Distances in a straight line from Moscow to a number of large cities in Russia and the Near Abroad, I implemented a long-standing idea and calculated for each region of Russia a regional center (or a city of regional subordination), the most geographically remote from the administrative center of the region. Distances are everywhere, again, in a straight line, and not along roads, since with the calculation of the roads the selection will not be entirely objective: somewhere along the shortest path there is a road of poor quality (and because of this it takes longer to drive), and in some places (a number of regions of the Far and not quite North) there are no roads at all. In general, the picture turned out like this:
Yakutia: Chersky (1620 km from Yakutsk)
Krasnoyarsk region: Dudinka (1530 km)
Khabarovsk Territory: Okhotsk (1320 km)
Kamchatka Territory: Kamenskoye (1140 km from Petropavlovsk-Kamchatsky)
Sakhalin Region: Severo-Kurilsk (1070 km from Yuzhno-Sakhalinsk); in the conditionally mainland (regardless of the fact that this is also an island) - Okha (740 km)
Irkutsk region: Erbogachen (1030 km)
Arkhangelsk region: Belushya Guba (919 km); in the mainland - Ilinsko-Podomskoye (536 km); if you count with the Nenets Autonomous Okrug, - Iskateley (667 km)
Komi: Vorkuta (905 km from Syktyvkar)
Yamalo-Nenets Autonomous Okrug: Krasnoselkup (720 km from Salekhard)
Buryatia: Taksimo (690 km from Ulan-Ude)
Tomsk Region: Strezhevoy (638 km)
Chukotka: Pevek (636 km from Anadyr)
Trans-Baikal Territory: Chara (623 km from Chita)
Amur Region: Tynda (573 km from Blagoveshchensk)
Magadan Region: Evensk (528 km)
Karelia: Loukhi (485 km from Petrozavodsk)
Khanty-Mansi Autonomous Okrug: Rainbow (465 km from Khanty-Mansiysk)
Primorsky Krai: Terney (432 km from Vladivostok)
Sverdlovsk region: Ivdel (430 km from Yekaterinburg)
Novosibirsk region: Kyshtovka (430 km)
Orenburg Region: Svetly (415 km)
Vologda Oblast: Veliky Ustyug (398 km)
Kostroma Region: Bogovarovo (381 km)
Altai Territory: Burla (362 km from Barnaul)
Bashkortostan: Akyar (352 km from Ufa)
Tyumen region: Sladkovo (349 km); if you count with the districts, - Tazovsky (1330 km)
Omsk Region: Ust-Ishim (335 km)
Rostov region: Zavetnoe (320 km)
Tuva: Mugur-Aksy (315 km from Kyzyl)
Chelyabinsk Region: Bredy (314 km)
Kemerovo Region: Tashtagol (311 km)
Tatarstan: Bavly (303 km from Kazan)
Saratov Region: Perelyub (301 km)
Volgograd Region: Uryupinsk (295 km)
Altai: Kosh-Agach (289 km from Gorno-Altaisk)
Perm Krai: Gayny (278 km)
Kirov Region: Vyatskiye Polyany (276 km)
Pskov Region: Usviaty (273 km)
Tver Region: Toropets (266 km)
Novgorod Region: Pestovo (264 km)
Murmansk region: Umba (260 km)
Kalmykia: Lagan (258 km from Elista)
Astrakhan Region: Akhtubinsk (257 km)
Nizhny Novgorod Region: Tonshaevo (244 km)
Stavropol Territory: Neftekumsk (241 km)
Leningrad region: Podporozhye (240 km from St. Petersburg)
Dagestan: Yuzhno-Sukhokumsk (238 km from Makhachkala)
Voronezh Region: Kantemirovka (223 km)
Smolensk Region: Gagarin (206 km)
Bryansk Region: Zlynka (202 km)
Ulyanovsk Region: Pavlovka (198 km)
Kurgan Region: Kataysk (196 km)
Crimea: Kerch (190 km from Simferopol)
Jewish Autonomous Region: Amurzet (182 km from Birobidzhan)
Belgorod Region: Rovenki (181 km)
Ryazan region: Kadom (177 km)
Krasnodar Territory: Kushchevskaya (176 km)
Khakassia: Kopyevo (176 km from Abakan)
Mordovia: Tengushevo (171 km from Saransk)
Udmurtia: Yar (170 km from Izhevsk)
Samara region: Klyavlino (170 km)
Penza Region: Zemetchino (164 km)
Kaluga Region: Betlitsa (161 km)
Moscow Region: Serebryanye Prudy (160 km from Moscow city center)
Chuvashia: Alatyr (149 km from Cheboksary)
Yaroslavl Region: Breitovo (142 km)
Orel Region: Dolgoye (140 km)
Kaliningrad region: Nesterov (135 km)
Kursk Region: Kastornoye (134 km)
Ivanovo region: Yuryevets and Puchezh (133 km, the same)
Lipetsk Region: Volovo (132 km)
Tula Region: Efremov (123 km)
Vladimir Region: Murom (120 km)
Tambov region: Muchkapsky (119 km)
Mari El: Yurino (106 km from Yoshkar-Ola)
Adygea: Tahtamukay (95 km from Maikop)
North Ossetia: Mozdok (78 km from Vladikavkaz)
Karachay-Cherkessia: Pregradnaya (74 km from Cherkessk)
Chechnya: Himoy (74 km from Grozny)
Kabardino-Balkaria: Tyrnyauz (59 km from Nalchik)
Ingushetia: Dzheirakh (40 km from Magas)
Nenets Autonomous Okrug: Iskateley (bordering Naryan-Mar)
Two factors in combination affect the statistics: the area of the region, combined with the remoteness of its administrative center from the geographic one: the larger both, the closer the region is to the top of this list (for example, the Tomsk and Kostroma regions and Karelia noticeably pulled out due to location of capitals on the edge). Quite predictably, Yakutia and the Krasnoyarsk Territory are in the lead - hardly anyone could overtake them, even if Yakutsk and Krasnoyarsk were located in the very center of their regions. And in general, which is quite logical, on average, the first places are the regions of the Far North and the Far East, then Siberia, followed by the Urals and the Russian North, then the Volga region, then the Black Earth and central Russia, and the list is completed by the republics of the North Caucasus - the smallest regions of the country in terms of area (multinational Dagestan escaped significantly upward from them). It's strange, but in last place is quite a region of the Far North, but these are already the costs of administrative division - Iskateley, in fact, is just a suburb of Naryan-Mar.
Of the regions of the European part of the country, the Arkhangelsk region is in the first place: if we count not only the mainland, but if we do not take into account the Arctic archipelagos, then the Republic of Komi goes ahead of it in the European part; of the regions located beyond the Urals, in last place is Khakassia.
Of the most remote district centers, 32 are cities, 20 are urban-type settlements, and 30 are rural settlements (villages / towns / villages).
