Introduction

The modern period in the development of human society has brought the understanding that a democratic, rule-of-law state can solve basic problems only if there is a developed system of self-government. "Making up one of the foundations of the constitutional system of the rule of law, local self-government allows democratizing the administrative apparatus, effectively solving local issues and ensuring that the interests of local communities are taken into account when conducting state policy, and optimally combining the interests and rights of human beings and the interests of the state."

The institution of local self-government plays a significant role in the formation of civil society, since all civil rights and mass types of activity, various non-state manifestations of public life of people arise and ultimately are implemented in local communities that form the basis of civil society.

Relevance of the research topic. The guarantee and foundation for the exercise of public authority, including municipal authority, is a clear delineation of powers between authorities. Local self-government is today the most important element of the state structure of the Russian Federation, which is entrusted with the independent performance of especially important functions: improvement, housing and communal services, health care, education.

The problem of the imbalance of powers, resources and responsibility, which currently exists in the field of local self-government, is caused, in addition to the general economic crisis, by an insufficient legislative base, which largely reduces the democratic potential of the model of Russian local self-government. Many municipalities found themselves dependent on the executive authorities of the constituent entities of the Russian Federation. According to A.A. Sergeeva: "The constitutional principle of independence of local self-government unexpectedly turned into a negative side for him."

In 2003. the Federal Law "On General Principles of Organization of Local Self-Government in the Russian Federation" was adopted, the federal and regional centers began work on the implementation of this Law.

In large cities, local government is now carried out only at the city level. Currently, the city is more and more identified with the concept of "municipality". In the 2003 Law on Local Self-Government. this municipal structure is called an urban district. There can be no other municipalities on this territory.

Rationally organized local self-government in urban districts makes it possible to effectively use local resources, relieve social tension in society, increase public confidence in the authorities, strengthen the state vertical of management of socio-economic processes from below, and promote sustainable economic growth in the urban district.

According to the results of work on the establishment of the boundaries of municipalities and endowing them with the appropriate status, the total number of municipalities in the Russian Federation as of March 1, 2009 was 24396, of which 532 urban districts.

However, the current system legal regulation powers of local self-government bodies for urban districts is a situation when, with minimal resources, the urban district bears the main burden of socially important expenses, including in relation to neighboring rural and urban settlements, remaining hostage to imperfect legislation and its implementation.

The amendments made on December 31, 2005 to the 2003 Law on Local Self-Government, in fact, legalized the situation when local self-government bodies have the right to exercise any powers of state authorities.

One of the political problems is the need to ensure the unity of all three levels of public authority in the activities to regulate the mechanism for exercising the powers of local self-government bodies. Disunity, disinterest of the authorities at various levels causes uncontrollable processes that are negative not only for local self-government, but also for the state system of power. At the moment, the problems of local government in general view can be expressed in two positions - lack of financial independence and political autonomy of the municipal government.

The state of scientific elaboration of the topic. The study of the economic and legal mechanism for the implementation of the powers of local self-government bodies in the Russian Federation in different years was carried out by both political scientists and economists and lawyers. The problem is borderline and is at the junction of a number of humanitarian disciplines.

The information base of the research was the research of S.A. Abakumova, G.V. Atamanchuk, V.I. Butova, V.I. Vasilieva, I.N. Gomerova, V.G. Ignatova, N. Ya. Kytmanova, V.G. Ledyaeva, M. Yu. Martynova, A.A. Sergeeva, V.F. Khalipova, E.S. Shugrina, A.A. Yugov.

Local self-government as a factor in the formation of civil society is considered by O.G. Bezhaev, A.A. Zamotaev, V.S. Mokrym, A.V. Lagutkin, A.A. Linev, A.I. Cherkasov.

The tendencies of centralization at the federal level of legal regulation of local self-government, its political consequences are traced in their works by O.A. Alexandrov, M.A. Krasnov, I.I. Ovchinnikov, A.A. Sergeev, V.V. Nevinsky. As M.Yu. Martynov, “the correlation between centralization and decentralization becomes a fundamental problem of the system of political governance”, and “the distribution of powers between the central government and local government becomes a condition for the successful transformation of the political system and the political regime”.

The works of B.B. Afanasyeva, V.A. Baranchikova, R.V. Babuna, L.E. Burdy, Yu.A. Dmitrieva, A.N. Kostyukova, V.V. Pylina, S.G. Solovyova, A.A. Sergeeva, V.I. Caskets.

Particular attention is paid to the issues of interaction between local self-government bodies and public authorities, the delineation of powers between them in the works of S.A. Avakyan, I.V. Babicheva, O.V. Berg, P.A. Besov, V.I. Vasilieva, S.A. Golosovoi, E.M. Koveshnikova, T.F. Kolkneva, V. Mateyuk, T.N. Mikheeva, R.F. Saifitdinova, M.V. Stolyarova, Yu.A. Tikhomirova, A.A. Uvarova.

The peculiarities of the implementation of municipal power in cities were investigated by A. Borisov, N.I. Zakharova, V.M. Manokhin, N.P. Medvedev, V.V. Nelubin. The work of V.N. Leksina, A.N. Shevtsov, in which the political aspects of the reform of the municipal government are considered, the characteristics of resources, state policy of support of Russian cities are given.

In recent years, many monographs and articles have also been published on certain economic aspects of the reform of local self-government (A.O. Aleksandrov, A.G. Gladyshev, V.I. Ivankov, V.B. Zotov, A.V. Kruzhkov, S. V. Kudeneev, L. Lovat, G. Leontiev, V.I. Pisarev and others).

The methodological basis of the research is based on a comprehensive methodology of systemic, institutional analysis.

The purpose of the thesis is based on the analysis of the organizational structure of the local government to suggest ways to improve it.

Based on the goal, the following tasks are set:

1) explore the history of the formation of local self-government;

2) reveal theoretical aspects organizational structure of the local government

) to analyze the organizational structure of the research object;

) develop measures to improve the organizational structure of the research object

The object of the study is the administration of the Akhtuba rural settlement.

The subject of the research is the organizational structure of a local government body.

Graduate work consists of an introduction, three chapters, a conclusion and a list of used sources and literature.

The first chapter discusses theoretical basis and the current state of the local government system.

The second chapter presents the results of the author's economic and legal analysis of the organizational structure of the Akhtuba rural settlement.

The third chapter offers directions for improving the organizational structure of Akhtubinsky rural settlement.

The practical significance lies in a comprehensive analysis of the organizational structure of the research object.

Local self-government plays an important role in the implementation of one of the main tasks of our time - the unification of the interests of the state, society and the individual into a single whole, since main meaning, the essence of local self-government is to harmonize the rights and freedoms of man and citizen with the interests of the state and society at the level of each individual individual. It is this orientation of local self-government that meets the ideas of a modern democratic legal social state, the highest value of which is a person, his rights and freedoms.

1. Local government: concept, basic principles and functions

1.1 The concept of local government

What is the concept of "local self-government"? There are three main directions, which, nevertheless, do not exhaust the whole variety of definitions of this concept existing in the legal literature. The first, prevalent mainly in pre-revolutionary legal science, concerns local self-government as a type of government. V.P. Bezobrazov, N.M. Korkunov characterize local self-government as an integral part of state administration, which can be carried out by local residents. The second direction - modern - understands local self-government as a system of organization and activity of citizens, providing independent (under its own responsibility) solution of local issues by the population, management of municipal property, proceeding from the interests of all residents of a given territory.

The third direction is characterized by the understanding of local self-government as the participation of local residents in solving problems of local importance and as one of the types of government. S.A. Avakyan believes that factors such as the presence or absence of state-power principles in local self-government, its position in the system of government of a given state, a set of functions of local self-government, its material and financial base should be of decisive importance for understanding the nature of local self-government.

Local self-government in the Russian Federation is a unified system of self-organization and activity of the population, consisting of institutions of direct and representative democracy. This conclusion is based on the fact that in accordance with Part 2 of Art. 130 of the Constitution of the Russian Federation "local self-government is exercised by citizens through a referendum, elections, other forms of direct expression of will, through elected and other local government bodies." In the development of the Constitution, the Federal Law "On General Principles:" provides for the obligatory presence of elected bodies of local self-government, in particular, a representative body of local self-government, consisting of deputies elected on the basis of general, equal and direct suffrage by secret ballot.

The above gives reason to assert the following:

The principle of local self-government is recognized by the Constitution of the Russian Federation and federal legislation as one of the foundations of the constitutional system, a democratic institution of civil society.

The Constitution of the Russian Federation and federal legislation guarantee the right of citizens to local self-government, which means the consolidation of stable principles of organization of local self-government, self-organization, independence in resolving issues of local importance, not joining the system of state authorities, the establishment of competence mainly by law and a ban on its restriction, the right to judicial protection of local self-government.

Citizens and local self-government bodies are vested with the right to independently, i.e. not being in hierarchical relations with any structures, conforming their activities when making decisions only with the law, to resolve issues within their competence. 4. Local self-government is carried out under its own responsibility, which means threefold responsibility - to the population, to individuals and legal entities.

The activity of local self-government proceeds from the interests of the population of the relevant municipality... We are talking about citizens living in the territory of the municipality and exercising their right to exercise local self-government. 6. Citizens exercise local self-government through direct expression of their will and through local self-government bodies, and the presence of elected bodies is mandatory.

This activity takes into account historical and other local traditions, which makes it possible to build local self-government in accordance with the local specifics of a natural-geographical, economic nature.

Local self-government in the political system of Russia is a special institution that includes state and social principles.

On the one hand, local self-government has the characteristics of an imperious, state institution:

The right to adopt (issue) legal acts binding on all enterprises, institutions, organizations and citizens located on the territory of the municipality. The difference between these acts and acts of state authorities lies only in the locality of the territory within which these acts operate, but in this respect there is a direct analogy with acts of state authorities of the constituent entities of the Russian Federation, the action of which also applies only to a part of the territory of Russia.

Liability established by law for non-fulfillment or improper fulfillment of legal acts of local self-government.

The right to create municipal bodies for the protection of public order - bodies in the system of local self-government that have legislative powers to use enforcement of laws and acts of local self-government.

On the other hand, local self-government as one of the forms of self-organization of citizens has signs of a public institution:

The structure of local self-government bodies and the division of powers between bodies are determined by the population independently, and not established by legislation.

Issues attributed to the competence of local self-government can be resolved by local referendums and gatherings (assemblies) of citizens.

The population of municipalities has the right to legislative initiative.

One of the elements of the local self-government system is territorial public self-government - the self-organization of citizens at their place of residence on a part of the territory of the municipality for independent, under their own responsibility, implementation of their own initiatives in matters of local importance.

The population has the right to participate in the implementation of local self-government in any form that does not contradict the Constitution of the Russian Federation and legislation.

The indicated dual character of local self-government is caused by its nature. Local self-government, as the power closest to the population, arises from the need to resolve issues of local importance in a certain territory, to ensure the satisfaction of the basic vital needs of the population and therefore acts in direct connection with the population, acquiring the forms of both a state and a public institution.

So, local government is the most important element of a democratic state. The development of local self-government in Russia is associated with hopes for the development of a democratic civil society.

1.2 Basic principles and functions of local government

Before proceeding with the disclosure of the topic, I think that it is necessary to say a few words about what local self-government is, what are its principles and functions.

In Art. 3 paragraph 1 of the "European Charter of Local Self-Government" states that "Local self-government is understood as the right and real ability of local self-government bodies to regulate a significant part of public affairs and manage it, acting within the framework of the law, under their own responsibility and in the interests of the local population."

According to Art. 3 of the Constitution of the Russian Federation, the people exercise their power directly, as well as through state authorities and local self-government bodies. Thus, local self-government is one of the forms of the people exercising their power.

"Local self-government in the Russian Federation is the independent, and under its responsibility, the activities of the population, recognized and guaranteed by the Constitution of the Russian Federation, to resolve issues of local importance directly or through local self-government bodies, based on the interests of the population, its historical and other local traditions."

Local government as a form of democracy has the following main features that characterize local government, its place in the system of government:

) local self-government has a special subject: the population of the municipality, citizens;

) local self-government (a special form of a democratic mechanism for governing society and the state);

) local self-government has a special object of management: issues of local importance related to ensuring the life of the population of the municipality;

) local self-government has a special form of organization and exercise of power - independence;

) local government carries out its activities under its own responsibility;

) local self-government is carried out taking into account the interests of the population;

) in local self-government, historical and other local traditions are reflected.

The Constitution of the Russian Federation, Federal Law of the Russian Federation No. 131 “On General Principles of Organization of Local Self-Government in the Russian Federation”, the corresponding laws of the constituent entities of 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.

The general principles of local self-government include:

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

) 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;

) compliance of material and financial resources of local government with its powers.

The Constitution of the Russian Federation, guaranteeing the economic and financial independence of local self-government, recognizes and protects municipal property on an equal basis with other forms of ownership (Article 8). According to Article 1 of the Federal Law "On General Principles of Organization of Local Self-Government in the Russian Federation", municipal property and the local budget are an integral attribute of each municipal formation;

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

) a variety of organizational forms of local self-government;

) observance of human and civil rights and freedoms;

) legality in the organization and activities of local government;

) publicity of the activities of local self-government;

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

) state guarantee of local self-government.

The functions of local self-government are understood as the main directions of municipal activities. These include:

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

) management of municipal property, financial resources of local government;

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

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

) protection of public order;

) protection of the interests and rights of local self-government guaranteed by the Constitution of the Russian Federation, Federal Laws, Constitutions, Charters and laws of the constituent entities of the Russian Federation.

According to Art. 130 of the Constitution of the Russian Federation, local self-government in the Russian Federation is exercised by citizens both through various forms of direct expression of will (referendum, elections, other forms) and through local self-government bodies.

In accordance with the Federal Law of the Russian Federation "On the General Principles of Organization of Local Self-Government in the Russian Federation" (Article 14), local self-government bodies include:

representative bodies of local self-government;

other bodies of local self-government, formed in accordance with the charters of municipalities.

In general terms, according to the functions performed (representing the interests of the population and their implementation), municipal government bodies can be divided into representative and executive.

In the Constitution of the Russian Federation, there is no direct mention of the executive bodies of local self-government. But this does not mean that they should not be. Along with the elected bodies of local self-government in part 2 of Art. 130 The Constitution of the Russian Federation names other bodies of local self-government, i.e. the list of local self-government bodies is open. If in the special Federal Laws regulating relations in the system of local self-government, there is no mention at all about the executive bodies of local self-government, then in the normative acts of the constituent entities of the Russian Federation they are not only indicated, but also endowed with significant powers to solve problems of local importance and carry out part of state functions.

A representative body of local self-government is an elected body of local self-government that has the right to represent the interests of the population and make decisions on its behalf that are in effect on the territory of the municipality.

The main principles of the functioning of representative bodies of local self-government are:

Obligations of representative bodies in the system of local self-government - The Federal Law of the Russian Federation "On General Principles of Organization of Local Self-Government in the Russian Federation" establishes the obligatory presence of an elected body of local self-government in a municipality.

The principle of electivity - representative bodies of local self-government are formed on the basis of universal, equal, general suffrage, by secret ballot.

The principle of the representative nature of the elected bodies of local self-government - the representative body is endowed with the right and duty, to represent and take into account the interests of the population of the municipality.

