated that in relation to St. Petersburg, as for the Vasilievsky municipal district, 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 formulate in advance a structural analysis of further development with the participation of representatives of the capital cities and the federal government.

Conclusion

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

The forecasts are: structural objects of industries, composition of budget expenditures by economic items, targeted programs in the field of overhaul of housing elements and objects of the social sphere of the district, as well as measures in the implementation of comprehensive targeted programs and national projects.

Consolidation of budget funds and the implementation of measures 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 allow in 2010 a large number of works in the area of ​​improvement of the district's territory, capital and current repair of housing stock and social facilities, to carry out a number of social activities aimed at raising the quality level and living conditions of the residents of the Vasilievsky municipal district.

So, as a result of the research conducted by the author in his thesis, the following conclusions can be drawn:

1) in terms of its economic, demographic, socio-cultural potential, the Vasilievsky municipal district is most prepared to perform the functions of servicing the entire territory of the district and will be the most significant nodal element of the project supporting frame of the territory. Currently, 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 district;

3) in the spatial policy of the Vasilievsky municipal district great importance it is the regional institutions that play, since they directly manage the processes, while the federal ones set 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 harmonizing the interests of a part and a whole, that is, the region and the Federation;

4) regional imbalances, especially in some stable areas, are decreasing. Institutions for the distribution of money work in such a way that an increase in the salaries of public sector employees and an increase in the volume of social payments simultaneously leads to the equalization of social conditions of the Vasilievsky municipal district;

5) target and state programs have been implemented, which makes it possible to assert about ensuring the effectiveness of district management, as well as carrying out the planned work on the reconstruction of the 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 on the basis of market mechanisms of the regional environment have not yet received sufficient development. However, the practice of ensuring the socio-economic development of regions can help to improve this process.

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Annex 1

Social foundations of the functioning of LSG in Russia

Appendix 2

The legal basis for the existence of LSG in Russia

Appendix 3

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

Appendix 4

Location of the Moscow Region "Vasilievsky"

The border of Vasilyevsky MO runs: from the continuation of Sredny Prospekt VO along the axis of the Malaya Neva River to the Smolenka River, then along the axis of the Smolenka River to 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 prospect V.O., further along the axis of Sredny prospect 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 laws 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 PFUR / 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 pp.

USSR Law of 09.04.1990 "On the General Principles of Local Self-Government and Local Economy in the USSR"

Law of the Russian Federation of 22.10.1992 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) (taking into account the amendments introduced by the Laws of the Russian Federation on amendments to the Constitution of the Russian Federation of 30.12.2008 N 6-FKZ, of 30.12.2008 N 7-FKZ), Art. 132

ФЗ № 154-ФЗ dated August 28, 1995 "On the general principles of the organization of 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) //" Collected Legislation of the Russian Federation ", 09/07/1998, N 36, Art. 4466

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

Law of 06.07.1991 No. 1550-1 "On local self-government in the Russian Federation" "Vedomosti SND and the Supreme Council of the RSFSR", 18.07.1991, N 29, art. 1010

Federal Law of 26.11.1996 No. 138-FZ "On ensuring the constitutional rights of citizens of the Russian Federation to elect and be elected to local government bodies" "Collected Legislation of the Russian Federation", 02.12.1996, 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, N 45, art. 5462

Decree of the President of the Russian Federation of April 28, 2008 No. 607 "On assessing the effectiveness of the activities of local self-government bodies in urban districts and municipal districts" "Collected Legislation of the Russian Federation", 05.05.2008, No. 18, art. 2003

Decree of the President of 15.10.1999 No. 1370 "On the approval of the main provisions of state policy in the development of local self-government in the Russian Federation" "Collection of legislation of the Russian Federation", 18.10.1999, N 42, art. 5011

Regional economy: textbook for universities / T.G. Morozova, M.P. Pobedin, 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

In the same place. - P. 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 on January 22, 2008, http://www.medvedev2008.ru/performance_2008_01_22.htm

Russian Local Self-Government: Results of the 2003-2008 Municipal Reform. 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. Starodubrovskaya I.V. M., 2008. Data for 11 months. 2007 year

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