More interesting observations:
Pskov, Tver and Novgorod regions follow each other
The same indicator in the Novosibirsk and Sverdlovsk regions (whose centers are, respectively, the third and fourth cities of the country)
P.S. - to be honest, I myself learned about some of these regional centers for the first time.
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Gavryushenko Anatoly Fedorovich. Features of the economic development of a remote region of the Russian Federation: 08.00.05, 08.00.04 Gavryushenko, Anatoly Fedorovich Features of the economic development of a remote region of the Russian Federation (On the example of the Anadyr region of the Chukotka Autonomous Okrug): Dis. ... cand. economy Sciences: 08.00.05, 08.00.04 Moscow, 2000 211 p. RSL OD, 61:01-8/2143-6
Introduction
Chapter I. Management of integrated socio-economic development of a remote area in the context of strengthening the role of local government: theory and practice
1.1. Comprehensive socio-economic development of territorial entities 13
1.2. Management of the integrated socio-economic development of a territorial entity, -
1.3. Methodology for the development and implementation of a comprehensive development program
1.4. Budgetary and financial support of the integrated socio-economic development of remote regions and territories
1.5. Foreign and domestic experience management of territorial development 44
Chapter II. The concept of socio-economic development of the Anadyr region of the Chukotka Autonomous Okrug in the context of strengthening the role of local self-government 59
2.1. Condition Analysis productive forces and contemporary issues social and economic development of the Anadyr district of the Chukotka Autonomous Okrug ep
2.2. Analysis of the budgetary and financial support of the Anadyr district of the Chukotka Autonomous Okrug 81
2.3. Features of the development of local self-government in the Anadyr region of the Chukotka Autonomous Okrug 89
2.4. The concept of socio-economic development of the Anadyr region of the Chukotka Autonomous Okrug 97
Chapter III. Implementation of priority areas of socio-economic development of the Anadyr region of the Chukotka Autonomous Okrug
3.1. Organizational structure of managing the integrated socio-economic development of the Anadyr district of the Chukotka Autonomous Okrug SW
3.2. Improving the organization of gold mining]22
3.3. Development of processing of agricultural products 127
3.4. Organization of development of national villages 147
3.5. Efficiency of integrated management of socio-economic development of the territory 158
Conclusion 165
Literature
Introduction to work
The problem of scientific substantiation and development of ways and organizational and economic mechanisms for managing the integrated socio-economic development of remote regions of the Russian Federation is complex and still insufficiently studied. The urgency of this problem is determined by the fact that the change in the principles of organization of local self-government, the assignment of rights and responsibilities for the integrated development of territories to local self-government bodies, the complication of social economic situation in most remote regions of the Russian Federation, the transition to a market economy makes it necessary to improve the mechanisms for managing the development of territories. Meanwhile, the significance of the remote territories of Russia, including the regions of the Far North, in ensuring the overcoming of the crisis and the rise national economy, a significant improvement, ultimately, in the quality of life of the population of Russia is difficult to overestimate.
The northern regions of the country, which provide almost a fifth of the national income and the main foreign exchange earnings, are currently in a difficult economic situation. Production volumes are declining, the standard of living of people is falling, enterprises are closing, the outflow of qualified specialists is growing. The crisis in the economy and social sphere of the northern regions of the Russian Federation continues. This crisis is due to the complexity of the process of adapting the economy to new market conditions, as well as some mistakes in the implementation of reforms.
Comprehensive socio-economic development of territorial entities is assigned by the Federal Law "On general principles organizations of local self-government in the Russian Federation" to the jurisdiction of the territories themselves
torial formations. They received the right to determine their own development strategy, develop and implement own projects and development plans.
Thus, at present, the development and implementation of programs for integrated socio-economic development is becoming one of the main functions of local self-government bodies of territorial entities. This imposes special requirements on their activities and imposes responsibility for the sustainable development of the territorial entity.
A number of regions of the North have their own potential for socio-economic development - there are rich raw materials resources, qualified personnel and infrastructure elements are still preserved. Of particular importance for the socio-economic development of the territories is the problem of distributing income from the use of natural resources between federal and regional state authorities and local governments.
An important factor hindering the use of the existing natural resource and industrial potential is the lack of evidence-based and proven recommendations for choosing the optimal strategy for the integrated socio-economic development of territories, the lack of science-based concepts and territorial economic programs capable of providing conditions for sustainable regional development even in the context of a general crisis and a decline in production. Under these conditions, territorial programs are necessary to solve problems of local importance in order to increase the resource potential and use it more fully. Moreover, there are legal grounds for allocating the necessary resources and powers in the form of Russian legislation on local self-government.
The possibilities of regional and municipal territorial administration are being explored by many domestic and foreign experts: Adamescu A., Akhmeduev A., Barabashev G., Borisov A., Kirpichnikov V., Savelyev V., Fadeev V. and others. The analysis of scientific publications shows that that in the works of domestic researchers a serious scientific basis is being created for improving the organization and methods of regional management. Many publications discuss the economic prospects of legislation on local self-government, however, mainly in the conditions of cities: Voronin A., Lapin A., Shirokov A., etc. There are works in related areas: in particular, the issues of enhancing economic activity through cooperation dedicated to the works of Chayanov A.V. last years studies have also been published on the principles of regional planning and development of deposits located in the regions of the Far North: Ermilov O., Latypov M., Litovchenko A., Nazarov A. Management approaches often proposed in the scientific literature do not have sources of appropriate financial and material support and remain a set of wishes. However, the issue of effective methods of local territorial management of the crisis areas of the Far North cannot be considered fully resolved. In the above works, the specifics of economic activity in the northern regions, the need to compensate for the increased costs due to natural and climatic conditions. The search, development and implementation of scientifically based methods of territorial management can be of great scientific and practical importance for a number of regions of the Far North.
Insufficient theoretical study of the problem of scientific substantiation and development of ways and organizational and economic mechanisms for managing the integrated socio-economic development of remote areas
Russian Federation in modern conditions, the complexity and inconsistency of its solution in practice have consistently determined the choice of topic, goal, objectives and subject of research.
Objective consists in substantiating the need and developing ways to solve an important national economic problem - managing the integrated socio-economic development of remote regions of Russia in the conditions of market economy.
To achieve this goal, it was necessary to solve the following perdachas :
identify modern features of the integrated socio-economic development of remote areas in market conditions;
analyze modern approaches to the management of the integrated socio-economic development of territorial entities and their resource provision, to determine the possibility of using local resources to ensure sustainable socio-economic development;
develop a concept for the integrated socio-economic development of a remote territory (on the example of the Anadyrsky district of the Chukotka Autonomous Okrug) based on the use of local raw material and industrial potential and strengthening the economic activity of local government, taking into account the interests of the indigenous population engaged in traditional types of economy;
to develop, on the basis of a scientific and methodological approach, specific organizational solutions for the economic development of the Anadyr region to overcome the observed decline in production and improve the economic situation.
Object of study are typical remote territories of Russia on the scale of a district, located in unfavorable natural
climatic conditions and subject to a significant outflow of the able-bodied population.