The principle of independence is the empowerment of representative bodies of local self-government with their own competence to resolve issues of local importance.

The principle of responsibility of the representative body of local self-government - that is, the responsibility of the representative body comes through the loss of public confidence. Sanctions in this case can be expressed in the form of a recall of a deputy of a representative body, or in the early termination of the powers of a representative body.

The principle of ensuring the rule of law in the activities of a representative body of local self-government - in accordance with this principle, representative bodies are obliged to strictly comply with the requirements of legality in their own daily work, as well as to seek the implementation of the law by all other subjects in the field of local self-government.

The principle of publicity in the work of representative bodies of local self-government - representative bodies act openly, publicly, systematically inform citizens about their work. Glasnost is realized through meetings and receptions by deputies of voters, through reports of deputies to voters, coverage of the activities of representative bodies in the media.

The principle of collegiality - a representative body of local self-government makes decisions in a collegial manner. In this regard, there is such a concept as a quorum. A quorum is a statutory minimum required number of deputies for the official consideration and resolution of issues of local importance. Meetings of a representative body may be eligible, provided that at least 2/3 of the number of elected deputies is registered. Acts of a representative body of local self-government are considered adopted if more than half of the elected deputies voted for them.

In accordance with Art. 15 of the Federal Law of the Russian Federation "On General Principles of Organization of Local Self-Government in the Russian Federation", a representative body of local self-government consists of deputies elected on the basis of universal, direct and equal suffrage, by secret ballot in accordance with Federal Laws and laws of the constituent entities of the Russian Federation. The numerical composition of the representative body is determined by the charter of the municipality. At the same time, there is a direct relationship between the size of the municipality, the size of its population and the size of the representative body of local self-government.

Typically, a representative body includes from 5 to 60 deputies. The name of the representative body is determined by the charter of the municipality - the representative bodies of local self-government are dumas, municipal assemblies, committees, councils, etc.

In Art. 15 of the Federal Law of the Russian Federation "On the General Principles of Organization of Local Self-Government in the Russian Federation" it is established that the following are under the exclusive jurisdiction of the representative bodies of local self-government:

) Adoption of generally binding rules on the subjects of jurisdiction of the municipality, provided for by the charter of the municipality.

) Approval of the local budget and the report on its implementation.

) Adoption of plans and programs for the development of the municipality, approval of performance reports.

) Establishment of local taxes and fees.

) Establishment of the procedure for the management and disposal of municipal property.

) Control over the activities of local self-government bodies and officials of local self-government, which are provided for by the charters of the municipality.

The Federal Law of the Russian Federation "On the General Principles of Organization of Local Self-Government in the Russian Federation" gives the representative bodies of local self-government the right to initiate legislation. Other powers of the representative bodies of local self-government are determined in the Charter of the municipality. Such powers usually include setting the date for elections of the head of the municipal formation, calling a local referendum, adopting the Charter of the municipal formation, transferring powers to territorial public self-government bodies, agreeing on the appointment of local government officials, as well as expressing no confidence in the head of the municipal formation.

The term of office of a representative body in accordance with the Federal Law of the Russian Federation "On General Principles of Organization of Local Self-Government in the Russian Federation" cannot be less than two years, but not more than 5 years. The specific term of office of the representative body of local self-government is determined by the charter of the municipality, and is, as a rule, 4 years. In some settlements, the Charter of a municipal formation, in accordance with the laws of the constituent entities of the Russian Federation, may provide for the possibility of exercising the powers of representative bodies by assemblies and gatherings of citizens. In accordance with paragraph 3 of Art. 16 of the Federal Law of the Russian Federation "On General Principles of Organization of Local Self-Government in the Russian Federation" in accordance with the Charters of municipalities, the head of a municipal formation elected by the population may be entitled to be a member of a representative body and chair its meeting.

1.3 Municipal budgets - the financial foundations of local self-government

Each municipality has its own budget. "The local budget (the budget of the municipal formation) is a form of formation and expenditure of funds intended to ensure the tasks and functions referred to the subjects of local self-government."

Traditionally, the local budget included: district, city, rural and settlement budgets, district budgets in cities. In the budgetary system of the country, which is the main financial base for the activities of state authorities and local governments in the field of economic and social development of the respective territories, local budgets are the most numerous. Being the lower link of this system, they, figuratively speaking, represent its foundation, on the strengthening of which the strength and reliability of the entire system depends. At present, about 60% of all budgetary expenditures on the social sphere and more than 40% of expenditures on the national economy are concentrated in local budgets.

The local budget is a centralized fund of financial resources of a separate municipality, the formation, approval and execution, as well as control over the execution of which are carried out by the local government independently. The budgetary system of the Russian Federation, based on economic relations and state structure.

The state provides local self-government bodies with certain financial guarantees necessary to ensure efficient operation. In general, the content of financial guarantees to local governments is the process of generating incomes of municipalities, the procedure for their distribution and control over their use. The most important guarantee is the guarantee of financial independence resulting from the distribution of power and authority in the state.

The guarantee of financial independence in matters of local authorities includes the existence of their own sources of income and independent budget management under the legal control of higher levels of government.

In the interests of the state, the necessary restrictions are imposed on the financial independence of local authorities. Thus, the municipality must follow the main directions of national policy. Certain restrictions may be imposed on certain parameters of local budgets, for example, the maximum amount of borrowing. It also sets limits on the authority of local authorities to levy taxes. However, restrictions on the financial independence of municipalities should not impede the effective functioning of the local financial system.

The timeliness of payment of wages, the availability of electricity, water and heat in houses, i.e., in fact, all issues of life support of the population, and, ultimately, social stability, largely depend on how effective financial management at the local government level is. Given the high level of responsibility for the management of public funds, it is important to be guided by scientific financial management methods in the implementation of financial policy.

In the process of managing municipal finances, several functions are distinguished. At the initial stage, financial planning is carried out on the basis of financial analysis data. At the same time, in accordance with the current budgetary process, work is being carried out to form the budget. It should be noted that these functions should not be carried out by the same structural unit of local self-government bodies, since in this case, when drawing up financial plan and the budget, the long-term interests of the development of the municipality will be subordinated to the momentary interests. Also for effective management finances, control and auditing bodies are needed to check the spending of budget funds by the relevant budget bodies, as well as the reliability and accuracy of the data provided by the financial planning bodies.

Financial planning is one of the most important functions of financial management. The preparation and approval of financial plans is carried out by the executive bodies of local self-government, based on the priorities established by the legislative body of local self-government. The priorities are determined based on the analysis of the current state and development prospects of the municipality. It is advisable to develop a financial plan in parallel with the budget, since this allows you to take into account and agree on the arising adjustments in a timely manner. Direct approval of the budget of the municipal formation should be carried out by the legislative body of local self-government, representing the interests of the population. The financial plan is usually not approved by the representative body, but is used as a document justifying the proposed draft budget.

Financial planning is divided into long-term and current. At the stage of long-term planning, the main strategic directions and development priorities are determined. At the same time, long-term plans should be adjusted annually in accordance with the changes that have occurred.

The most important element of the financial management of local governments is the budget. The need to draw up local budgets is due to the presence of their own subjects of jurisdiction, requiring the implementation of economic activities. If local authorities were simply representatives of higher authorities, the preparation of an independent budget would not be necessary. Such authorities would work within the framework of the cost estimates for certain needs approved by the higher authority, but with this approach, the local authorities would most likely not be interested in optimizing costs.

With the development of local self-government in order to increase the efficiency of activities, it became necessary to develop and use independent local budgets - plans for financial activities approved by a regulatory act for a certain period, presented in the form of an inventory of expenses and incomes grouped according to certain criteria. The formation and execution of the local budget is carried out by local self-government bodies independently in accordance with the charter of the municipal formation. For independent bodies of local self-government, the budget becomes, from the usual estimates of income and expenses, the most important instrument for the implementation of development plans of the municipality.

According to the principle of autonomy of the budgets of municipalities, local authorities have the right to carry out the budget process, which is planning, approval, execution and evaluation of the results of budget execution.

Representative bodies of local self-government independently carry out:

establishing the procedure for drawing up and considering draft local budgets, approving and executing local budgets, exercising control over their execution and approving reports on the execution of local budgets;

preparation and consideration of projects of local budgets, approval and execution of local budgets, control over their execution and approval of reports on the execution of local budgets;

determination of the procedure for sending revenues from the use of municipal property, local taxes and fees, and other revenues of local budgets to local budgets;

determination of the procedure and conditions for the provision of financial assistance and budget loans from local budgets;

provision of financial assistance and budget loans from local budgets;

determination of the procedure for the implementation of municipal borrowing;

implementation of municipal borrowing and management of municipal debt.

Public authorities guarantee:

the right of representative bodies of local self-government to independently determine the directions of use of funds from local budgets;

the right of representative bodies of local self-government to independently dispose of free balances of funds from local budgets formed at the end of the financial year as a result of an increase in income or a decrease in expenses;

compensation for an increase in expenses or a decrease in revenues of local budgets arising from the adoption of federal laws and laws of the constituent entities of the Russian Federation, as well as other decisions of state authorities.

The formation of local budgets should be carried out through the application of a unified methodology, state minimum social standards, social norms, standards for the minimum budgetary provision established by state authorities. Drafting of local budgets, approval and execution of local budgets are carried out in accordance with the budget classification of the Russian Federation and the budget classification of the constituent entity of the Russian Federation.

Control over the budgetary practice of municipalities by state authorities includes control over the adoption of the budget in due time and compliance with the procedures established by law, control over the introduction of compulsory expenditures into the budget and control over the introduction of expenditures into the budget by decision of certain state powers delegated to the authorities. local government.

In the absence of a mandatory expenditure in the published budget, the supervisor requires the local council to budget the expenditure within one month from the date of submission. Otherwise, the case may be referred for judicial review.

If the local budget is not approved by January 1 of the planned financial year, the expenditure of financial resources of the municipality before the approval of the local budget is carried out according to the relevant articles of the local budget of the past financial year, monthly in the amount of one twelfth of the amount of actually incurred expenses, taking into account the consumer price index.

The municipal budget must be approved no later than March 31 of the current budget year. If the budget was not approved by March 31 due to the lack of the necessary information from the representative body, then in this case the budget must be adopted within two weeks after receiving the information. Otherwise, the court may decide to suspend the powers of the representative body of local self-government in the budgetary sphere. The decision of the court will be the basis for the consideration by the legislative body of state power of the constituent entity of the Russian Federation of the issue of early termination of the powers of the representative body of local self-government, the simultaneous appointment of new elections, in accordance with the law of the constituent entity of the Russian Federation.

If the budget has not yet been adopted and published by the beginning of the fiscal year, then, until the budget is approved, the municipality can carry out only those expenses to which it is obliged by law, or which cannot be postponed for further solving the necessary tasks. You can continue what you started earlier. construction works and ongoing purchases. You can levy taxes and fees at last year's rates to cover expenses, and borrow up to one-twelfth of last year's credit authorization per month.

The control carried out in the course of budget execution in relation to the manager of loans by the representative body of power is carried out in the form of familiarizing the deputies with the activities of the administration, usually in the form of a report by the head of administration, as a result of which discussion may result in changes to the budget, as well as in the form of approval by the council. a representative body of government for operations stipulated by budgetary clauses in relation to loans, the conclusion of large contracts, the sale of municipal property, etc. Control of budget execution by the prosecutor's office is subject to the principle of legality in relation to the municipal entity's own expenses (control over the expediency of decisions during budget execution within the limits of local authorities' own powers is not allowed). With regard to financing the expenses of local governments for the implementation of delegated state powers, the state supervision body has an unlimited right to control both the legality of expenses and their expediency. The audit service of the municipality exercises control over the legality and expediency of decisions made in the course of budget execution, within the limits of their own powers of local self-government bodies.

The control carried out in the course of budget execution in relation to the accountant is reduced to the control of his activities by the manager of loans. This control is usually carried out in the form of a weekly submission by the accountant to the loan manager of a report on free funds in the context of expenditure items of the budget and in the form of a monthly balance of accounts.

After the end of the budgetary year, the manager of loans submits an administrative calculation for the past period to the representative body of local self-government and the audit service of the municipality. The administrative calculation is presented in a form similar to the budget, showing, for each line item within each part of the budget, budget forecasts and receipts and expenditures made by the loan manager. The calculation is made on the basis of administrative reports maintained by the loan manager, and allows you to control the release of payment orders and credit orders during the reporting period. The calculation is accompanied by the results of acts of inspections, audits. The refusal of the representative body of power to approve the administrative calculation does not automatically lead to the resignation of the manager of loans, unless otherwise provided by the charter of the municipality.

To check the execution of local budgets, local self-government bodies have the right to involve auditors. Information on the execution of the local budget for the past financial year is subject to mandatory publication.

Local budget revenues

The possible composition of the local budget's own sources of income is determined by the legislation of the Russian Federation. The revenue side of local budgets consists of their own revenues and receipts from regulatory revenues, it can also include financial assistance in various forms from higher levels of government, funds for mutual settlements, as well as the unspent balance of the budget for the last financial year.

Financial assistance from other budgets is subject to accounting in the local budget, which is the recipient of funds, but is not considered the own income of local budgets. Financial assistance from the budget of a constituent entity of the Russian Federation to the local budget can be carried out in the following forms:

the provision from the funds of financial support to municipalities of the constituent entities of the Russian Federation, created in the budgets of the constituent entities of the Russian Federation, of financial assistance to equalize the level of the minimum budgetary provision of municipalities in order to ensure financing of the minimum state social standards, the responsibility for the financing of which is assigned to local governments;

the provision of subventions to finance certain targeted expenditures.

A municipal entity that is a recipient of financial assistance from the budget of a constituent entity of the Russian Federation to equalize the level of minimum budgetary security is not entitled to:

put municipal employees, financed from the local budget, in Better conditions in comparison with civil servants of institutions of the constituent entities of the Russian Federation;

provide budget loans to legal entities in an amount exceeding 3% of local budget expenditures;

provide municipal guarantees in an amount exceeding 5% of the local budget expenditures.

Regulatory revenues include federal and regional taxes and other payments, according to which standards for deductions to local budgets for various types of such revenues are established for a certain period. The deduction rates are determined by the law on the budget of that level of the budget system of the Russian Federation, which transfers regulatory revenues, or by the law on the budget of that level of the budget system of the Russian Federation, which distributes the regulatory revenues transferred to it from the budget of another level.

The amount of tax credits granted, deferrals and installments for the payment of taxes and other obligatory payments to the budget is fully taken into account in the revenues of the local budget.

Own income includes local taxes and fees, shares of federal taxes and shares of taxes of the constituent entities of the Russian Federation assigned to local budgets on a permanent basis, income from the use and sale of property in municipal ownership, income from paid services provided by local governments and budget institutions under the jurisdiction of local governments, fines, confiscations, compensations, as well as funds received in compensation for harm caused to municipalities, income from municipal cash and clothing lotteries, etc. The local budget also receives appropriations to finance certain delegated state powers, federal laws and laws of the constituent entities of the Russian Federation, as well as other non-tax revenues, such as at least 10% of revenues from privatization of state property located on the territory of the municipality, payments for the use of subsoil and natural resources established in accordance with federal legislation, etc.