Subject of study are factors that ensure the use of industrial potential and related infrastructure, the development of a system economic relations between federal and local governments.
Scientific novelty of the dissertation . The main scientific results of the dissertation research are as follows.
The concept of integrated socio-economic development of the Anadyr region of the Chukotka Autonomous Okrug has been developed. The concept provides for the economic development of the territory, taking into account the interests of the indigenous population, focused on traditional types of economy. The concept focuses on the formation of a highly efficient, flexible and receptive to innovation social oriented economy, which combines the mechanisms of market self-regulation and active state influence, takes into account the traditions and socio-cultural characteristics of the peoples inhabiting the Chukotka Autonomous Okrug. Achieving these goals is possible with the activation of the economic initiative of local self-government.
The possibility of ensuring in remote regions of Russia, rich in natural resources, comprehensive socio-economic development, stabilization and sustainable growth of production and financing of territorial economic programs by activating reserves is substantiated. effective use resource potential.
Methodological approaches have been developed to the formation of mechanisms for sustainable socio-economic development of remote regions of the Russian Federation in the context of strengthening local self-government. These approaches include specific
proposals for the stages of development and implementation of the program of integrated socio-economic development and contain coordinated programs for the development of various areas of activity of the territory, linked by resources, timing, and priorities. At the same time, local programs are organic integral part yu regional and federal programs.
A new organizational structure for managing the complex socio-economic development of the region has been developed, adequate to the new, increased role of local self-government in matters of integrated development of the territory. It is envisaged to create a Council for Planning and Coordination of Comprehensive Socio-Economic Development under the district administration. This Council involves in the development management process the leading economic entities, whose activities have a decisive impact on the socio-economic situation in the territorial entity.
New approaches to the organization of the activities of the priority sector of the territorial economy - gold mining, are proposed, involving: state system subsoil use in the district with the simultaneous formation of its own funds of geological information; demonopolization of the structure of the mining industry with support for artisanal and rotational mining methods; attraction of investments and improvement of gold extraction technologies; ensuring a reduction in the cost of gold production by modernizing the production infrastructure, accepting social facilities on the balance sheet of local budgets, reducing tax rates, providing financial assistance enterprises with a reduction in the number, financial support for navigational supplies of materials and petroleum products.
The conclusion is substantiated that the most important conditions for the stabilization and sustainable development of industry in the Anadyr region are: attraction of significant domestic and foreign investment in the technical re-equipment and modernization of existing mining, coal, fish processing, food processing, energy and other enterprises; creation of new industrial productions, focused on a fuller use of traditional renewable resources; development of new progressive forms of economic activity in the form of joint (with foreign capital) enterprises of the fuel and energy complex, processing of reindeer products, fur farming, etc.
Proposals have been developed to preserve the traditional way of the indigenous population and support the small peoples living in the territory, providing for a reasonable combination of subsidies and labor incentives, and the development of the local production base of the traditional economy. An approach is proposed to the accumulation of start-up capital for the social development of national villages - places of compact residence of the small peoples of the North, without attracting funds from state budget, which includes the transfer of the administration for the sale of a certain volume of mined gold, the allocation of a seafood catch limit in the Bering Sea and an export quota for their sale.
The practical significance of the work lies in the fact that the conclusions and recommendations formulated in the dissertation are brought to specific practical recommendations for managing the integrated socio-economic development of a remote region of the Russian Federation. The results of the study have found wide application in the practical activities of the administration of the Anadyr region of the Chukotka Autonomous Okrug. In particular, when developing a target
output programs social development, self-government, small business support and cooperation, which are approved and are currently being implemented in the district. The results of the dissertation can be useful for these purposes and for all other remote territorial entities.
Approbation of work. The research results have been published and reported at international scientific conferences and seminars:
at the international scientific-practical scientific conference "Market about the market in science". - Novosibirsk. 1996;
at the final seminar-meeting of performers of the interuniversity scientific and technical program "Construction". - Novosibirsk, 1996
at the Siberian Science Congress "Science - the basis of sustainable development of the economy of Siberia". - Novosibirsk 1997
The structure and scope of the dissertation. D the thesis is presented on 170 pages of typewritten text, consists of an introduction, 3 chapters, a conclusion, an appendix and a list of references, including 192 sources of domestic and foreign authors.
The text is illustrated with 21 tables and 14 figures.
Gliea I. MANAGEMENT OF INTEGRATED SOCIO-ECONOMIC DEVELOPMENT OF A REMOTE AREA UNDER CONDITIONS OF STRENGTHENING THE ROLE OF LOCAL SELF-GOVERNMENT: THEORY AND PRACTICE
The problem of managing the complex socio-economic development of remote regions and territories is relevant for most federal states and states with pronounced territorial economic differences, including the Russian Federation.
To date, considerable experience has been accumulated in scientific research on the process of managing territorial development. The possibilities of regional and local territorial administration are being studied by many domestic and foreign specialists (Adamescu A., Akhmeduev A., Barabashev G., Borisov A., Kirpichnikov V., Leksin V., Lvov D., Fadeev V., Shvetsov A.).
An analysis of scientific publications shows that the works of domestic researchers create a scientific basis for improving the methods and organization of regional management. Many publications discuss the economic prospects of legislation on local self-government (Voronin A., Lapin A., Shirokov A.). There are works in related areas: in particular, the issues of enhancing economic activity through cooperation are devoted to the works of A. Chayanov. BUT.).
Often proposed in the scientific literature, management approaches do not provide for the sources of appropriate financial and material support and remain a set of wishes or requirements for the adoption of exclusive laws or programs. Some programs are quite general in nature, do not take into account the characteristics of specific areas, municipalities or represent a set of demands for financial support and increased central funding. A number of questions (related, in part
specificity, with the national characteristics of the demographic situation, migration outflow) has not been sufficiently clarified, allowing to make informed management decisions. Therefore, the issue of effective methods of local territorial management of remote crisis areas, including those in the Far North, cannot be considered resolved.
Known works do not sufficiently take into account the specifics of economic activity in remote northern regions, the need to compensate for increased costs due to natural and climatic conditions, the complexity resource provision. Thus, the search for effective, scientifically based methods of territorial administration (especially if they are confirmed in practice) is of great scientific and practical importance for remote regions of the Far North of the Russian Federation.
1.1. INTEGRATED SOCIO-ECONOMIC DEVELOPMENT OF TERRITORIAL FORMATIONS
The Federal Law "On the General Principles of Organization of Local Self-Government in the Russian Federation" introduced a norm according to which the integrated socio-economic development of a territorial entity is within the jurisdiction of a territorial entity. Thus, at present, the development and implementation of programs for integrated socio-economic development is becoming one of the main functions of local self-government bodies of territorial entities. The terms "municipal and territorial entity" themselves came into use with the advent of the Civil Code of the Russian Federation, in which this term is first encountered. The appearance of the term is due to the need to designate new subjects of civil legal relations, such as urban, rural, district settlements and other territories where local self-government can be exercised.
Comparing the Constitution of the Russian Federation and the Civil Code of the Russian Federation, it can be understood that territorial entities also mean a certain territory on which the population lives (optional
compactly and not necessarily settled), and a part of the urban area (district in the city), which has acquired a certain status (the status of a territorial entity), which allows, in particular, to participate in civil legal relations and exercise local self-government. As a special case, a territorial entity and a settlement in legal terms can mean the same phenomenon: if a settlement has the status of a territorial entity, then the concepts of "settlement" and "territorial entity" coincide. However, the Federal Law "On the General Principles of Organization of Local Self-Government in the Russian Federation" provides for cases where a settlement may not be a territorial entity, i.e. the population of this settlement does not independently exercise local self-government on its territory.
For settlements, districts and cities, setting the task of independent integrated socio-economic development is necessary and inevitable, and therefore the local governments of these cities are obliged (even at least from the formal point of view of the law) to set the task of integrated socio-economic development and carry it out under their own responsibility. solution.
Since it is purposeful movement that best makes it possible to dispose of limited resources, to achieve the maximum positive effect at limited costs, then effective management involves the definition (formulation) of specific management goals. In other words, in order for a territorial entity to make the best use of its development resources, it is necessary to determine the goals of this development. The author adheres to the view that without setting goals (even in the very general view) there will be no forward movement, but there will be "marking time", "patching holes", "putting out fires". Goals should be selected from many different options and economically justified. The criterion for choosing development goals is the maximum possible social effect, i.e. the need to best meet the social needs of the population according to the highest possible social norms and standards.
The named target approach does not ignore the objective patterns of development. The target approach involves the study of several real "scenarios", development paths, on the basis of which best strategy management.
There are different views on the very concept of integrated socio-economic development of the region (its scope and direction). In a broad sense, integrated socio-economic development is understood as the development of the infrastructure of a territorial entity, the development of the economic activities of local governments through property management and business activities. At the same time, a simplified view is preserved, which boils down to the fact that the integrated socio-economic development of a territorial entity is understood as a "general development plan" or "master plan capital construction". The concept of "complex socio-economic development of a territorial entity" was introduced in the federal law to designate a new phenomenon in the life of Russian settlements - the transition from government controlled on the ground to the formation of a new institution of power in the state - the institution of local self-government. In accordance with this, the concept of "comprehensive socio-economic development" includes the concepts of "master plans for development", "master plan for capital construction".
A territorial entity is understood as a holistic socio-economic phenomenon that has its own internal laws of development, and if citizens (residents of settlements) are given the right by law to raise and resolve issues of development of a territorial entity, then the term "comprehensive socio-economic development of a territorial entity" should not refer to a separate sphere of life, but to the entire spectrum of social and economic processes.
Thus, the legislator provided the opportunity for the population to be fully responsible for their decisions, and it is important that the case is not limited to the traditional formulations of "taking into account the opinions" of residents.
bodies. The federal law refers "comprehensive socio-economic development" to issues local importance with all the ensuing legal and property consequences. Territorial entities received the right to determine their own development strategy and the right to develop and implement their own development projects and plans. This makes special demands on local governments, since in this case they are responsible for the fate of the settlement (territorial formation).
So, integrated socio-economic development of the territorial entity Federal Law "On the General Principles of Organization of Local Self-Government in the Russian Federation" as a matter of local importance to the subjects of jurisdiction of territorial entities.
Since there is no generally accepted interpretation of the term "complex socio-economic development of the territory" yet, in the author's opinion, it is advisable to use the following definition: “Comprehensive socio-economic development is understood as a controlled process of changes in the life of settlements, which aims to achieve a certain level of economic and social life in the territory with the highest level of satisfaction of the needs of the population and the interests of the state in the territory of the settlement, with the least damage to natural resources.”
In the face of diversity economic life territories, it is advisable to talk about a complex or hierarchy of goals for managing districts, cities, settlements. Along with private goals (for example, reducing unemployment, housing construction, etc.), there are some general, global goals (sustainable development, improving the quality of life). As a general (comprehensive) management goal, one can choose preservation and development of the settlement as an integral socio-economic entity. Following this goal will allow to save the settlement, and thus ensure the possibility of meeting the collective social needs of the inhabitants of the territorial unit. (When setting more specific, particular development goals, it is important to take into account that the settlement belongs not only to the current generation. In
In this regard, the focus only on meeting the needs of the current generation without taking into account the social and other consequences for the future may have the opposite result even during the life of the current generation).
1.2. MANAGEMENT OF INTEGRATED SOCIO-ECONOMIC DEVELOPMENT
TERRITORIAL FORMATION
Under control system We will understand the complex socio-economic development of a territorial entity as a system in which management functions are implemented (planning, organization, regulation, accounting, control, analysis) and which includes:
economic potential of the territorial entity;
economic activity of residents of the territorial entity;
specialists united in management bodies;
used set of management methods;
links between the governing bodies, the object of management and the external environment, which are determined by various methods of interaction and flows of management information.
The main elements of the management system for the integrated socio-economic development of a territorial entity. Under the self-governing territorial socio-economic system, we mean the integrity, which includes the main components (see Fig. 1.2.1): population (residents) + territory + resources of the territory + collective interests of residents = self-governing territorial socio-economic system. The presence of these components is a necessary condition for the implementation of self-government. The absence of one of these elements makes self-management impossible.
:;.-..lfc_jM:
POPULATION
COLLECTIVE INTERESTS
TERRITORY
ECONOMIC RESOURCES OF THE TERRITORY
SELF-GOVERNING TERRITORIAL SOCIO-ECONOMIC SYSTEM
Rice. 1.2.1. Components of a self-governing territorial socio-economic system
RUSSIAN FIDERAMIA
SUBJECT OF THE FEDERATION (republic, region, district)
Groups
interests,
public
unions and
associations
LOCAL GOVERNMENT
Coordination of the goals of the subjects of management
Rice. 1.2.2. Subjects involved in the management of socio-economic development of territories, coordination of their goals and interests
There are four main types economic resources territories: land, labor, capital and entrepreneurial ability. These types of resources are sometimes also called factors of production. Term Earth in economic theory means Natural resources, i.e. area, location and fertility of the land, minerals, climate, forest, water supply, hydropower, etc. Labor as an economic resource is usually characterized by the number of workers, their qualifications, the duration and intensity of the performance of production functions. Capital, or investment resource, characterizes the means of production: equipment, tools, buildings, stocks of materials, etc. Many authors highlight entrepreneurial ability, or entrepreneurship as a separate type of economic resources. Entrepreneurial abilities are manifested in the rational use of labor, land and capital, the ability to find and apply new scientific, technical, organizational, artistic, commercial ideas.
Let us consider separately the main elements that implement the functions of management (self-government) - subjects and objects of management.