1.4 Organizational structure of local government: concept, types

Recently, the legislative basis for the development of local self-government has been improved; the basis for the functioning of this essential public institution has been formed. Nevertheless, many issues in this area have not yet been resolved. This concerns the determination of the boundaries of the competence of local self-government to provide it with stable sources of income, the formation of inter-budgetary relations, in particular, the improvement of the local taxation system, etc. The Constitution of the Russian Federation fixes the principle of separation of local self-government from the system of government bodies.

For its implementation, it is necessary to ensure the economic base of local self-government of interbudgetary relations, the participants of which are municipalities. My study of the structure of local government is associated with the need to solve a number of problems, including: - determination of the essence of local government and its position in the system of territorial government of the state; - assessment of the real situation of local self-government in our country; - development of a system of recommendations for improving the structure of local self-government. Analysis of the current situation of the structure of revenues and expenditures of municipal budgets of various levels (cities of regional subordination, administrative districts of cities of district subordination, settlement rural) indicates the need to form a multi-level hierarchically non-subordinate system of local self-government with the definition of the scope of competence of each level and the corresponding revenue sources. The development of inter-municipal self-government, which implies the pooling of funds of a number of municipalities in order to jointly solve common socio-economic problems, is becoming urgent. This can contribute to the conflict-free solution of many of the most important tasks that take place within the traditional system of local self-government, which is essential for expanding the socio-economic base of this self-government.

This experience is very popular abroad, but it is hardly implemented in Russia yet. The formation of the economic foundations of local self-government should proceed within the framework of budgetary federalism, covering the ties between the constituent entities of the federal state, as well as the relationship of which the subject is local self-government. One of the key problems is the orientation of the budgetary system towards securing to the municipal budgets such sources of income that would ensure a stable income for the fulfillment of the functions assigned to local self-government. Among other issues of great importance, it should be noted the need to determine the ratio of local government and the state, the principles of the distribution of competence between them, subsidiarity and budgetary federalism. Subsidiarity is a concept within which the issues of delineation of functions and competence between different levels territorial administration.

The problem of forming an optimal model of interaction between local self-government and the system of state authorities is also very relevant. Assessing the state of local self-government in Russia today, we note the plight of the economy and finances of most municipalities; difficulties in developing uniform socio-economic mechanisms for providing transfers and other forms of financial support to local governments; low level of development of municipal infrastructure; acute social problems. Local self-government should be understood as a system of bodies and officials (primarily elected) exercising local self-government in a specific territory, determined by the state within the framework of existing legislation, with an established degree of autonomy and independence in relation to public authorities, having the necessary competence in solving basic state affairs and local issues with taking into account the specifics of the territory of its economic, social, national, geographical, historical and other features, which forms the local budget, ensures the collection of local taxes and fees, as well as the management of municipal property on the basis of federal and regional legislation and its own constituent and other regulatory legal acts. An important role in the development of local self-government is played by municipal property, which is the basis for the practical implementation of the functions assigned to local self-government. But as the analysis shows, revenues from such property make up a very modest share in the revenues of local budgets.

In foreign countries, a variety of models of regulation of local self-government and the normative-legal distribution of local functions are used, as well as various forms and mechanisms of state control over the functioning of municipalities. Specific models are created taking into account the peculiarities of the development of a particular country. In Russia, such a toolkit is still being created. The study of the trends and patterns that have developed in the field of providing municipalities with their own sources of income convinces that today local self-government does not have a serious economic basis. Note, however, that dependence on external revenues increases with the transition from a higher level to a lower one.

The increase in the proportion of subsidies in the revenues of local budgets indicates an increasing redistribution of funds through the regional budget. As a result, the already limited independence of local self-government is reduced, which leads to a decrease in the responsibility of its governing bodies for the implementation of the planned socio-economic policy, limiting their interest in finding and using reserves for the development of the local economy. It can be argued that the main direction of reforming the local taxation system should be the orientation of the budget system towards securing revenue sources for local budgets that would be able to consistently ensure the fulfillment of the functions assigned to local self-government. Apparently in the system of local taxation it is advisable to focus on property and income taxes.

Analysis of the existing structure of local self-government bodies of various municipalities, the variety of forms of organization and implementation of local self-government makes it possible to distinguish several organizational models of local self-government, depending on the size of the population and the size of the territory of the municipality, on the delimitation of powers of representative and executive bodies, on the volume and complexity of the tasks to be solved. Each model is a combination of elements of the local self-government system - a representative body (“Municipal Council”), an executive body (“Administration”) and a senior official (“Head of Local Self-Government”).

Rice. 1.1 Scheme of the model "Strong head of local government - municipal council"

The head of local government is called “strong” by virtue of his powers. (Figure 1.1) He - independently forms the administration, solely manages its activities; organizes the work of the municipal council, signs acts adopted by the council. According to the Law, the representative body has a certain minimum set of exclusive powers that can be expanded. In this model, the municipal council performs only lawmaking and control functions. Such a definition of functions restricts the activities of representative bodies, excluding from it the management, which is carried out by the Administration under the leadership of the Head of local self-government. In addition, the Head of local self-government can resolve certain issues attributed to the jurisdiction of the municipal council. For example, in the Charter of the city of Yaroslavl, the list of the city's powers does not include the right and obligation of the representative body to establish the procedure for the management and disposal of municipal property. These powers are attributed to the competence of the mayor of the city and the mayor's office.

In another model, the head of local government is elected from among the deputies of the municipal council. The “weakness” of the head of local self-government lies in full control and accountability to the municipal council: the head does not have the right to veto, the limits of his rights to form and manage the administration are limited by decisions of the municipal council, whose powers have been significantly expanded, and in addition to lawmaking and control functions may include management. (Figure 1.2)

Rice. 1.2 Scheme of the model "Weak head of local self-government - municipal council"

Thus, the Charter of the city of Voronezh includes a number of functions of the administration among the powers of the municipal council: the establishment of rules for trade and consumer services, the establishment of the procedure for transferring residential buildings of the municipal fund to non-residential ones. According to the Charter of Voronezh, in addition to determining the procedure for managing objects of municipal property, the municipal council resolves a number of issues related to the disposal of municipal property, which makes the position of the representative body much stronger and more stable.

This form is suitable for small towns, which are not that difficult to manage, and therefore it is not so important to have strong centralized leadership.

There are municipalities in which the head of local government is not provided. The Council is vested with legislative and executive powers. The head of the executive branch is the city governor, who is appointed by the council and can be removed by the council. The tasks of the manager are the formation of the administration, the management of the daily work of the administration, the development of the budget. (Figure 1.3)

Fig. 1.3 Scheme of the model "municipal council-head of administration (manager)

local government organizational structure

For example, according to the Law “On Local Self-Government in the Vologda Oblast”, one of the ways to determine the head of administration is a competitive selection, appointment to a position is carried out by a representative body based on the results of a competition under a contract.

Fig. 1.4 Scheme of the model "city commission-head of local government"

The next model is based on the election of a number of local government officials and a combination of representative and executive functions. At the same time, not the deputies of the representative body are elected, but the heads of the bodies and structural units local administration. The powers of the representative body are performed by a commission, which includes all elected officials... Decisions are taken by the deputies collectively. Each deputy heads the administrative department. The head of local self-government is elected by the deputies from among its members and has presidential and representative powers and purely organizational functions within the city commission. (Figure 1.4) An example of the use of this model of local self-government is the city of Chita.

For small settlements, the model "head of local government - assembly" ("headman - village gathering") may be relevant, where the functions of a representative body can be performed directly by the population. The elected person is the head of local self-government (headman), who exercises the powers of local self-government bodies.

On the basis of the considered models, it is possible to build mixed models in relation to local conditions.

The impossibility of building a unified version is explainable from the point of view of democracy and the historical diversity of the economic conditions of economic management in Russia. However, the subjects of the Federation, choosing different models of local self-government, do not ensure uniformity even on their territory. The overly widespread use of various models of self-government without due regard to objective conditions reduces its effectiveness and creates legal confusion.

2. Economic and legal analysis of the organizational structure of the local government

2.1 General characteristics of the Akhtuba rural settlement

Rural settlement - one or several rural settlements united by a common territory (settlements, villages, stanitsas, villages, farms, kishlaks, auls and other rural settlements), in which local self-government is exercised by the population directly and (or) through elected and other local authorities. self-government.X1] The rural settlement is part of the municipal district.

A rural settlement is one of the types of municipal formations in Russia provided for by the municipal reform. Corresponds to the village council of Soviet times or the volosts of the pre-Soviet and post-Soviet periods, for example, the rural settlement "Tyamshanskaya volost" of the Pskov district of the Pskov region. Now in some regions the concept of "village council" is retained as a synonym for a rural settlement or is used in names, for example, the rural settlement Novinsky village council in the Bogorodsky district of the Nizhny Novgorod region.

The territory of a rural settlement may include, as a rule, one rural settlement or settlement with a population of more than 1000 people (for a territory with a high population density - more than 3000 people) and (or) several rural settlements united by a common territory with a population of less than 1000 people each (for a territory with a high population density - less than 3000 people each).

A rural settlement has an administrative center - a settlement, which is determined taking into account local traditions and the existing social infrastructure and in which, in accordance with the law of the subject of the Russian Federation, the representative body of this rural settlement is located.

The boundaries of a rural settlement, which includes two or more settlements, are usually set taking into account the pedestrian accessibility to its administrative center and back during the working day for residents of all settlements that make up its composition. The exceptions are territories with a low population density, as well as remote and inaccessible areas.

The number of rural settlements can vary from several dozen people to 15-20 thousand inhabitants.

For a more detailed consideration of the research topic, it is necessary to characterize the Akhtuba rural settlement.

Akhtuba rural settlement - part of the Sredneakhtubinsky district of the Volgograd region

The Sredneakhtubinsky municipal district was formed in 1928, located in the southwestern part of the Volga region of the Volgograd region, 38 km from the city of Volgograd. In the north, the district borders on the Bykovsky district, in the east - Leninsky, in the south - Svetloyarsky. In the west, its border runs along the Volgograd reservoir and the Volga river. Occupies an area of ​​1.96 thousand square kilometers with a population of 57.5 thousand people. Working-age citizens make up 55.3% of the total population. The regional center is the r.p. Average Akhtuba.

There are 12 settlements on the territory of the district, of which: 10 are rural settlements, uniting 61 rural settlements.

The agro-industrial complex of the region is one of the most important sectors of the economy. 22 agricultural organizations, 154 peasant (farmer) and over 14 thousand personal subsidiary plots operate on the territory of the district.

Production of products Agriculture in all categories of farms in current prices for 2009 amounted to 1435.63 million rubles. In comparable prices, this is 5.3% higher than in 2007. Of these: 33.8% of products were produced by agricultural organizations, 37.8% - by peasant (farm) and 28.4% by personal subsidiary plots.

The region's industry is represented by 4 enterprises. Volume of goods shipped own production, works and services performed on their own in manufacturing in actual prices for 2008 amounted to 496 million rubles, which is 5.5% higher than the previous year. Production and distribution of electricity, gas and water in actual prices in 2009 amounted to 124.6 million rubles, which is 8.4% higher than the previous year.

Investments in fixed assets in 2009 increased by 21.5% (in a comparable estimate), 798.5 million rubles were spent.

In recent years, a tourist and recreational complex has been developed in the Volga-Akhtubinskaya floodplain.

There are 2 hospitals, 6 polyclinics, 28 feldsher-obstetric points, 32 educational schools, 10 kindergartens, 25 libraries, 23 club-type institutions, 2 museums and 70 sports facilities in the region.

The consumer market has 161 stores, 3 markets, 31 public catering establishments, 80 consumer service points.

The retail trade turnover in 2009 amounted to 1327.0 million rubles, which corresponds to the level of the previous year in comparable prices.

Public catering turnover in 2009 amounted to 39.7 million rubles, which is 27.9% higher than the previous year.

The volume of paid services provided by the population in 2009 amounted to 120.57 million rubles, which is 27.5% higher than the previous year.

In 2009, compared with 2008, the monetary income of the population increased by 25% and amounted to 1.3 billion rubles.

In 2008, the consolidated budget revenues of the Sredneakhtubinsky municipal district (including gratuitous receipts) were executed by 99.4% and amounted to 726.93 million rubles, including own tax and non-tax revenues by 106.2% and amounted to 316.75 million rubles. rubles. More than 60% of the revenue part of the consolidated budget of the region for 2008 was formed at the expense of personal income tax. Expenses amounted to 692.82 million rubles.

The main socio-economic indicators of the development of the Sredneakhtubinsky municipal district in 2008:

Population - 57550 people;

The economically active population is 34803 people;

fertility - 731 people;

Mortality - 941 people;

receipts of taxes and fees to the local budget per capita - 5504 rubles;

investments in fixed assets from all sources of financing per capita - 13,875 rubles;

Average per capita monetary incomes of the population - 5596 rubles;

the volume of shipped goods of own production in manufacturing industries per capita -

Agricultural production

Retail trade turnover per capita - 23,058 rubles;

the volume of paid services per capita - 4,656 rubles;

turnover of small enterprises per capita - 14,215 rubles.

The Akhtuba rural settlement municipality includes 4 settlements with a permanent population of 1990 people. In the summer, the population increases several times due to the population arriving in horticultural associations and households that are used as seasonal.

On the territory of the Akhtuba rural settlement live:

participants of the Great Patriotic War - 16 people,

participants in hostilities in Afghanistan and the Caucasus - 9 people

pensioners - 304 people,

children - 393 people,

large families with minor children - 8,

The following enterprises are located on the territory of the Akhtuba rural settlement:

13 trade enterprises, including: 1 cafe, 1 restaurant, 5 snack bars.

medical institution feldsher-obstetric station in the village of Kolkhoznaya Akhtuba.

2 cultural institutions: the rural House of Culture, in the village of Kolkhoznaya Akhtuba, which in the 3rd quarter of 2010 was transformed into a legal entity MUK "Kolkhoznoakhtubinsky SDK"; a rural library in the village of Kolkhoznaya Akhtuba, located in the building of the MUK "Kolkhoznoakhtubinsky SDK";

8 horticultural associations;

1 peasant farm, agricultural products are being produced in personal subsidiary plots.

The housing stock, located on the territory of the Akhtuba rural settlement, is 792 residential buildings, of which:

apartment building and 789 manor houses.

Over the past period, the focus has been on working with the population. During this period, the administration received 396 written and 240 oral applications. 318 people were received at a personal reception. In our work, we strived to ensure that not a single appeal was left unattended. All applications and appeals were considered in a timely manner and answers and explanations were given to all of them.

Citizens' appeals were mainly related to land use, construction, landscaping and housing and communal services, the transfer of residential premises into ownership, and the solution of social issues.

During this period, 7 meetings were held with residents of the rural settlement in the framework of gatherings of citizens and 10 meetings in the framework of public hearings on various issues of activity.

The administration keeps records of all land holdings and land uses of citizens in paper form - household records.

The administration staff developed all normative and other documents that were offered to the attention of the deputies for approval. During the reporting period, the specialists of the administration prepared and submitted for consideration draft regulations governing the main issues of the administration's activities.