In the future, a territorial entity is considered as a self-governing territorial socio-economic system, in relation to which all other systems are considered external. The main subject (and at the same time the object of self-government) is the population of the territorial entity. The population that exercises local self-government is at a higher social level of development than the "governed" population. The population of a territorial entity that exercises its right to local self-government is commonly called a local community.
society. (In countries Western Europe in this case the term "local communes" or simply "communes" is used). In cases where the local community does not have the technical and organizational ability to exercise local self-government directly (through local polls, referendums, etc.), it transfers some of the functions and powers to implement local self-government on its own behalf (on behalf of the local community) local authorities. In this case, local governments act as the subject of management. In the vast majority of territorial entities, the local community forms the bodies of local self-government.
The development of the territory is influenced by not only local governments, but also authorities of the Russian Federation, authorities of a constituent entity of the Federation. Unlike local governments, the listed entities in accordance with the law do not have the opportunity to manage local affairs directly (in accordance with the Constitution, local governments are not included in the system public authorities), but public authorities exercise this control indirectly, for example, through the adoption of laws. Using a broad interpretation of the concept of "subject of management", the author emphasizes that local governments are not the only subjects of government in a given territory. In modern Russian practice, indirect influence on management processes through voluntary associations (advisory bodies) created for this has become common boards of directors. This is typical for territories whose social sphere is contained by several large enterprises, including for remote areas and regions of the Far North.
Although the decisions of the board of directors are not binding, but any head of the territorial listens to the opinion of the board of directors. At present, under the conditions of the new Constitution, in the process of implementing the Federal Law "On the general principles of organizing local self-government"
management in the Russian Federation, boards of directors, as local governments, began to be endowed with certain powers by the charters of territorial entities and thereby turn into elements of the self-government system.
The presence of a system of management entities with different goals is one of the features of territorial administration (see Fig. 1.2.2). This feature of territorial administration is especially clearly manifested in the sphere of managing the integrated socio-economic development of a territorial entity. In this regard, in the management structure of a territorial entity, the function of coordinating the interests of different subjects of management is expedient.
The object of management in accordance with the terminology adopted in the theory of project management is the the process of development of a territorial entity. This facility is a system of programs and projects mutually linked in terms of time and resources. In the theory of project management, along with the "project" there is the concept of "program". The difference between these two concepts mainly lies in the scale of the changes made and the time within which these changes occur, as well as in the number of performers involved in the implementation. It is generally accepted that the program is a larger object of control in its scale. The program is a system of mutually linked projects, each of which is managed relatively independently. Under the program for the integrated socio-economic development of a territorial entity, in accordance with the accepted terminology, we mean a system of measures (projects) aimed at achieving the goals set.
The most important component of the management of integrated socio-economic development is a set of coordinated programs for the development of various areas of activity of the territory, linked by resources, timing, and priorities.
Targeted programs at the national, regional and local levels are the main component of the system of state and municipal
palm control in countries with developed market economies. Such programs are understood as a complex of economic, technical, research, social and organizational measures aimed at solving specific, clearly justified tasks of social development.
The main features of the programmatic approach are as follows:
the program is focused on the end result;
the program is considered as an integral management system, regardless of the departmental affiliation of its constituent elements;
the program is endowed with financial, material, labor and other necessary resources;
the program is linked to other programs of the same level;
the program is managed by redistributing the rights, duties and responsibilities of existing structures, as well as by using various forms of coordination.
Programs are federal, national, regional and local.
According to the functional orientation, scientific, technical, production, investment, environmental, social and other programs are distinguished.
Depending on the role of the state in managing the implementation of programs, programs of state orders (purchases) and programs of state assistance (support) are distinguished.
Programs can be short-term (up to 2 years), medium-term (up to 3-5 years) and long-term (over 5 years).
Federal government programs should work closely with regional and local programs. Regional programs should reflect the key directions of development of the economy and social sphere of the region; main sources of funding; subprograms for certain areas of development of the regional economy.
To achieve the goals set, a fairly limited range of problems, areas, industries is allocated, the concentration of efforts on which is able to achieve the chosen goals to the greatest extent.
By separating intermediate target tasks from the final goal of the program, subprograms are formed and the appropriate set of activities (tasks) necessary to solve the specified target tasks, the timing of their implementation, financial resources, prime contractors and expected results are determined.
The proposals of the executive bodies of the territories on regional programs in most cases detail federal targeted programs and are aimed at the participation of regions in their implementation.
In the preparation and implementation of federal and regional target programs, special attention is paid to the need to attract for their implementation, first of all, extrabudgetary funds, and primarily domestic and foreign private investors, funds from the budgets of the constituent entities of the Federation in conjunction with handicapped their state support at the expense of centralized resources.
In each territorial entity, development management can be organized in different ways (depending on the resources and complexity of the tasks being solved), but there are some general patterns in the process of managing the development of a territorial entity that are inherent in all territorial entities. One of such general patterns of the process of managing the development of territorial entities is its cyclicality. The cyclical nature of the management process is determined by the following factors:
cyclicality of the budget process;
period of authority of local governments;
cyclicality of large investment projects;
local traditional features (cultural-historical, religious, etc.)
In general, the full cycle of management of integrated socio-economic development can be divided into two periods: the period of development of the program of integrated socio-economic development and the period of implementation of this program. Such a clear division of management periods is typical for relatively small territorial entities or for solving individual problems, as well as when developing programs in certain areas of the life of a territorial entity. This approach allows effective management and control of resource spending and achievement of results.
In large territorial entities, the management of complex socio-economic development may be more complex, a clear separation of planning and implementation periods may turn out to be artificial.
Essentially, the planning and execution processes can be organized in parallel. For example, there are two development programs at the same time: a program of integrated socio-economic development, designed to be implemented in the next budget period, and the main directions for the development of a territorial entity in the longer term (until the next re-election or longer). The last, promising development program is constantly being finalized and at certain periods of time associated with the cycle of the budget process in the territorial entity, fragments of the development program ready for this moment are submitted for consideration to form a comprehensive socio-economic development program for the territorial entity for a certain period (for example, for a year ).
The management process can be divided into short-term projects, in the management of which can be distinguished as relatively independent following the main stages of managing the integrated socio-economic development of a territorial entity:
in development program development period:
collection and processing of information;
goal setting (goal setting);
development of strategic guidelines and development criteria;
assessment of development potential and resources;
development of the concept of integrated socio-economic development of the territorial entity;
development and adoption of a program for the integrated socio-economic development of a territorial entity;
drafting a development budget;
during the implementation of the development program:
adoption of the development budget;
implementation of the development budget in accordance with the program of integrated socio-economic development;
control, collection and processing of information and development of proposals for adjusting the budget (programs, concepts).
So, the main feature of planning and dividing into stages of the process of integrated socio-economic development of a territorial entity is that the periods of planning and updating plans must be consistent with some characteristic time cycles of the life of a territorial entity, such as the development and adoption of the district budget, the term of office of bodies local government, etc.
A well-planned budget process (which also includes budget adjustments), the timing of the election campaign to local governments and the terms of office of these bodies, as well as the degree of succession of local governments, linked to the budget process, can significantly reduce the number of likely conflicts and thereby increase efficiency. management of a territorial entity.