The administration of the Akhtubinsky rural settlement took an active part in state events: preparation for the organization and conduct of elections of local self-government bodies of the Sredneakhtubinsky municipal district, for events related to the celebration of the 65th anniversary of the Victory in the Great Patriotic War, preparation for the 2010 All-Russian Population Census.

The main activities of the administration of the Akhtubinsky rural settlement in the past six months were built in accordance with the Charter of the Akhtubinsky rural settlement.

On February 2010, by the decision of the Duma of the Akhtuba rural settlement, the coat of arms and the flag of the Akhtuba rural settlement were approved, which were sent to the Heraldic Council to include this symbolism in the register of the Russian Federation and were approved in October.

The formation, approval, execution of the budget of a rural settlement, the implementation of the powers of local self-government bodies fully depends on the availability of finances.

The administration of the Akhtuba rural settlement has formed, verified and approved by the Rural Duma Budget 2009, 2010.

In 2009, the budget of the Akhtuba rural settlement received revenues in the amount of 9 million 642 thousand rubles, including:

Personal income taxes - 1 million 799 thousand

Property taxes - 60 thousand rubles.

Land tax - 190 thousand rubles.

Income from the use of state and municipal property - 2 million 574 thousand rubles.

Income from the sale of tangible and intangible assets - 692 thousand rubles.

Gratuitous receipts - 4 million 327 thousand rubles.

For the first half of 2010, the budget of the Akhtubinsky rural settlement received revenues in the amount of 5 million 201 thousand rubles,

including:

Personal income taxes - 2 million 397 thousand

Property taxes - 30 thousand rubles.

Land tax - 121 thousand rubles.

Income from the use of state and municipal property - 909 thousand rubles.

Income from the sale of tangible and intangible assets - 155 thousand rubles.

Gratuitous receipts - 1 million 589 thousand rubles.

One of the mechanisms for increasing the efficiency of the use of local budget funds is the municipal order, which is formed mainly on a competitive basis. During the reporting period, the administration held 2 open auctions, 5 requests for price quotations, as a result of which 7 municipal contracts were concluded:

During the reporting period, the administration carried out systematic work in the field of management and disposal of municipal property.

Significant work was carried out on the acceptance and transfer of property. The property of the rural settlement was transferred to the property intended for solving issues of local importance: housing, water supply facilities, water disposal, heat supply.

The local budget funds for the maintenance of all municipal roads in good condition are not enough, therefore, partial (patching) repairs, filling, grading are carried out within the limits of the available budget funds and sponsorship.

In the spring-autumn period, the administration is planning the settlement's dirt roads.

In the 4th quarter of 2010, patching of the asphalt concrete surface of the road in the village of Kolkhoznaya Akhtuba (MTF) was carried out, the repair costs amounted to 406.5 thousand rubles at the expense of budget funds.

The administration of the Akhtuba rural settlement in 2010, in accordance with the legislation of the Russian Federation, assisted three veterans in the provision of certificates for social payments for the purchase or construction of living quarters. Currently, 9 families are on the waiting list to improve their living conditions - these are families that have the opportunity to participate in various programs.

The federal law "On General Principles of Organization of Local Self-Government in the Russian Federation" adopted in October 2003 created conditions for the emergence of various models of local self-government in the country. Rural municipalities, one of the most widespread forms of local self-government in our country, faced the greatest number of problems.

Due to their economic characteristics, they operate in the most unfavorable conditions. They were most affected by the consequences of the "reform" period. The collapse of large agricultural enterprises, a significant reduction in the level of state support for the countryside greatly complicated their work. Legislators, generously rewarding them with powers to solve existing problems, "forgot" to back them up with appropriate funding. For many of them, the budgetary capacity does not exceed the amount of expenses for the maintenance of the administrative apparatus. Whereas today the rural settlements of the republic need hundreds of millions of rubles for the construction of roads, gas and water pipelines, housing, schools, and the development of social and industrial infrastructure.

So what hinders the growth of the taxable base and the income of rural settlements. The specialists of the district administration in charge of these issues named the following:

failure to submit data on the sale and purchase of land plots and households by notaries;

weak work of the tax authorities in handling claims against debtors;

lack of a unified computer program with a unified base for land registration and land tax calculation;

the lack of a computer software complex for the registration of rural dwelling houses;

the establishment by the Tax Code of the Russian Federation of privileges on local taxes without providing compensation from the federal budget for shortfalls in revenues of local budgets.

The lengthy procedure for allocating land plots for settlements also hinders the updating of the taxable base of rural settlements, since it is inappropriate to hold a tender for the allocation of land for construction in areas that are not in high demand. This limits the possibilities for the provision of land plots for construction and, accordingly, inhibits the formation of a layer of land tax payers.

Speaking about the problem of replenishing the budgets of rural settlements, it will not be possible to solve it until the entire system of their formation changes. The current principles of replenishment of the income part have not yet worked. Funds are transferred first to the federal budget, then to the republican and regional budgets, and practically nothing remains in the localities. Therefore, we should look for new ways of solving this old question.

Today, many powers have been delegated to rural settlements, but in most cases they are not supported by financial capabilities. Many of them lack funds to develop. Therefore, the task of forming the budgets of rural settlements was to create such economic and legal conditions so that each of the new powers was provided with funds. There are different approaches to its solution. Authority cannot be anyone's, hanging in the air. Take forest belts, for example. The powers to manage them should be delegated to the republican bodies. In order to then adopt a law of the Russian Federation on this issue and transfer these functions to rural settlements, and not demand results of work from them without allocating money for this.

Reserves for replenishing budgets are now available in every settlement. This is, first of all, improving the use of land, forest, water and mineral resources, improving inter-budgetary relations between local governments at different levels, developing agricultural and credit cooperation, production and processing of agricultural products, and much more.

There are also non-traditional ways of earning money for local governments. For example, the provision of notary and other services. This provides some income, but does not solve the main problem.

Of course, the heads of municipalities themselves should be on the lookout. Many act in this way, seek reserves, and in the end they succeed in something. Today, all municipalities of the Volgograd region can be conditionally divided into a small group with a sufficient tax base and a corresponding budget. These are mainly municipalities of regional centers and large settlements with developed industry. And most rural settlements, especially those located on the periphery, barely make ends meet. And for them the issue of forming their budgets is more acute than ever.

One of the ways to solve this problem could be the unification of "rich" and "poor" municipalities in order to equalize the budgetary provision of the population. But at the same time, one should take into account the historical and national traditions of certain settlements and the opinion of their inhabitants. In Russia today, this is one of the main directions of the ongoing administrative reform at all levels: from the subject of the federation to the rural settlement.

Currently, the role and status of municipalities in rural settlements have undergone changes. Now they have the right to conduct economic activities, create municipal enterprises, lease municipal land and property, receiving non-tax revenues for this. However, for various reasons, these opportunities are far from being used to the full. Perhaps the main one is that they still have insufficient property and land at their disposal. Their distribution between the budgets of different levels was based on funding opportunities, and not on the interests of rural settlements.

The issue of interbudgetary relations today remains the cornerstone of the entire system. public self-government... In the conditions of the poor state of the rural economy and the underdevelopment of local markets, their improvement remains one of the main ways of financial support for the budgets of rural settlements. One of the important issues is the redistribution between the budgets of different levels of personal income tax.

With all the importance of the optimal redistribution of budget revenues at all levels, one cannot but say that their growth is based on the improvement of the activities of local farms, the introduction of scientific and technological progress into production and, ultimately, the growth of labor productivity in the countryside. This will be facilitated by the development of various forms of cooperation, the concentration of land shares among effective large land users, the equipping of farms with new equipment, the training of specialists and mass professions for the village, the creation of conditions for the development of individual housing construction.

The problem of selling agricultural products grown by households and farmers remains unresolved. It is not profitable for consumer cooperatives in the current conditions to do this. And the market sales infrastructure has not yet been created. There are practically no markets in rural settlements, there are few processing enterprises, trade and purchasing cooperatives in the localities. And without guarantees of sale, the population lost incentives to transfer their household plots to the rails of market commodity production. Each rural settlement should strive to create a market infrastructure, which could include trade, purchasing and credit cooperatives, shops, artificial insemination and slaughtering centers, enterprises for production services for households, etc.

.2 Administration of Akhtuba rural settlement: structure, powers

Organizational structure is the most important factor in the activity of a local self-government body, the form in which the process of municipal government is implemented.

The organizational structure is understood as the composition and subordination of interrelated organizational units (individual positions), links (management divisions) and stages (levels), endowed with certain rights and responsibilities to perform the corresponding target management functions.

A management link is a separate cell with strictly oriented management functions, and the degree (level) of management is a set of management links located at a certain hierarchical level.

Municipal administrations differ significantly in terms of the size of the territory, the size and composition of the population, position in the system of territorial division of labor, economic potential, composition of the municipal economy, and the level of development of engineering and social infrastructure. The type of municipal formation predetermines the composition of the subjects of local self-government, which, in turn, determines the scope of tasks and functions of all bodies of municipal government, including the administration.

The goals, objectives and functions of municipal government directly affect the structure of local administration and serve as the basis for the allocation of independent units in its structure, responsible for achieving specific goals and solving certain specific problems. Accordingly, for the implementation of these goals, the corresponding structural divisions are organizationally allocated or strengthened within the administration. Municipalities that differ in the composition of the tasks and management functions to be solved, the required volume of management work, differ in size and internal structure executive bodies... The staff of the administration of a large urban district can have hundreds of employees and dozens of structural divisions, while the staff of the administration of a small rural settlement is only 5-7 employees, in the Akhtuba rural settlement the staff is 30 people.

The composition of the main factors affecting the organizational structure of the administration of the Akhtuba rural settlement is shown in (Fig. 10).

Along with the listed external factors, it is necessary to highlight the internal factors affecting the structure of the administration of the settlement: personnel, technology, management technology, labor organization. On the one hand, they affect the organizational structure of management, on the other hand, they are themselves determined by it. So, the management cadres affect the management structure in terms of the redistribution of functions between departments and individual employees. But basically it is the management structure that determines the composition of positions and the requirements for the personal qualities of employees. Implementation information technologies influences the structure of the administration in terms of both reducing the number of employees of individual departments and the emergence of new departments (information services). When forming the organizational structure of the administration, it is necessary to take into account both external and internal factors.

Rice. 2.1 Factors affecting the organizational structure of the administration of the Akhtuba rural settlement

The most important factor influencing the formation of the organizational structure is the control rate (control range).

The norm of manageability is the maximum allowable number of employees whose activities can be effectively managed by one manager under certain organizational and technical conditions.

Both the number of employees in a separate division and the number of administration divisions depend on the controllability rate. In turn, the controllability rate depends on a number of factors in Figure 2.1.

Rice. 2.2 Factors affecting the rate of manageability of a rural settlement

The formation of the structure of the administration of the Akhtuba rural settlement is the organizational consolidation of certain functions of municipal management for individual management divisions and officials. The solution to this complex problem is provided on the basis of a combination of scientific methods with the subjective activities of specialists. Therefore, when designing organizational structures, it is important to observe a number of important rules (principles) of their construction, presented in Fig. 2.2 Consider these principles.

Focus on achieving goals.

The organizational structure should contribute to the achievement of the goals of the management of the municipality. This is ensured by establishing the rights and the necessary completeness of responsibility of each managerial link of one level of management in relation to the tasks of a higher level; rational division and cooperation of labor between links and levels of management and their interaction.

Perspective

Local self-government bodies must, while solving operational issues, at the same time carry out work to determine the strategy, socio-economic development of the municipality. For this purpose, it is necessary to provide a strategic management block in the organizational structure, separating it from the operational and current management... In practice, this is achieved by the division of powers between the representative and executive bodies, as well as the creation in the organizational structure of the administration of special units dealing with the development strategy of the municipality.

Ability to develop (adaptability)

The need to develop the organizational structure is explained by the tendency of constant changes in external conditions, emerging imbalances in the system of municipal government. Under these conditions, the organizational structure must be flexible enough to adapt to the perception of corrective actions. In practice, this is achieved by periodically making changes to the organizational structures of local self-government bodies, as well as by creating temporary target units (headquarters, commissions, committees).

Completeness

When building the organizational structure of the local administration, it is necessary to take into account that all stages of the implementation of management activities should be structurally provided:

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

setting a task (identifying priorities for activities);

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

execution of the decision ( specific activity on the implementation of management decisions);

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

The principle of complexity requires, when analyzing the structure, to proceed primarily from the integrity of a particular function. This is especially important when the performance of the function is "divided" into different structures or for the performance of this function it is necessary to involve several structural divisions of the administration, were of the most complete nature, which is especially important for sectoral structural divisions.

Ability to develop (adaptability) Profitability

Rice. 2.3 Principles of building the organizational structures of local administrations

Customization

The formation of the organizational structure should be based on taking into account the individual characteristics of a particular municipality. In this regard, all kinds of typical organizational structures can only be used as guidelines and indicative. Practice shows that the rejection of unified models, reliance on analysis and consideration of local characteristics give positive results.

Profitability

The organizational structure should ensure the efficient and rational implementation of the process of municipal governance, the ability to obtain the necessary results in the most economical way. Profitability can be achieved through various measures, incl. for a network of holding positions (system administrator, information technology specialist, etc.), whose functions include analyzing the current organizational structure, functional and hierarchical division of powers, remuneration of municipal employees, mechanization and automation of management processes in order to improve them.

The principles of building organizational structures can be refined, and the form and methods of implementing these principles can change in connection with changing external conditions, goals and objectives.

The powers of local self-government bodies of the Akhtuba rural settlement include:

1) the adoption of the charter of the Akhtuba rural settlement and the introduction of amendments and additions to it, the publication of municipal legal acts;

) creation municipal enterprises and institutions, financing of municipal institutions, formation and placement of municipal orders;

) setting tariffs for services provided by municipal enterprises and institutions, unless otherwise provided by federal laws;

) organizational and logistical support for the preparation and conduct of municipal elections, local referendums, voting on the recall of a deputy, the head of the Akhtuba rural settlement, voting on the issues of changing the boundaries of the Akhtubinsky rural settlement, transforming the Akhtubinsky rural settlement;

) adoption and organization of the implementation of plans and programs for the integrated socio-economic development of the Akhtuba rural settlement, as well as the organization of the collection of statistical indicators characterizing the state of the economy and social sphere of the Akhtuba rural settlement, and the provision of these data to state authorities in the manner established by the Government of the Russian Federation;

6) implementation of international and foreign economic relations in accordance with federal laws;

) institution of the press mass media for the publication of municipal legal acts, other official information;

8) other powers in accordance with the Federal Law "On General Principles of Organization of Local Self-Government in the Russian Federation", this Charter.

By decision of the rural Duma of the Akhtuba rural settlement, the population may be involved in voluntary work that is socially significant for the settlement (including duty) in order to resolve issues of local importance in the Akhtuba rural settlement.

Only jobs that do not require special professional training can be classified as socially significant jobs.

Adult able-bodied residents of the Akhtuba rural settlement are involved in the performance of socially significant work in their free time from their main work or study on a gratuitous basis no more than once every three months. The duration of socially significant work is no more than four hours in a row.

The organization and material and technical support of socially significant work is carried out by the administration of the Akhtuba rural settlement.