1.3. METHODOLOGY FOR THE DEVELOPMENT AND IMPLEMENTATION OF THE INTEGRATED DEVELOPMENT PROGRAM
Management of the development of a territorial entity and management of specific programs and projects within the framework of the process of integrated social
economic development are different concepts that differ both in scale and methods of management. This paragraph discusses the main stages of managing complex socio-economic development on the example of managing a separate specific project, which can be an integral part of a more general program. The management of a program for the integrated socio-economic development of a territorial entity does not fundamentally differ from the management of a separate project, however, the number of connections and the necessary coordination procedures increase significantly.
The stage of collecting and processing information(see Fig. 1.3.1) for local governments in real self-government is of key importance. In terms of self-government, this is not only the collection of information for the implementation statistical reporting. In essence, information support is the establishment of direct and feedback communication with the population of a territorial entity. Information becomes a real tool in the management process. (One of the sections is devoted to the development of unified information systems based on the existing disparate experience in Russia federal program state support of local self-government, approved by the Decree of the Government of the Russian Federation on December 27, 1995.)
Rice. 1.3.1. The main stages of development and implementation of the program of integrated socio-economic development
territorial entity
The main task of the preliminary stage of collecting information is to accurately formulate the goals of the development of a territorial entity and determine the real ways to achieve these goals. Based on the information obtained at this stage, the most promising directions development of the economic basis for the integrated development of a territorial entity. A number of questions need to be answered:
what is the "uniqueness" of this territorial entity;
what is the external conjuncture in relation to this "uniqueness" (how many competitors and how promising is it in the future);
Is it possible on the basis of this "uniqueness" to form the economic basis of self-government.
Heads of such cities as Dubna, Pushchino, Moscow region, Obninsk, Kaluga region, Zarechny Sverdlovsk region and others took the initiative to form, on the basis of existing scientific and technical complexes located on the territory of these cities, new economic complexes, which, on the one hand, should ensure the preservation and development of intellectual and scientific and technical potential, and on the other hand, create prerequisites for sustainable socio-economic development of the settlements themselves.
Similar settlements exist abroad and are called technopolises. At the same time, largely thanks to the leaders of local governments and the population who supported these development programs, it is possible to restrain the process of degradation in the field of science and high technology. The development programs of the science cities mentioned above can also be considered as examples of the state approach to the preservation and development of Russia's national heritage.
Thus, as we can see, the collection of information with the chain of determining the direction of development of a district or city cannot be exhaustively formalized and can be carried out in a wide range: from collecting traditional statistical information to obtaining the necessary information through deep long-term scientific research. In the first case, we rely more on intuition and adjust the development of a territorial entity by trial and error; in the second case, we involve scientific forces and, with a certain probability, insure ourselves against possible sad consequences of an economically and socially unjustified development path.
The stage of collecting and processing information in a broad sense is continuous, since in the process of development management it is constantly necessary to make adjustments both under the influence of external factors and due to errors in planning and management.
Goal setting stage is the key in the process of managing the integrated socio-economic development of a territorial entity. This stage is carried out within the framework of informal, creative procedures. The process of setting development goals is often cyclical (iterative). First, the information at the disposal of the territorial entity is assessed, which is the basis for a preliminary assessment of possible
directions of development. Then, based on the selected preliminary data, an economic and social assessment of the proposed strategic directions of development is carried out. At this stage, additional information may be required, on the basis of which clarification is made, etc.
The procedure for determining development goals should include a stage for coordinating these goals with the local community, with state authorities, as well as local governments of neighboring territorial entities, whose interests may be affected.
Taking into account the fact that the process of developing and adjusting development goals can be extended in time, it is necessary to provide clear criteria for achieving them in the procedure for developing goals. Each territorial entity may have its own system of criteria for the successful completion of the stage of defining and achieving goals or adjusting (clarifying) previously defined development goals for the next planned cycle. However, it is obvious that the main limitation here is the time allotted for this stage, after which the stage of developing a specific program should begin. The work on clarifying the strategic development goals can be continued in parallel, and their results can be used in the next regular cycle. Although the formulation of development goals can be continuously refined, the results must be issued within a certain period of time, on the basis of which the next stage will begin - the stage of developing a concept and development program for the next planned cycle. The stage of determining development goals provides (in addition to setting the goal itself) and the solution of related tasks:
determination of means to achieve goals, based on available resources;
determination of intermediate goals, allowing to quantify the degree of compliance of real changes in the territorial entity with the adopted development program.
In real economic life, the timing and length of the stages are linked to the budget process.
To develop large and complex programs of integrated socio-economic development, it is necessary to first develop the concept of this program. The concept of the program for the integrated socio-economic development of the territorial entity allows you to define a single plan for the program of integrated socio-economic development of the territorial entity. The concept defines a system of views and ideas that reveal the intent of the program and serve as its justification.
Having a formally adopted development concept greatly facilitates the process of drawing up and adopting a more concrete development program.
The stage of developing a program for the integrated socio-economic development of a territorial entity- this is the main stage in the cycle of managing the development of a territorial entity. The effectiveness of this stage depends on the work done in the previous stages (which were discussed above).
The stage of development of the program is closely linked with the stage of official adoption of this program by the representative body of local self-government. The stage of adopting a program of integrated socio-economic development by a representative body of local self-government is a fundamental stage in the process of managing the development of a territorial entity. The program after acceptance acquires the status " local law"and determines everything after-
blowing actions of local self-government bodies endowed with administrative and executive powers.
The adoption of the development program ends the first period in the process of development management - the period of elaboration and adoption of the program of integrated socio-economic development. This is followed by the period of implementation of the program of integrated socio-economic development of the territorial entity.
This period can also be divided into certain stages. The first is the stage of adoption in accordance with the program of the relevant budget (development budget).(Details of the actual budgeting process are not the subject of this paper.) The stage of implementation of the program for the integrated socio-economic development of a territorial entity enters into force after the adoption of the development budget.
Simultaneously with the start of execution of the development budget, a stage begins during which control, collection and processing of information, related to the implementation of the budget. The information received is analyzed and proposals are developed for adjusting the budget and the development program itself. Taking into account the fact that territorial entities are equal subjects of the market, as well as the fact that local governments work in a changing external environment, a procedure for adjusting the budget is provided for in the process of development management.
In essence, local governments as a whole form development management, if we consider their activities in the broad sense of managing the development of a territorial entity.
(In particular, almost everywhere the bodies responsible for the execution of the budget (financial departments), as a rule, are also vested with the authority to
implementation of the territory development function. Often the effectiveness of this activity is low, because the task of these bodies is to search for funds in a specific operational situation, and does not go beyond the search for optimal ways to fulfill the revenue part of the budget. The mistake is that financial agencies often have the authority to regulate the allocation of funds for specific city district programs, despite the fact that these programs have been accepted for execution and their funding is provided.)