The state powers of local self-government bodies established by federal laws and the laws of the Volgograd region on issues not classified by the Federal Law "On General Principles of Organization of Local Self-Government in the Russian Federation" to issues of local importance are separate state powers transferred for implementation to local self-government bodies.

The vesting of local self-government bodies of the Akhtuba rural settlement with certain state powers is carried out by federal laws or the laws of the Volgograd region.

The powers for the implementation of certain state powers transferred to the local self-government bodies of the Akhtuba rural settlement are vested in the head of the Akhtubinsky rural settlement and the administration of the Akhtubinsky rural settlement.

Financial support of certain state powers transferred to local self-government bodies is carried out only at the expense of subventions provided to the budget of the Akhtuba rural settlement from the respective budgets.

The head of the Akhtubinsky rural settlement and the administration of the Akhtubinsky rural settlement are responsible for the implementation of certain state powers in the manner established by the relevant federal laws and laws of the Volgograd region within the limits of material resources and financial resources allocated to the Akhtubinsky rural settlement for these purposes.

The rural Duma of the Akhtuba rural settlement, the head of the Akhtuba rural settlement have the right to establish cases and procedures for the additional use of their own material resources and financial resources for the implementation of certain state powers transferred to them.

Local self-government bodies and their officials are obliged to provide authorized state bodies with documents related to the implementation of certain state powers.

2.3 Organizational structure of the Akhtuba rural population

The organizational structure of the administration of the Akhtuba rural settlement is based on the principles of one-man command and hierarchical subordination. The process of forming the organizational structure includes the formulation of goals, tasks and functions, determining the composition and location of units, their resource support (including the number of employees), the development of appropriate regulatory procedures and documents.

This process is divided into several stages (Fig. 2.4)

Real systems of municipal government are distinguished by a wide variety of organizational structures of administrations. But at the same time, there are general approaches to building organizational structures. The most promising is the system-targeted approach with a focus on the final results of the system. Determination of the system of goals ("tree of goals") and tasks of a particular municipality serves as the main guideline for the formation of its organizational structure. When forming an organizational structure based on a "tree of goals", it is required to decompose the goals and objectives of municipal government to specific management functions.

Thus, with the system-targeted approach, real conditions are created for the individualization of the process of forming the organizational structure in relation to the characteristics of a particular municipality.

Calculation of administration costs

Figure 2.4 The process of forming the organizational structure of the Akhtuba rural settlement of the administration

The systemic target approach in this case is that, based on the ultimate goals of the management of the municipality:

not to lose sight of any of the management tasks, without the solution of which the implementation of goals will be incomplete;

to identify and link in relation to these tasks the system of functions, rights and responsibilities along the vertical of management;

explore and organize horizontal connections and relationships, i.e. provide for the coordination of the activities of different links and organizational units in the implementation of common tasks;

to provide an organic combination of vertical and horizontal management, to find the optimal ratio of centralization and decentralization in decision-making for the given conditions.

When building an organizational structure on the basis of a "goal tree", it is important to give a qualitative and quantitative description of the goals and objectives. A qualitative characteristic serves as a justification for the allocation of management functions, quantitative - to determine the type of organizational unit (department, management, department, etc.).

The distribution of tasks between divisions of the local administration can be carried out on several grounds:

by groups of management objects (branches of municipal activity) providing the provision of municipal services of a certain type: education, health care, construction, youth policy, etc .;

on a functional basis, determined by the nature, functions and stages of management activities and management cycle: analysis and planning, control, property management, finance, legal support, information support, etc .;

on a territorial basis (for municipalities in rural areas and for large cities, and after the entry into force of the 2003 Federal Law - only for large cities).

In modern municipal practice, the typical links of the organizational structure of the local administration are:

the head of administration;

his deputies for the spheres of municipal activity, among which there may be one or two first deputies;

structural divisions of various types, which may be subordinate to the head of administration, one of his deputies, or subordinate to each other (for example, a department within the management);

collegial advisory bodies: administration board, economic and other councils;

administration apparatus.

From the point of view of the above distribution of tasks and goals of activity, the structural divisions of the administration of the Akhtuba rural settlement are divided into four groups (Fig. 2.5)

Rice. 2.5 Types of structural units of local administration

The competence of sectoral structural units includes issues related to the management of specific sectors (spheres) of municipal activities. These divisions perform the functions of customers for the performance of work and the provision of municipal services. Their main role is manifested at the stage of realizing the goals and objectives of life support and development of the territory.

The subjects of activity of functional (staff, general competence) structural divisions cover a specific function for the entire administration and its structural divisions. Their main characteristic is the use of the advantages associated with the specialization of functions, and the ability of the administration to see the territory as a whole within the framework of its function. According to the classification of the goals of municipal activities, functional units are related to supporting ones. Usually they are empowered with the right to coordinate decisions of other structural divisions, for example, on compliance with the rule of law or the possibility of financing.

The creation of territorial structural divisions (regional in large cities, etc.) is associated with the need to bring local government bodies closer to the population and allows you to combine the centralization of the most important functions at the highest level of municipal government with increased efficiency in solving current issues. At the same time, it is important not to allow the fragmentation of the functions of municipal authorities and the loss of benefits associated with specialization. To stimulate the initiative of territorial structural divisions, they may be granted autonomy within the framework of the cost estimate.

Auxiliary subdivisions (apparatus) do not have their own competence to resolve issues of local importance and perform the functions of ensuring the activities of the administration's leadership and its structural subdivisions. The apparatus plays an important role in organizing the work of the administration. As its subsystem, it performs the same role as the municipal authority in relation to other subsystems of the municipality. In particular, the device provides:

planning and coordination of the work of all structures of the administration;

work with documentation (office work);

communication with the media, holding press conferences;

control over the execution of decisions;

organization of reception of citizens, work with complaints and suggestions;

material and technical, legal, personnel, informational, financial support of the administration's activities;

the interaction of the administration with the representative body is often its economic services.

The chief of staff is usually equated in status with the deputy head of administration.

The administration may include such services as: general department (work with documentation), personnel service (sometimes it reports directly to the head of administration), reception of citizens, legal service, information service, economic services, press services, own accounting, control apparatus etc.

The head of the administration and his deputies can have their own apparatus, which includes, in particular, secretaries, assistants, assistants, advisers.

Such organizational structures are called linear-functional, since they are based on a certain system of interaction between linear (industry) and functional structural divisions and decision-making by linear divisions in agreement with functional ones.

In accordance with the scope and distribution of tasks and functions within the administration, specific organizational units are created - directorates, departments, committees, departments, etc. To solve management problems, large organizational units are divided into smaller ones that form new levels. For large cities with a large administrative apparatus, it is advisable to delimit management functions in as much detail as possible, creating special subdivisions for their implementation. For small settlements, the most acceptable scheme is in which the functions performed are grouped, while, first of all, the functions of the sectoral divisions should be combined. However, unification within one unit, whose interests contradict each other, is undesirable.

To perform the functions delegated by government bodies, it is sometimes advisable to use separate separate structural units. This is important because in terms of the implementation of delegation of powers, local governments are financed and controlled by the relevant government bodies.

The Collegium is an advisory body under the head of the administration plays a special role in the work of the administration. It makes decisions on the most important issues of management of the municipality, with the exception of decisions that fall within the competence of the representative body. The decision of the board, if necessary, the decisions and orders of the head of the administration are drawn up.

In the context of the implementation of economic and political reforms, the linear-functional organizational structures of management in a number of cases do not meet the requirements for the management of ever-increasing complexity of objects and goals of municipal management. To eliminate this discrepancy, the linear-functional structures of the administration can be supplemented with structures of a new type - program-targeted. They are created to solve specific target tasks and can be permanent or temporary. As a result of this addition, matrix organizational structures of municipal government are formed.

When a new problem arises that requires a solution within a certain period of time, a work program is drawn up, the resources necessary for the implementation of the program are allocated and a temporary team of workers is formed. Employees of the municipal government who are part of the temporary implementation team target program, are at the time of its decision in double subordination: in the administration subordinate to their line manager (vertical link) and in functional subordination to the program manager (horizontal link).

In the system of municipal management, program-target structures are implemented in the form of commissions, headquarters, working groups, etc. The list of such units changes periodically. Some are liquidated, others reappear, many have existed for years.

Commissions are created for a certain period to solve any aggravated problem. The purpose of the commissions is to find a way out of the current management situation. The commissions in their work use the methods of situational analysis.

The creation of working groups within the administration is associated with the solution of specific management tasks and is temporary in nature. Typically, working groups perform design tasks. For example, when reorganizing a government body, it is effective to create a special group for the organizational design of the administration structure, and the development of new work technologies.

When forming structures of program-target management, it is advisable to develop maps (matrices) for the distribution of rights and responsibilities between the bodies of linear-functional and program-target structures. They record in detail and visually general rules decision-making, division of responsibility of several bodies for different aspects of one result, the role of collegial and advisory bodies in the decision-making process.

The need to implement program-target functions requires the creation of a separate strategic innovation block in the administration structure. Its activities should be aimed at identifying problem situations and posing problems, translating problems into task packages and transferring them to sectoral functional units. Let's list the main tasks of the strategic block.

Constant monitoring of the existing state, prevailing norms and relations in various areas of local life: analyzing the situation, fixing discrepancies and conflicts, organizing research.

Development of programs to prevent crisis situations, as well as projects to reorganize and change the situation in various spheres of life, ensuring that its main parameters are brought to a level corresponding to the objective ideas about the settlement. This work includes the development of technical specifications for programs and projects, their analytical and legal support, examination of strategic decisions submitted for approval by the head of administration, development of schedules for the implementation of subprograms and projects, their budgeting, development of business plans, etc., and also internal management audit.

The main disadvantages of linear-functional structures of municipal government are associated not only with their organizational structure, but also with the most prevailing ideology of municipal government. These disadvantages boil down to the following:

Accelerated approach to the municipality and, accordingly, to its management as a production or social-production system.

At the same time, the main emphasis is placed on improving the performance of the structural divisions of the administration themselves (housing and communal, transport, health care, etc.), and not on the degree and quality of meeting the needs of the population in a particular municipal service. In other words, the criterion for the effectiveness of the service is its own indicators, and not the final result of the activity.

Focus on solving current problems related to the life support of the municipality, and the lack of a strategic approach to management.

The variety of current private tasks and goals of municipal administration inevitably generates contradictions between them, due primarily to the limited material and financial resources. Each division is focused on solving its own problem and seeks to obtain the maximum resources for this. In this case, the entire control system often works ineffectively.

The vagueness of the system of functional links between individual structural units, duplication of functions, uneven workload of workers, the lack of clear organizational procedures by which the units interact with each other.

As a result, the bulk of the work falls on the shoulders of the head of administration, who has to solve many coordination issues.

Mixing of management functions and direct economic activities. Many structural divisions of the administration, being legal entities, provide various paid services and earn money for their existence, i.e. in fact, they are engaged in commercial activities. This business is risk-free, since it is conducted on the basis of municipal property, for the effective use of which there is no proper supervision. For this reason, some administrations from municipalities began to transform themselves into financial and industrial groups by the type of activity.

Akhtuba rural settlement consists of (the villages of Kolkhoznaya Akhtuba, Kilyakovka, Novenky and Tutov farms).

The structure of the Akhtuba rural settlement is shown in Fig. 2.6

Rice. 2.6 Structure of the Administration of Akhtuba rural settlement

It can be seen from the presented diagram that this control structure is linear, i.e. each element of this structure implements one or more specific functions.

3. Problems and improvement of the organizational structure of local governments

3.1 The main problems of the formation and functioning of the organizational structure of local government bodies

In general terms, the municipal bodies of different countries, with a few exceptions, have one general type of structure. L. A. Velikhov noted: “Since the Swiss city communes (Bern, Geneva, Lucerne, Zurich, etc.) finally abandoned the solution of municipal affairs by a communal gathering, which is practically impossible in our time, this basic type of municipal structure has been built almost everywhere in the following stepwise scheme:

) the municipal electoral corps, as a base,

) the administrative council that came out of his bosom,

) executive agency,

) at the top of this pyramid is an official who is invested with the role of the highest representative of the municipal commune.

Since the 20s. this almost ubiquitous four-stage type of municipal structure was changed in a number of European countries, where they refused, for the sake of economy and simplicity of design, from a special executive body, entrusting executive functions solely to the highest official of the municipality or combining both administrative and executive powers in a single representative body. " one

Let us consider approximate models of the organization of local self-government, which can be used as basic ones in determining the structure of local self-government bodies in each particular municipal formation, taking into account the social environment, the conditions for the functioning of the municipal economy and historical traditions.

Possible combinations of three traditionally stable elements of the local government system - a representative body, an executive body and a higher local self-government official are based on the following basic options for distributing the powers of the population of the municipality to resolve issues of local importance:

Option 1: the powers directly delegated by the population are implemented in various proportions in the competence of the representative body and the elected senior official.

Option 2: all powers directly delegated by the population are implemented in the competence of the representative body.

Option 3: all powers directly delegated by the population are implemented in the competence of an elected senior official (while the population retains control powers and implements them through gatherings or by creating a special elected control body).

The use of one or another variant of the delegation of powers depends on the population of the municipality and the size of its territory, on the volume and complexity of local issues solved by the population.

Practical experience allows us to single out the following basic models of organizing local self-government in these options: 2

Option 1

It is clear that the implementation of local self-government in a large city or territorial municipality (district) with a developed social and technological infrastructure, a complex complex of municipal economy will require not only a representative body that establishes general rules for the life of the municipality, but also fairly independent operational management and coordination of everything. a complex of municipal problems, for the implementation of which the direct delegation of part of the powers of the population to the appropriate official is required.

Endowed as a result of direct elections by the population with the appropriate competence, the head of the municipality receives the right not only to exercise municipal administration with a high degree of independence, but also to exert significant influence on the process of coordinating inevitable social contradictions within the framework of a representative body.

This option corresponds to the model of organization of local self-government, in which the population elects both the representative body and the head of the municipality, who directly and solely heads the executive bodies and has effective mechanisms of influence on the decisions of the representative body (“veto”). This model is sometimes conventionally referred to as: "council -" strong "mayor".

Here is an approximate delineation of competence for this model:

representative body (directly elected by the population):

makes binding decisions, including on management

municipal finance;

regulates the process of municipal economy management;

has a mechanism for resolving conflicts with the head of the municipal

education (overcoming the "veto" of chapter 2/3 of the vote).

The head of the municipality (directly elected by the population):

carries out direct management of the municipal economy;

independently forms the executive bodies and appoints the relevant officials;

has the right to "veto" the decisions of the representative body.

This option is used in the Akhtuba rural settlement. In the Akhtuba rural settlement, there is a representative elected body (the last elections were held in 2009) - the Duma, consisting of 10 deputies, headed by the chairman.

The executive body is the Administration of the Akhtuba rural settlement, headed by Vadim Ivanovich Chernykh, elected in 2009 (he is the youngest head of the district, 28 years old).

The varieties of this model are determined, as a rule, by the scope of the powers of the head of the municipal formation, primarily in his relations with the representative body.

The most typical way to form a collegial representative body is to elect its members through single-mandate constituencies covering the entire territory of the municipality.

Option 2.

For small municipalities (medium and small urban, large rural settlements) the following model of organization of local self-government is most typical. All powers delegated by the population are exercised within the competence of a collegial representative body, consisting of deputies directly elected by the population. To implement its decisions, the representative body forms the relevant executive bodies and elects or appoints the relevant officials, endowing them with the necessary competence 3.

The large number of medium and small municipalities has led to a wide variety of specific models for organizing local self-government according to option 2, differing primarily in the mechanism of implementation of executive powers.

In the most typical cases, executive powers are exercised:

a) the highest official elected for this purpose from the collegial representative body (model “council -“ weak ”mayor”).

Under this model, a senior official, as a rule, is a member of a collegial representative body and presides over its meetings, directs the activities of executive bodies, coordinating the appointment or dismissal of municipal officials with the representative body.

The representative body, electing a senior official, retains the right to decide personnel appointments in executive bodies, approving and rejecting all appointments and dismissals, as well as exercising direct control over the activities of executive bodies;

b) members of a collegial representative body (model "city commission / municipality").

Under this model, the population elects members of a collegial body (municipality), which is both a representative and an executive authority. At the same time, representative powers are exercised directly by the collegial body. At the same time, each of the members of the collegial body exercises certain executive powers, having the necessary administrative apparatus for this.

In this case, it is also possible for a senior official to be elected from among the members of the collegial body and, as a rule, endowed with only representative functions and does not have any additional powers;

c) a municipal official appointed by a representative body, taking into account professional qualifications (the “council-manager” model).

In implementing this model, the collegial body consists of members elected by the population and exercises all traditional representative powers. A municipal official (manager) is hired by a representative body on a contract basis and exercises executive powers: he manages the entire structure of executive power, makes appointments and dismissals of municipal employees, being independent in managing the municipal economy within the limits established by decisions of the representative body. The manager can be dismissed from office by decision of the representative body.

For all models of the second option, characterized by the prevailing importance of a collegial body, it is important to ensure consistency of possible different public interests. This is to the greatest extent ensured by the election of members of the collegial body by the entire population of the municipality (with the creation of one or several multi-member districts).

Option 3

The third option is most typical for small small municipalities (as a rule, rural), where the range of realistically resolved issues of local importance is insignificant. At the same time, all representative and executive powers directly delegated by the population are implemented in the competence of an elected senior official (headman).

The population reserves the right to resolve the most fundamental and important issues of local importance, as well as control powers and exercises them through meetings (gatherings) and local referendums. The head of the municipality elected by the population carries out representative functions, directs the executive body, periodically reports on his activities to the population and may be dismissed from office by a decision taken by the population of the municipality at a gathering or referendum.

When implementing this model, it is possible for the population to elect not one, but several officials, endowed with their own competence for the implementation of executive powers (so, along with the headman, a treasurer, sheriff, etc.) can be elected, or a periodically acting body (conference) can be formed exercising control powers. It is hardly possible to list and present all modern options for the structural organization of local self-government bodies, since in each specific municipal formation the division of competence between local self-government bodies can be carried out purely individually, in order to most effectively solve the problems facing the local community.

Speaking about organizational problems at the municipal level, it is also necessary to touch upon the discussion around the problem of small territorial units of local self-government, which, as a rule, boils down to two positions:

in order to ensure sufficient independence of municipalities, it is necessary to have a significant financial and economic base, which means that the municipal formation should be as large as it allows to have sufficient income sources (as a rule, at the level of a district, a large city), at lower levels provides for the possibility of creating public territorial self-government, which does not have either power or economic rights;

in order to stimulate the self-development of small settlements and village councils, the arrangement of the life of each person exactly where he lives, it is necessary to provide the opportunity for the implementation of local self-government, the implementation of the economic and social rights granted to him within the boundaries of the territories as close as possible to the place of direct residence of a person (as a rule , within the boundaries of a small settlement, village, village council, rural district), while at the regional level it is proposed to organize territorial subdivisions of the executive state power.

The disadvantage of the first position is the actual conservation and even strengthening of the tendency to concentrate all more or less significant economic and social resources in the regional center - the situation that led in the last two decades of Soviet power to the actual impoverishment and degradation of small towns and the “extinction” of rural settlements. The consequence is, as a rule, a drop in social activity and economic initiative of the population outside the regional centers.

The disadvantage of the second position is the real weakness of economic resources for solving the entire list of subjects of local self-government, determined by legislation - those issues of local importance, the solution of which is aimed at meeting the daily needs of local residents.

The consequence is the practical suppression of the local interests of such municipalities and their population by the interests of the state authorities of the subject of the Federation (and often just by the subjective interests of state officials).

The solution to these contradictions, in our opinion, is the scheme of two-tier local self-government provided for by the Federal Law “On General Principles of Organization of Local Self-Government in the Russian Federation” (paragraph 3 of Article 6 of the Law).

Quite interesting experience in organizing the activities of such a scheme of local self-government has been accumulated in Lipetsk, Penza, Pskov and, especially, Astrakhan regions.

An equally difficult problem is the formation of a financial and economic base capable of ensuring real independence of local self-government bodies.

Another important problem for rural settlements is the problem of reducing the number of employees. This problem also affected the Akhtuba rural settlement.

3.2 Proposals to improve the organizational structure of the Akhtuba rural settlement

There is no doubt that the need for organizational changes cannot occur without any significant reason. It's easy to build something out of cubes, then break it and build something else. And when it comes to local self-government bodies, it is necessary to weigh everything thoroughly more than once and only then start (or not start) changes. Serious organizational changes also entail serious costs, both direct and indirect. Therefore, it is first necessary to predict whether the game is worth the candle.

Of course, the costs are highly dependent on the scale of the change.

The scale of organizational change is determined by the task that needs to be addressed. If we abstract from the details, then in fact, the need to change the organizational structure of management bodies follows either from the past or projected changes in the external or internal environment, which the new structure must comply with.

Let's just say that improving the organizational structure rarely acts as the only "cure" for problems, but is an integral part of "complex therapy". But changes in the external or internal environment of management bodies do not necessarily entail changes in the organizational structure.

However, everything cannot be reduced only to responding to changes in external and internal environment organizations. In some cases, we can talk about increasing the efficiency of the functioning of a normally functioning organization.

Requirements for an organizational structure are, in fact, a series of conditions and constraints that the structure must comply with. Requirements can, with some degree of convention, be divided into general and special requirements. The organizational structure must meet general requirements regardless of the tasks that it performs, and special requirements are determined by the goals of changing the structure.

Talking about general requirements to the organizational structure, then there is no doubt that in any case it should be:

transparent, that is, to be understandable and obvious to employees, citizens who apply for services to government bodies;

well managed, that is, the structure of the organization must be such that all control actions are accurately and timely formed, carried out and analyzed;

profitable, that is, the costs of maintaining such a structure must be in a certain ratio with the financial results of the economic activities of the bodies, and since the revenues of the governing bodies are formed at the expense of the federal budget, then “inflation of the apparatus” and strengthening of bureaucratic processes are simply unacceptable.

As for the special requirements for the organizational structure, they, as mentioned above, are determined by the goals of organizational changes.

However, it should be remembered that even the best designed organizational structure will not be viable if municipal employees are not qualified and motivated to achieve their goals.

Within the framework of the Administration of the Akhtuba settlement, there is no problem of personnel qualifications, since the staff is fully staffed and meets the requirements. In addition, the average age of employees is 29-37 years, which is a good indicator on the national average, for example, in the city of Volzhsky, the average age of employees of the Administration is 36-48 years. All employees are required to undergo training at the labor inspectorate on labor legislation, also pass a qualification exam on the fire minimum, study the acts of the Civil Defense and the Ministry of Emergencies. Employees work under a fixed-term employment contract with a probationary period of 1 month.

This paragraph will primarily focus on the very process of improving the organizational structure already existing in the management body. At the same time, we will not consider the improvement of the structure of the capital authority, since this process is not specific to local governments.

So, the process of improving the organizational structure is divided into three stages, in each of which a number of works are performed:

Organizational diagnostics;

Development of a new organizational structure;

Implementation of organizational change.

Moreover, depending on the scale of changes in the organization, these stages can be performed iteratively. Let's take a closer look at each of the stages.

Organizational diagnostics

The goals of organizational diagnostics are to identify and formalize existing problems in the organizational structure, as well as a primary analysis of the causes of such problems and ways to eliminate them.

As a rule, when initiating the process of organizational change, the main problems in the organizational structure that need to be addressed are already identified, but the reasons that cause them are not always obvious. To identify the causes of problems, use the following tools:

Analysis of the organizational structure and staffing table, during which the rationality of the existing management structure of the organization and its quantitative composition are investigated;

Analysis of the organizational and functional model, in the course of which conclusions are drawn about the rationality of the distribution of areas of responsibility of functions by departments and employees. At the same time, as a rule, the provisions on divisions, job descriptions and other regulatory documentation are studied;

Personnel assessment, during which the key competencies of employees and their compliance with the organization's requirements are studied.

The result of organizational diagnostics is a document that outlines the identified problems in the organizational structure and the reasons for their occurrence, as well as recommendations for their elimination.

Development of a new organizational structure

The purpose of this stage is to develop a model of the target state of the organization, which would be the most rational in the new operating conditions. The target state of the organization's structure is reflected in the following documents:

Organizational structure project;

Draft staffing table (optionally - with the placement of employees);

Organizational and functional model project;

The list of regulatory documents that need to be developed or changed taking into account the introduction of a new organizational structure;

Draft plan for organizational change.

The direct filling of these documents essentially depends on the goals of the transformation and organizational problems that need to be solved. These documents are the result of complex and painstaking analytical work of specialists. It is difficult to talk about any stereotyped techniques, the result of the work is determined by the task at hand.

Of course, the project of a new organizational structure must go through the approval stage, during which all the advantages and disadvantages of the developed project are comprehensively studied. And, if necessary, the project is being finalized.

Implementing organizational change

The implementation of organizational changes is perhaps the most critical stage of the entire process, because it is in the competent implementation of a new organizational structure that the success of the entire event lies. Accordingly, any most advanced idea can be ruined by its poor implementation.

We will not give ready-made recipes, however, there are a number of principles, based on which, it is possible to effectively and efficiently carry out the process of organizational transformations.

The will of the leadership to bring about change. As practice shows, for the successful implementation of organizational changes in a company, the active participation of senior officials is required. In this case, the participation of the head of the Administration of the Sredneakhtubinsky region (Tikhonov V.A.).

External and internal PR campaign. Most people perceive changes negatively, at least at the beginning, this is a well-known psychological fact. Therefore, it is necessary to carry out a lot of explanatory work among the staff in order to show them the positive aspects of organizational changes, as well as to nip at the root of the emerging rumors.

Training. If organizational changes involve a change in the functions or the order of interaction of employees (as a rule, this is the case), it is necessary to train personnel in advance to work in the new conditions. It is necessary to update or create anew the corresponding job descriptions and work regulations, conduct trainings on working in new conditions, and, if necessary, conduct professional training.

Consistency in the implementation of changes. It happens that projects to improve the organizational structure of an organization are not completed for any reason: lack of resources, staff dissatisfaction, making "half-hearted" decisions, etc. However, in essence, this situation means the failure of the project, since the result will never be achieved. The chasm cannot be jumped 99 percent.

Evaluation of the effectiveness of organizational changes.

There is no doubt that such a rather complicated procedure as changing the organizational structure is subject to serious analysis in terms of assessing its effectiveness. But the practical solution to such a problem may face significant difficulties. These difficulties lie primarily in the fact that the economic effect of the transformation of the organizational structure is often formed not directly, but indirectly.

There is one more rather significant remark here. Any changes may occur in the external environment of the organization, which can negate all organizational changes made.

Or, for example, when introducing organizational changes, we suddenly discover that the organization does not have such personnel and such a management team that are able to work effectively in the new environment. And then the project, in fact, will fail.

For this rural settlement, it is necessary to increase the number of employees from 30 to 42 people. This structure (see Appendix 1) does not meet all the requirements imposed by the citizens of a rural settlement (let me remind you that the settlement includes four territorial entities, and the number is 19,900 people).

The increase in staff will not entail a bureaucratic process and will not be a factor in the "inflation" of the education budget. Since there is a large number of agricultural land and garden societies in this area, specialists in the field of cadastral registration and ecology are needed. The proposed organizational structure is presented in Appendix 2.

All these factors and aspects of reforming the organizational structure are presented in Fig. one.

Rice. 3.1. Components of the organizational reform process

Conclusion

The dualistic political and legal nature of local self-government is the most preferable, explaining the combination of state (public-power) and public (self-government) principles in local self-government. Local self-government can be exercised by the people directly or indirectly, through the creation of local self-government bodies, which play primarily a role in the implementation of municipal power.

The imperious nature of local self-government bodies qualitatively distinguishes them from structures whose activities are of a public nature (bodies of territorial public self-government, public organizations). The structure of local self-government bodies is constituted by the representative body of the municipal formation, the head of the municipal formation, the local administration, the control body of the municipal formation, other local self-government bodies provided for by the charter of the municipal formation and having their own powers to resolve issues of local importance.

Despite the constitutional right of the local population to independently determine the structure of local self-government bodies, in fact, it is established centrally throughout the territory of Russia.

The implementation of the powers of local self-government bodies is carried out on the principles of legality, transparency in the activities of local self-government bodies, strict consideration of the opinion of the population in the process of implementing municipal power, and the responsibility of local self-government bodies to the population.

In most cases, the powers of local self-government bodies are enshrined in sectoral federal laws without attributing them to the powers of a specific body.

As a result of the study, I came to the following conclusions:

representative and executive bodies function normally;

the structure of the executive and representative bodies of a rural settlement meets the conditions for the implementation of the tasks;

the staff is fully staffed, the average age of employees is 29-37 years, which is a positive trend for the effective work of government bodies.

At the same time, the level of legal security is insufficient, there are many problems with the implementation of the Federal Law of the Russian Federation No. 131-FZ dated 06.10.2003. "On the general principles of the organization of local self-government", which indicates shortcomings in the interpretation, elaboration of individual articles.

Problems arise regarding the financing of certain items of expenditure in rural settlements.

The problem of division of powers and responsibilities between state and municipal authorities.

In the updated model of local self-government, there is a tendency to gradually integrate local self-government bodies, primarily rural settlements, into a single system of centralized state authorities, which does not correspond to the democratic principles proclaimed in the European Charter of Local Self-Government and the Constitution of the Russian Federation.

To solve these problems, you must:

expand the legal framework;

to publish a collection of laws of the Volgograd region for deputies of representative bodies and heads of urban and rural settlements.

Local governments:

make changes to the charters of municipalities in order to bring them into line with the Federal Law of December 31, 2005 No. 199-FZ "On Amendments to Certain Legislative Acts of the Russian Federation in Connection with Improving the Delimitation of Powers";

ensure tax registration of representative bodies of municipalities as legal entities;

to create a system of informing the residents of the Volgograd region about the activities of state authorities and local self-government bodies on the implementation of the Federal Law "On the General Principles of Organization of Local Self-Government in the Russian Federation";

develop and implement a program for retraining management personnel;

create a budget for the development of a rural settlement for the implementation of social programs;

conduct certification of the personnel of the Administration, on the basis of this, develop a program for retraining and advanced training of employees;

to establish effective work and a feedback system with the Administration of the Sredneakhtubinsky district;

consider increasing the staffing of the Administration of the rural settlement;

to develop a regulatory framework for the formation and training of the personnel reserve of the Administration.