In the absence of the necessary personnel, the authority to develop draft development programs can be transferred to specialized organizations (on the basis of an agreement). In this case, the functions of selection and analysis of the draft programs for the integrated socio-economic development of the territorial entity, proposed by the relevant organizations, remain with the local governments.
External interaction. External interaction is a new function of local governments. This function is due to the organizational and legal status of local governments in the system of power relations in Russia. Organizationally, local self-government is derived from the system of state authorities, but the institution of local self-government as a power institution is a completely subordinate institution of power (it cannot reform itself, its activities are carried out within the framework established by law). Thus, the state regulates this sphere of activity through the law.
When planning development management, the presence of "external" subjects of management (federal government, authorities of the subject of the federation) is taken into account, while the key issue is the coordination of the interests of the local community and those external to the territorial entity.
comrade In general, the issue of reconciling the interests of society and the state is an important issue of all political, legal and even philosophical theories. This interaction in practice is manifested in specific contradictions of local and global interests (the interests of the state or specific officials). Currently, interaction with the state on vital economic issues is moving to the level of local governments. Formed local, local "collective interests", which are designed to protect local governments. Thus, local governments, firstly, are intermediaries between state authorities and the local community. Secondly, local self-government bodies are obliged to coordinate the interests of all entities related to the management of the development of a territorial entity or influencing this development. Legislation now provides the necessary legal basis to ensure interaction and harmonization of interests, in particular, the Federal Law "On the General Principles of Organization of Local Self-Government in the Russian Federation" provides for certain powers of local self-government bodies to coordinate the participation of enterprises, institutions and organizations that are not related to territorial property in integrated socio-economic development territory of the territorial unit. However, this is not enough to talk about the division of competence in this area, especially in terms of powers (rights and duties). These relations are not yet sufficiently regulated and, apparently, the development of legislation in this direction is still to be done.
1.4. BUDGETARY AND FINANCIAL SUPPORT OF INTEGRATED SOCIAL AND ECONOMIC DEVELOPMENT OF REMOTE REGIONS AND TERRITORIES
Territory development management and budget equalization. The possibilities of integrated management of the socio-economic development of territories depend on the available human, material and financial resources. The financial resources of local territorial entities depend not only on their own tax and non-tax revenues, but also on mutual settlements with the budgets of the upper levels and their financial capabilities. State subsidies and subsidies in many countries provide a significant part of local budget revenues. Thus, in the United States, subsidies to local governments coming from state budgets account for 33% of their income, and subsidies from federal budget- 7%. State subsidies account for 26% of the total income of German communities. In France, revenues from the central budget provide approximately 30% of local government revenues.
State transfers in favor of local authorities are carried out through subsidies-subsidies for general purposes (for example, in France, subsidies for functioning) and special, targeted subsidies (subventions). In the US, there are more than 200 types of subsidies, in Italy - over 100, in the UK - about 50.
General-purpose subsidies (grants) are more suitable for local communities seeking to protect themselves from pressure from the center and maintain their independence. They are given, as a rule, to cover the deficit of the local budget and contain fewer restrictions on use. Such a system prevails in France and Great Britain; it is also used in Belgium, the Netherlands, Scandinavian countries, Germany. In unitary states, subsidies are provided by the central government, in federal states - as a federation.
the federal government, and the subjects of the federation. General purpose subsidies act as compensation for the lack of tax revenue.
"Targeted grants" are guided not only by the level of income, but also specifically for the purposes for which they are provided. First of all, they act as state regulation to encourage certain investments in the field. In a number of countries (for example, in Germany), the issuance of such funds is accompanied by the condition that local authorities also take part in the costs. This results in additional budget allocations and grant-related liabilities.
Targeted subsidies are typical, for example, for the Scandinavian countries, where they are intended for the implementation of programs in the field of education and health. They prevail in the USA, Italy, Japan, where they are used to finance the police, correctional facilities, economic and social infrastructure. In Germany, earmarked subsidies are mainly used to finance capital investments. Funds for them are reserved in a special fund at the level of the Länder, formed from a certain share of deductions from the general taxes due to the Länder, as well as from their own taxes.
A significantly smaller role in the local budgets of Western countries is played by non-tax revenues, including income from local property, utilities, commercial activities, real estate sales, fines, fees, etc. Revenues to local budgets under this item fluctuate on average within 10-25%. The level of income from local property also differs by country and is associated with its size and the specifics of local utilities. Over the past two decades, there has been an upward trend in tax revenue. This is caused both by an increase in prices for utilities
meadows, and reforms to decentralize public administration, which led to the expansion of the economic and economic independence of local authorities. Privatization policy state property at the local level also contributed to the increase in non-tax revenues (in the UK and Denmark).
Distribution of income from the use of natural resources in the interests of the development of territories. For a federal state with a rich and unevenly distributed natural potential over its territory (namely, Russia is such a state), the problem of distribution between levels of state power of the rights to receive income from the use of natural resources to manage the socio-economic development of territories is of particular importance.
The issues of withdrawal and redistribution of rent from the use of natural resources in the theory and practice of organizing the socio-economic development of territories (including "budgetary federalism") play a key role. The solution to this problem is connected with the search for answers to three specific and interrelated questions: how to generate income from the use of natural resources, who should receive this income, and how this income should be realized.
State authorities can use various (tax and other) instruments to receive income from the use of natural resources. World practice knows at least three fundamental approaches to the extraction of these incomes by the state. Firstly, the state can be the owner of natural resources and receive the corresponding income in the form of a fee for the development of subsoil, a share of the extracted raw materials, rent for the use of resources, proceeds from their sale, etc.
Secondly, the state can use the mechanism of taxation to appropriate part of the income arising from the territories and market entities from the use of natural resources, which can be both in state and private ownership. In this case, for example, the mineral extraction tax applies.
Thirdly, the state can apply administrative methods of regulation, for example, establish price controls, impose export restrictions, etc.
In most states, the transfer of income from the exploitation of natural resources to the federal budget is based on the combined use of all three of the above approaches. It is known that the exploitation of natural resources often brings economic rent - income higher than necessary to stimulate capital investment. It is also generally accepted that, on a number of criteria, a rent tax is preferable to a production tax (including a mining right fee and a mineral extraction tax). In theory, a rent tax simply reduces excess profits and does not influence decision making. about investments, about the scale and technology of production. Compared to this, most other types of taxes, including the natural resource right levy and the extraction tax, or taxes based on the estimated value of resources (such as a property tax), do influence such decisions and may lead to suboptimal use of resources. That is why economists "prefer taxes on rent. The system of taxation of natural resources, based on this approach, ensures that part of the resource rent is appropriated by the federal budget in an economically neutral way and, at the same time, ensures that it is the budget, and not foreign or domestic
Military enterprises will benefit from the use of the country's natural resources. At the same time, due to the extremely uneven territorial distribution of natural resources and the concentration of significant economic rent in certain regions, the problem of distributing tax revenues (or taxation powers) from the use of natural resources between different levels of government deserves special attention. Among Russian economists, D.S. Lvov and others, as well as the American economist Charles Maclure, are supporters of the idea of increasing the role of rent taxation. (e.g. McLure, Charles, "The Sharing of Taxes on Natural Resources and the Future of the Russian Federation", Russia and the Challenge of Fiscal Federalism (Washington: The World Bank, 1994).