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Annex 1

Organizational structure of the Akhtuba rural settlement

Appendix 2

Proposed organizational structure of the Akhtuba rural settlement

• Specialty VAK RF
• Number of pages 207

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

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

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

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

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

4. Improvement of personnel policy at the municipal level.

Recommended list of dissertations

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

• The specifics of personnel policy in the city government of modern Russia 2005, candidate of sociological sciences Rubtsov, Viktor Nikolaevich

• 2003, Doctor of Law, Wet, Vladimir Semenovich

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

• Social problems of formation and development of human resources of local self-government bodies 2009, candidate of sociological sciences Ibragimov, Ural Faritovich

Dissertation introduction (part of the abstract) on the topic "Improving the organization of local self-government"

The dynamism of the development of the modern Russian Federation, the versatility and interpenetration of legal relations pose before sociologists not so much the task of scientifically substantiating the process of forming local self-government bodies (despite all their importance), as the problems of developing and substantiating new theoretical provisions explaining the processes of forming the professional staff of executive and representative bodies. local government. We are talking about the formation of a new personnel ideology - a set of scientifically grounded ideas, theories, views, which, in a conceptual, systematic form, reflect and evaluate modern personnel policy.

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

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

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

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

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

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

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

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

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

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

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

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

Municipalities have the status legal entity and are endowed with budgetary autonomy, but guardianship is carried out here as well.

In practice, centralization has become the "natural form of government" everywhere, as A. Tocqueville noted4. The state actually controls the activities of local self-government bodies even in the countries of "Western democracies".

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

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

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

The methodological base of social management, created by the fundamental works of M. Weber, E. Durkheim, R. Merton, N. Douglas, M. Mescon, M. Albert, F. Khedoury, A. Prigogine, N. Smelzer, Romanov P.V., Yarskoy E.R., Bychenko Yu.G. allows to conduct scientifically grounded sociological studies of the mechanisms of formation of local self-government in the systems of state power and civil society5. Undoubtedly, research in the field of

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

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

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

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

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

See: Yu.N. Aksenenko. Sociological methodological principles of technologies for optimizing the official structure of municipal employees // Effective technologies in the system of state and municipal management. Rostov-n / D, 1999; Baksalyar V.V. Organization of urban self-government in Europe and Russia // Social institutions and processes at the third stage of reforming Russian society. Saratov, 2002; Interaction between state authorities and local self-government: problems and prospects. Rostov-n / D-Pyatigorsk, 1998; Voronin A.G., Lagin V.A., Shirokov A.N. Fundamentals of Municipal Economy Management. M., 1997; Shapsugov D.Yu. Local authorities in Russia and Germany. Rostov-n / D, 1995. the calling needs of employees of the state and municipal service, the specifics of urban and rural self-government, the role of managerial and national traditions in the process of institutionalization of local self-government in various districts of the Saratov region and various regions of the Russian Federation. In recent years, a large number of works have appeared on issues related to the personnel problem and personnel management. The organizational aspects of building various branches of municipal power in the localities are being developed most intensively, which are reflected in the works of I.I. Ovchinnikova, V.V. Maletina, V.M. Ryabova, E.S. Shugrina, T.A. Orekhovsky 9.

Along with works covering aspects of the historical formation of local self-government (I.A.Emelyanov, V.V. Eremian, AB Ivanov, V.F. Abramov, AB Venkov, A.JI. for works devoted to the analysis of modern practices (G.V. Barabyshev, V.I. Vasilieva, V.V. Skrebnev, M.V. Kuzmichev, I.V. forms.

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

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

The analysis of the special literature gives grounds to conclude that there is whole line questions that have not yet been developed by researchers. The degree of the necessary linking of personnel policy in rural self-government bodies to the social and administrative needs of rural municipalities has not been sufficiently determined. There is no sufficiently developed scheme for the formation of new forms of self-governing structures in the social space of the village without conflict for rural social institutions. The domestic experience of implementing the democratic traditions of rural community management is not fully used, in particular, the experience of using rural social institutions as a factor in the development of local self-government bodies.

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

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

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

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

In accordance with the new political realities, substantiate the importance of a scientifically grounded approach in the formation of the district and district bureaucratic level of local self-government bodies;

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

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

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

Subject of study - social forms, factors and consequences of the functioning of local (rural) self-government.

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

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

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

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

Scientific novelty of the thesis:

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

The necessity of transformation of local self-government bodies into a capable form of social control over the activities at the local level of regional government bodies by the local community has been substantiated;

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

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

The ways of transforming the district bodies of rural self-government in the Saratov region from the conductors of state policy in the countryside into a legitimate form of control on the part of the population over the activities of municipal bodies at the level of the rural district are proposed.

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

Provisions to be defended:

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

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

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

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

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

The research carried out is applied in terms of determining the place and role of scientifically grounded improvement of the social organization of local self-government bodies during the period of the reform of state and public administration structures that Russian society is going through.

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

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

Similar dissertations in the specialty "Sociology of management", 22.00.08 code VAK

• Social factors of increasing the efficiency of local self-government: on the materials of the city of Naberezhnye Chelny 2007, candidate of sociological sciences Erofeev, Fedor Yurievich

• Formation and development of human resources of local self-government bodies 2010, Doctor of Economics Shamarova, Gulmira Mukhtarovna

• 2000, candidate of sociological sciences Mironova, Nina Ivanovna

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

• Formation of local self-government in the Republic of Buryatia in the 90s of the XX century 2003, Candidate of Historical Sciences Sanzhieva, Darima Syrenovna

Conclusion of the thesis on the topic "Sociology of Management", Golovanov, Ivan Andreevich

CONCLUSION

Local authorities include several different branches that interact, both on the basis of partnership and on the basis of mutual subordination. State bodies of local authority include control bodies of federal and regional subordination (Ministry of Internal Affairs, FSB, prosecutor's office, tax authorities), and municipal bodies - administrations of rural areas and districts. Local self-government includes representative bodies of municipal district formations and their offices, as well as rural gatherings of citizens in districts. Each of the listed bodies have their own socio-political functions and the corresponding structure. Thus, state bodies of local authority are called upon to control the implementation of official state policy at the local level. Municipal local authorities are called upon to ensure the full and effective socio-economic development of the municipality and to ensure interaction with state bodies of the federal and regional levels to coordinate their activities and the interests of the population with state policy. Local self-government authorities ensure control by the population of the municipality over the activities of state and municipal authorities and defend the interests of the population before the state.

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

In different municipalities, in different district administrations of the region, we see different forms of social organization. It can be stated: the situation on the ground is determined by the staff of the municipal service, since it is these people who are responsible and determine the state of the social sphere in the settlements.

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

1. Legislative base of local self-government.

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

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

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

Representative bodies of power exist only at the district level;

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

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

In other regions of the Russian Federation, we observe a different approach to the formation of local self-government bodies.

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

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

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

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

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

2. If you strictly follow Russian legislation, then the subjects of the Russian Federation do not have the right to independently determine the presence of only one territorial level of organization of local self-government, thereby limiting the rights of citizens to self-government in the sense of its organization at other territorial levels in the order of legal succession in relation to the previous Councils. levels.

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

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

5. The process of legislative differentiation of powers and subjects of jurisdiction between state authorities and municipalities is only in the initial phase and requires further thorough conceptual and practical study.

6. At the moment, there is almost no distinction by laws of powers on the subjects of local self-government between the constituent entities of the Russian Federation and different-level municipalities. A lot of innovative work is needed in this area.

7. The issues of delegating state powers to local self-government bodies are also only at the initial stage of federal and regional legislative regulation.

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

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

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

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

The main thing can be said today. Yes, all prerequisites for the development of local self-government have been created in the Russian Federation:

There is a necessary the legislative framework;

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

The practice has widely included such a concept as local taxes, which are collected and, most importantly, spent on the order of local authorities to solve local problems;

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

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

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

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

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

The process of restructuring, improving the structures for personnel management, should be combined with measures for the social protection of redundant personnel in personnel services, their retraining, employment and decent retirement benefits.

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

The effectiveness of work with personnel is critically determined by the intensive use of information technologies. In the organization of modern personnel work, the content, place and role of information have changed significantly. Information technology is one of the most important resources of state and municipal administration. The creation of the Personnel Information Bank of the Saratov Region presents great opportunities for the development of the personnel potential of the state and municipal service. Particular attention is paid to creating expert systems in the field of personnel development dynamics.

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

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

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

Organization of monitoring of human resources using new information technologies;

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

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

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

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

The use of modern information technologies helps to introduce and use high-tech innovative personnel technologies, to increase the efficiency of work with personnel of the state and municipal service. Social security of personnel work is intended to create conditions for the disclosure of the personnel potential of employees and to ensure the attraction of talented and moral people to the state and municipal service. Social policy in state and local government bodies should be based on the principles of legality and social justice. The legal basis for the development of a social security mechanism for work should be the federal laws "On the fundamentals of the civil service of the Russian Federation", "On the fundamentals of municipal service in the Russian Federation", the Laws of the Saratov region "On the state service of the Saratov region" and "On the municipal service in the Saratov region".

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

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

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

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

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

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

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

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

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

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

The condition for improving the quality and effectiveness of managerial work is to increase the prestige of the profession of an employee in society, to increase the authority of the authorities in general. If these conditions are fulfilled, talented and moral people will go to the civil service and work with full dedication. The functions performed by state and municipal employees are extremely important for society and the state and are complex. Effective performance of these functions requires decent social security for employees, legal and social protection.

Fulfillment of the tasks outlined in the Concept of staffing for the state and municipal service will make it possible to prepare and place such personnel in leading positions of the municipal service that will meet two main requirements: a) in terms of their business and organizational qualities on the part of the Government of the Saratov Region; b) in terms of moral and human qualities, meet the requirements of the population.

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

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

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

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The organizational structures of local administrations, as a rule, do not remain unchanged and improve as they accumulate. practical experience work and the emergence of new tasks. The subjective element is great here, and with the advent of leadership new chapter the administration usually begins to adjust its structure.

Currently, the main disadvantages of many existing organizational structures of local administrations are as follows.

• 1. An entrenched approach to the municipality and, accordingly, to its management as a production or social-production system. At the same time, the main emphasis is placed on improving the performance of the structural divisions of the administration themselves (housing and communal, transport, health care, etc.), and not on the degree and quality of meeting the needs of the population in a particular municipal service. In other words, the criterion for the effectiveness of the service is its own indicators, and not the final result of the activity.
• 2. Focus on solving current problems related to the life support of the municipality, and the lack of strategic approach to management. The variety of current private tasks and goals of municipal government inevitably generates contradictions between them, due primarily to the limited financial resources. At the same time, each structural unit is aimed at solving its own problems and strives to obtain the maximum funds for this implementation. In this case, the entire control system is ineffective.
• 3. The vagueness of the system of functional links between individual structural units, duplication of functions, the lack of clear organizational procedures by which the units interact with each other. As a result, an excessive amount of work falls on the shoulders of the head of the administration, who has to deal with many "joint" issues.
• 4. Poor development of structural units focused on working with the population and local structures of civil society.

In view of the above, the reorganization of the structures of municipal government is a complex and complex task and should be carried out when there are serious grounds for this.

Based on the analysis of the listed shortcomings, the following directions in improving the organizational structures of local administrations are considered.

• 1. Separation of power and economic functions, withdrawal from the administration of structures engaged in economic activities, giving them the form of municipal government institutions.
• 2. Creation in the structure of the administration of large organizational and administrative blocks (economy and finance, management of municipal real estate, urban economy, social policy, public security, etc.), the heads of which are deputy heads of administration and carry full responsibility for the implementation of municipal policy in the relevant areas, for the achievement of its ultimate goals. The creation of large blocks allows to significantly reduce the workload on the head of administration for solving current "joint" issues, allows him to devote the bulk of his time and efforts to the tasks of strategic management.
• 3. Strengthening the structural units responsible for working with the population and civil society structures.
• 4. Creation, along with classical linear-functional organizational structures, of target-program or program-functional type structures, focused not on solving current problems, but on achieving long-term goals and introducing innovations. This task is of particular importance at the present stage.

The need to implement program-target functions requires the creation of a separate strategic, innovative block in the structure of the administration. Its activities should be aimed at identifying problem situations and posing problems, translating problems into task packages and transferring them to industry and functional units. The strategic block should be directly subordinate to the head of administration or, in extreme cases, to his first deputy. The main tasks of the strategic block are as follows:

• constant monitoring of the existing state, prevailing norms and relations in various areas of local life: analysis of the situation, fixing discrepancies and conflicts, organizing marketing and other research;
• development of programs and projects to reorganize and change the situation in various spheres of life, ensuring the achievement of strategic goals. This work includes the development of technical specifications for programs and projects, their analytical and legal support, examination of strategic decisions submitted for approval to the head of administration, the development of schedules for the implementation of subprograms and projects, their budgeting, the development of business plans, etc., and also internal management audit.

To solve more specific problems of a promising nature, temporary structures (commission, headquarters, working group etc.). The list of such structures changes periodically. Some are liquidated, others reappear, many have existed for years. For each structure, a work program is drawn up and the necessary resources are allocated. Employees included in the temporary team are in double subordination: in administrative subordination to their line manager (vertical link) and in functional subordination to the program manager (horizontal link). Thus, matrix management structures emerge.

The need to combine various types of organizational structures and methods for achieving goals predetermines the complexity of the task of developing and implementing an effective system of municipal management, reorganizing the organizational structure of the administration. It is required to develop a model and an organizational project for reorganization, a package of regulatory prescriptions for individual structures and their areas of activity. It is also necessary (and the most important thing for the ego) to convince the employees of the administration of the necessity and expediency of its reorganization.

The main disadvantages of the existing linear-functional structures of municipal government are associated not only with their organizational structure, but also with the most prevailing ideology of municipal government. They boil down to the following.

1. An entrenched approach to the municipality and, accordingly, to its management as a production or social-production system. At the same time, the main emphasis is placed on improving the performance indicators of the structural divisions of the administration themselves (housing and communal, transport, health care, etc.), and not on the degree and quality of meeting the needs of the population in a particular municipal service. In other words, the criterion for the effectiveness of the service is its own indicators, and not the final result of the activity.

2. Focus on solving current problems related to the life support of the municipality, and the lack of a strategic approach to management. The variety of current private tasks and goals of municipal administration inevitably generates contradictions between them, due primarily to the limited material and financial resources. Each structural unit is aimed at solving its own problem and strives to obtain maximum resources. In this case, the entire control system often works ineffectively.

3. The vagueness of the system of functional links between individual structural units, duplication of functions, uneven workload of employees, the lack of clear organizational procedures by which the units interact with each other. As a result, the bulk of the work falls on the shoulders of the head of administration, who has to solve many coordination issues.

4. Mixing of management functions and direct economic activities. Many structural divisions of administrations, being legal entities, provide various paid services and earn money for their existence, that is, they are essentially engaged in commercial activities. This business is risk-free, since it is conducted on the basis of municipal property, for the effective use of which there is no proper supervision. For this reason, some administrations from municipalities began to transform themselves into financial and industrial groups by the type of activity.

By virtue of the above, the reorganization of the structures of municipal government is a very difficult complex task.

Like any other organization, local administration is a social system. A social organization (as opposed to a professional one) is not focused on development, its main criteria are stability and immutability. Any attempts to change the state of social organization are perceived as threats to existence and, if possible, are rejected. In social systems, innovations cause a certain shift in equilibrium and consequences that cannot always be foreseen. Therefore, it requires special methods activation of innovation processes.

In addition to the contradictions between traditional and innovative activities, in practice, contradictions within the innovation activity itself are even more important - between radical and improving types. It is impossible to radically reorganize any structure from the inside, because for this it is necessary, figuratively speaking, to rise above the problem and look at it "from above".

If we talk about the actual organizational structures of local administrations, then the main directions of their reorganization can be as follows.

1. Separation of power and economic functions, withdrawal from the administration of all structures engaged in economic activities and thus having the status of a legal entity, giving them the form of municipal institutions. The 2003 federal law provides that local self-government bodies endowed with the status of a legal entity are municipal institutions intended to perform managerial functions and are subject to state registration as legal entities.

2. Creation in the structure of the administration of large organizational and administrative blocks, the heads of which are fully responsible for the implementation of municipal policy in the relevant areas, the achievement of its ultimate goals. These can be blocks of economics and finance, municipal real estate management, urban economy, social policy, public safety, etc. These issues were partially touched upon in the previous chapters. The creation of large blocs makes it possible to significantly reduce the burden on the head of administration for resolving current issues, and allows him to devote the bulk of his time and energy to the problems of strategic management.

3. Creation, along with the classical linear-functional organizational structures, structures of the program-target or program-functional type, as mentioned above.

The need to combine various types of organizational structures and methods for achieving goals predetermines the complexity of the task of developing and implementing an effective system of municipal management, reorganizing the organizational structure of the administration. It is required to develop a model and an organizational project for reorganization, a package of regulatory prescriptions for individual structures and their areas of activity. It is also necessary (and this is the most important thing) to convince the employees of the administration of the necessity and expediency of reorganization, and to retrain some specialists. At the same time, the reorganization of the structures of municipal government should unfold simultaneously along several parallel lines:

♦ development of a model and an organizational project for reorganization;

♦ development of a regulatory and legal framework for the activities of a local self-government body;

♦ development of a package of regulatory prescriptions for different areas municipal activities;

♦ development of regulations on the main organizational and administrative blocks;

♦ description of organizational procedures and functional relationships of the entire space of interaction of various management structures, main workplaces and preparation of job descriptions;

♦ retraining and advanced training of employees of the administration;

♦ preparation of a personnel reserve for municipal administration.

2. Organization and planning of the work of the local administration

2.1. The role and importance of organizing and planning the work of local administration

Formation of a rational organizational structure of local self-government bodies is a necessary, but insufficient condition for their effective work. Of no less importance is the organization of the activities of the municipal government, embodied in plans, regulations, instructions, organizational procedures. Any model of the management structure must be supported by a system of functional links between structural links.

The study of the practice of municipal management allows us to draw a conclusion not only about the imperfection of organizational structures, but also about the vagueness of functional connections and interactions. There is a duplication of functions and uneven workload of workers, and the higher the position, the greater the workload. There is a sectoral disunity of structural divisions, weak horizontal interaction between them. As a result, the processes of information exchange become more complicated, and the implementation of joint orders becomes more difficult. This, in turn, leads to poor performance of joint tasks, shifting of responsibility by structural units to each other. There are no maps of organizational procedures by which the divisions interact with each other (for example, the procedure for passing the draft budget, forming a municipal order, making decisions on real estate transactions, etc.). Regulations on administration units and job descriptions of employees do not always give a clear idea of ​​the scope of their functions, and the actually performed functions differ significantly from those indicated in official documents.

Elimination of the listed shortcomings requires a clear organization, regulation and planning of all aspects of the activities of the municipal government and its structural units.

Federal Agency for Education of the Ministry of Education and Science of the Russian Federation

State educational institution of higher professional education

VOLGO-VYATSK PUBLIC SERVICE ACADEMY

Correspondence Faculty of Accelerated Learning

Department of Regional Economics and Management

GRADUATION PROJECT

"Improving the management structure of the municipal entity

(on the example of the Lukoyanovsky district of the Nizhny Novgorod region) "

Speciality:State

and municipal government

Performed: student

group 5GsL1 correspondence department

Irina Satunkina

Victorovna

supervisor :

assistant professor

Alexey Vasiliev

Nizhny Novgorod

ANNOTATION

The thesis project consists of an introduction, three chapters, a conclusion, a bibliography and annexes.

In the introduction, the relevance of the chosen topic is substantiated, the goal is determined and the tasks of this work are set.

The first chapter examines the theoretical foundations of the organization of local government. It covers in detail the functions and objectives of municipal government, the legal basis for the organization of local government.

The second chapter analyzes the management system of the Lukoyanovskiy district of the Nizhny Novgorod region, gives a description of the Lukoyanovskiy district, examines in detail the existing management system of the district.

The third chapter proposes an optimal management structure for the Lukoyanovskiy district and an assessment of its effectiveness.

In the conclusion, based on the findings, specific proposals are made to improve the management structure of the Lukoyanovskiy district.

The list of reviewed literature consists of 11 regulations and 27 textbooks and monographs.

The appendix contains some acts of the authorities of the Lukoyanovskiy municipal district, reports on the socio-economic development of the district.

The total volume of the project is 99 pages, of which the main part is 83 pages, 16 are annexes.

Introduction …………………………………………………………………… ..4

Chapter 1. Theoretical foundations of the organization of local government ... ……… .7

1.1. The system of municipal government and its characteristics …………… 7

1.2. Functions and objectives of the system of municipal government ..................... 18

1.3. Legal framework for the organization of local government ……………………… 22

Chapter 2. Analysis of the control system

Lukoyanovsky district of the Nizhny Novgorod region ………………………… 27

2.1. The municipality and its

characteristics as an object of control ............................................................. 30

2.2. Characteristics of the Lukoyanovsky district of the Nizhny Novgorod region ........ 30

2.3. The existing management system of the Lukoyanovskiy district ………… 40

2.3.1. Administration of the Lukoyanovskiy municipal district ……… ..… 40

2.3.2. Head of the district administration ………………………………………… .47

2.3.3. Zemsky assembly of Lukoyanovskiy municipal district ... ... ... ... 48

Chapter 3. Improving the structure

municipal entity management …………… ... …………… .54

3.1. Optimal structure selection

management of the municipal entity ……………………………… 54

3.2. Organizational change in

conditions of the chosen strategy of the district management …………………… ..59

3.3. Evaluation of management efficiency in

the sphere of organization of municipal administration ………………………… 69

Conclusion …… .. ………………………………………………………… 76

Glossary ………………………………………………………………… ..80

List of used literature ……… ... ………………………… ... 82

Appendices ……………………………………………………………… ..

INTRODUCTION

One of the main goals of the socio-economic policy pursued by public administration bodies in the country is the development of municipalities, but it is impossible without the creation of an effective system of municipal government that is adequate to modern requirements, capable of improving under the influence of external and internal factors for the benefit of the economic prosperity of their territorial and economic system. Currently, active work is underway in the field of institutional regulation of the local self-government system, as well as legal support for the activities of municipalities, a special place in this process belongs to the activation of the economic function of municipal government. The transformation of municipal government into a socially oriented one is a long and complex process. Much attention is paid to its development at all levels. Currently, an administrative reform is underway, and from January 1, 2009, the Federal Law of 06.10.2003 entered into force in full. No. 131-FZ, which regulates the organization of local self-government, including those related to the determination of the structure of local self-government bodies. It should also be borne in mind that during the transitional period of municipal reform, local authorities are not sufficiently prepared to carry out their functions. Among the reasons for this state of municipal power, the problem of the insufficient number of qualified personnel is also of no small importance.

At the same time, one should not forget about the conceptual components of the institution of local self-government in the Russian Federation, where one of the basic principles is the principle of independence of local self-government, which includes, among other things, the independent determination of the structure of local self-government bodies by the population. We also note that the issues of forming the structure of local self-government bodies are part of the problem associated with determining the balance between the existing processes of centralization and decentralization in the sphere of functioning of local self-government.

In a market economy, the main goal of all reforms is to improve governance. New economic relations in municipalities are an objective reality that requires new management of the community, social phenomena and processes taking place in it. Until now, no mechanisms have been found, primarily economic ones, that allow combining the solution of the tasks of federal, regional and local authorities with the protection of the interests of residents of urban and rural settlements. One of the main difficulties in creating a fundamentally different social sphere is the inability of citizens to realize the new realities, to fully use the opportunities provided by the developing municipal government.

Of great importance for this is the development of the practice of municipal management, the general economic and social development municipalities. There is an objective need to improve the system of economic and social management of the process of development of municipalities.

The search for effective ways to solve the problems of social and economic development of municipalities is very relevant today. The imperfection of the management system of a municipal formation, its structure indicates an insufficient theoretical depth of their study, which leads to the choice of ineffective paths, leads to the underutilization of all the institutional and economic opportunities of municipalities to ensure the development of their territories.

The purpose of the thesis project is to study the governance structure of the Lukoyanovskiy district.

To achieve this goal, the following tasks are being solved:

Consider the theoretical foundations of the organization of local government, the concept, essence, structure, function, purpose of objects and subjects of municipal government;

Analyze the management system of the Lukoyanovsky municipal district of the Nizhny Novgorod region;

Determine the optimal management structure of the municipal entity;

Give specific proposals for improving the structure of management of the municipality;

Offer an assessment of the effectiveness of municipal management.

The object of the diploma research is the organization of local government, management of the municipal formation.

The subject of the research is the management structure of the Lukoyanovsky municipal district of the Nizhny Novgorod region.

In the process of writing the thesis, statistical reports, forecast data for the socio-economic development of the district, production tasks and reports, organizational structure and management documentation of the district administration and the legislative assembly, the charter of the Lukoyanovsky municipal district of the Nizhny Novgorod region, periodical materials on the development of municipal formations were used.

The study is based on monographic (research devoted to any one issue, topic) and economic (economic management) methods.

CONCLUSION

The 2003 law establishes a clear structure for local government bodies. It determines the obligatory presence in this structure of a representative body, the head of the municipality, local administration. Also, the Law provides for the possibility of having a control body. At the same time, one should not forget about the conceptual components of the institution of local self-government in the Russian Federation, where one of the main principles is the principle of independence of local self-government, which includes, among other things, the independent determination of the structure of local self-government bodies by the population.

The main task of the governing bodies is to ensure coordinated actions of the structural divisions of the administration, working groups, interested organizations, public associations for the implementation of the law.

And yet, the issues of forming the structure of local self-government bodies are part of the problem associated with determining the balance between the existing processes of centralization and decentralization in the sphere of functioning of local self-government. Analysis of the provisions of the 2003 Law shows that a new model of the organization of local self-government in the Russian Federation is being laid.

For the development and implementation of a more effective system of municipal management of Lukoyanovskiy districts, a reorganization of the organizational structure of the administration has been proposed. Separate directions for reorganization, a package of regulatory instructions for individual structures and their areas of activity have been developed.

If we talk about the actual organizational structure of the local administration, then the main directions of their reorganization can be as follows.

1. Bodies of local self-government of Lukoyanovskiy district to separate power and economic functions, to take out of the administration all structures engaged in economic activities and therefore have the status of a legal entity, giving them the form of municipal institutions.

2. The administration of the Lukoyanovsk municipal district to create large organizational and administrative blocks in the structure of the administration, the heads of which are fully responsible for the implementation of municipal policy in the relevant areas, the achievement of its ultimate goals. These can be blocks of economics and finance, municipal real estate management, municipal services, social policy, public safety, etc. The creation of large blocks will reduce the burden on the head of administration for solving current issues, will allow him to devote the bulk of his time and energy to the problems of strategic management of the district.

3. To the local self-government bodies of the Lukoyanovskiy district to recommend the creation, along with the classical linear-functional organizational structures, structures of the program-target or program-functional type. Since the need to combine various types of organizational structures and methods of achieving goals predetermines the complexity of the task of developing and implementing an effective system of municipal management, reorganizing the organizational structure of the administration.

At the same time, the choice of the optimal management structure for a municipal formation should unfold simultaneously along several parallel lines:

Development of a model and an organizational project for reorganization - responsible Administration of the Lukoyanovskiy municipal district;

Development of a regulatory framework for the activities of a local self-government body - Zemsky Assembly of Lukoyanovsky District;

Development of a package of regulations for various areas of municipal activities - Zemsky Assembly of Lukoyanovsky District;

Development of regulations on the main organizational and administrative blocks - Administration of the Lukoyanovskiy district;

Description of organizational procedures and functional connections of the entire space of interaction of various management structures, main workplaces and preparation of job descriptions - local government bodies of the district;

Retraining and advanced training of employees of the administration - Administration of the Lukoyanovskiy municipal district;

Preparation of a reserve of personnel for municipal administration - District Administration, Zemsky Assembly of Lukoyanovsky District.

GLOSSARY

Local self-government acts - directly receives the population of the municipality during local referendums, meetings, gatherings, conferences. They are designed to ensure the organization of governance at the local level.

Administration- 1.) a municipal government body; 2) officials and management personnel of a municipal institution or enterprise.

Local issues - issues of direct support for the life of the population of the municipality, the solution of which, in accordance with the legislation, is carried out by the population and (or) local self-government bodies independently.

Municipal decision tree - a schematic representation of the decision-making process to achieve the goals of municipal government.

Information support of municipal administration Is the organization of the search, collection, storage, processing and transmission of information for the purpose of using it to formulate and solve problems of municipal administration.

Criteria for assessing the effectiveness of municipal management - specific signs on the basis of which the assessment of the state of the local community, the level of its social, economic and spiritual development is made.

Local government - independent and under its own responsibility, directly or through municipal authorities, the activity of the population to resolve local issues, based on the interests of the population, its historical and other local traditions.

Municipality Is a complex socio-economic system, consisting of several closely interacting elements: population, natural and geographical environment, city-forming base and life-supporting subsystem serving the functioning, preservation and development of the municipality.

Inefficiency - performance of work with more than it is calculated, or in comparison with something else, costs. Indicator characterizing incompetent municipal management.

Organizational structure of municipal government - composition, interrelationships and subordination of the aggregate of structural divisions of bodies and municipal administration, performing various functions.

Local government bodies - bodies elected directly by the population and (or) formed by the representative body of the municipality, endowed with their own powers to resolve issues of local importance.

BIBLIOGRAPHY

1. Decree of the President of the Russian Federation of April 28, 2008 N 607 "On assessing the effectiveness of the activities of local self-government bodies of urban districts and municipal districts"

2. Federal Law of the Russian Federation "On General Principles of Organization of Local Self-Government in the Russian Federation" dated October 6, 2003. No. 131-FZ, adopted by the State Duma on September 16, 2003

3. Law of the Nizhny Novgorod Region of March 29, 2005 N 31-Z "On Additional Requirements for Candidates for the Position of Head of the Local Administration of a Municipal District (Urban District) and the Conditions of a Contract for the Head of the Local Administration of a Municipal District (Urban District). N 1361-III