The answer to the question - what level of public authorities should receive rent from natural resources - is ambiguous. The fact is that there are quite convincing arguments in favor of both federal and regional taxation, federal or regional concentration of resources.
Tax revenues, which have natural resource rent as their source, are characterized by instability (instability and unpredictability). They change with the level of production, and especially with changes in prices, and both are not subject to the control of the power structures of one region. The volatility and unpredictability of tax collections can create budgetary problems for local governments that need constant and certain tax revenues. Taxation or distribution of tax revenues from the use of natural resources at the regional level can lead to inefficient migration of the population to regions rich in natural resources, or to wasteful spending in these regions. taxes
on economic rent in regions rich in natural resources, enable the authorities of these regions to reduce taxes, make cash payments to the population, provide an exceptionally high level of public services and subsidize business activity in their jurisdiction. From the point of view of other regions, these actions seem unjustified, since they destroy the unified field of the competitive environment, exacerbate territorial differences in the initial conditions for the development of regions, and so on.
As you know, many regions of Russia, rich in natural resources, are sparsely populated. At the same time, the majority of the population are workers from other regions of Russia and the former Soviet Union, recruited by enterprises that are engaged in the development of natural resources. Low population density increases the trend towards fiscal inequality and, in the case of cash transfers, to inequality in the size of such payments per capita.
At the same time, it should be taken into account that the exploitation of natural resources causes significant social and environmental costs for the regions. They include the costs of creating and maintaining the necessary transport infrastructure, increasing health care costs, and compensating for environmental damage. Therefore, for reasons of social equity and economic efficiency, the authorities of the respective territory should receive sufficient tax revenues to offset these costs.
Each region that extracts natural resources considers itself the owner of a "natural right" to its share of the income from them. The validity of this argument has some grounds, but only if the primacy of citizenship or national self-identification of a given state-territorial entity is recognized (this situation is
not for a federation, but for a confederation). Otherwise, this argument is unconvincing.
And finally, there is the problem of "heritage". Representatives of local governments insist that they have the right to tax the use of natural resources located in their territory in order to turn the natural wealth, which is the "heritage" of the region, into financial capital.
This argument implicitly proceeds from the premise that the right to tax natural resources belongs to the local authorities, and the natural heritage belongs to the population of this particular territory. The validity of this point of view again depends on the primacy of national-state self-identification and the citizenship of the local population in relation to a given region or to a federation (confederation) as a whole. The choice in favor of one argument or another depends on the answer to the fundamental questions about what is the nature of the federal structure in a particular country; what is primary - civil affiliation to Russia or to state-territorial formations of the sub-federal level; whether the federation will be preserved if the federal authorities insist on deducting the lion's share of the income from the use of natural resources in their favor.
There are various ways to distribute income from the use of natural resources. However, all of them must proceed from a number of fundamental requirements that ensure the coordination of the interests of the federation and its subjects. With a wide range of dissenting opinions on this issue, their coinciding part boils down to the following. First, the social costs of exploiting natural resources must be compensated. Local authorities and ethnic groups that may lose their income from traditional activities
of heat, should be compensated for the financial, social, environmental costs and losses associated with the extraction of natural resources. In all other respects, the distribution of income from taxes on the use of resources is a political issue rather than an economic one.
Secondly, it is necessary to ensure that the federal budget appropriates most of the resource rent in order to ensure the possibility of its redistribution in the interests of the country as a whole. Thirdly, it is necessary to resolve the issue of the distribution of tax revenues between levels of government. With the exception of taxes designed to compensate for the social costs of exploiting natural resources, other taxes on the rent from natural resources should be assigned to the federal, and not to the regional level. Finally, it is necessary to link the right to receive income from the use of natural resources with the general regime for the distribution of tax revenues between governments of different levels.
The following ways of using tax revenues from natural resources are known. Revenues from taxes on the use of resources can be used to cover current budget spending, to be accumulated in a "legacy fund" to be used by future generations or to be distributed through the allowance system to the local population. The latter option represents, according to most experts, the least desirable way to use tax revenues from the use of natural resources, although from the point of view of the local population it seems to be the most attractive. Under certain conditions, the first of these ways of using revenues from natural resources may turn out to be quite acceptable, especially when there are serious difficulties in financing budget expenditures. However, the most interesting is the second way of using income from
natural resources. This method is relevant when significant tax revenues are at the disposal of the authorities rich in natural resources and sparsely populated areas. As a rule, most of them are not able to productively use large amounts of funds, and capital investments within these territories inevitably turn out to be ineffective. Therefore, it is generally accepted that it is a perfectly reasonable policy to invest part of the income in a trust fund for the benefit of future generations. However, the creation of trust funds is considered reasonable when the deficit in social services has been largely eliminated.
1.5. FOREIGN AND DOMESTIC EXPERIENCE IN TERRITORIAL DEVELOPMENT MANAGEMENT
Consider the practice of managing the socio-economic development of the territories of foreign states. (Unlike the Russian Federation, foreign practice of territorial administration is stable and has at least several decades of experience).
The policy of leveling the development of territories in Switzerland. Switzerland is a classic example of a federal state. The Swiss three-tier system of territorial organization presupposes the existence of an appropriate budgetary hierarchy. Funds from the federation's budget are directed to the maintenance of the army, the conduct of foreign policy, and social needs. The budgets of the cantons include provisions for health, education, police, public transport. Community budgets finance social spending, construction, public utilities, public transport.
The main part of the funds goes to the regional budgets, as a rule, about 70% of all tax revenues go to the cantons and communities, and the federations -
approximately 30%. At the same time, the federation receives indirect taxes, and the cantons and communities are direct [Artemov Yu. M. Some features of the budget and tax systems of Switzerland. - Finance, 1995, No. 11]. Tax system in Switzerland has some features that distinguish it from others European countries. First of all, this is the tax autonomy of the cantons and the inter-cantonal competition that arises on this basis. The functioning of this system gave rise to rather serious differences in regional economic and social development.
The differentiation in the incomes of the cantonal (regional) budgets increased sharply as early as the 1950s and 1960s. However, the state "levelling policy" by investing in the social infrastructure of the poorer regions was practically not carried out. The Swiss government has emphasized a purely market-based approach to reducing regional income disparities. Comprehensive management of the socio-economic development of the territories (“levelling”) was carried out mainly due to the migration of the population from poor regions to rich ones. Given the territorial compactness of Switzerland, this line was fully justified for a long time. In recent years, the situation has changed: the practice of “leveling” has appeared by providing subsidies to regional budgets. However, conditional subsidies are provided to the cantons depending on their financial situation. The exact size of the redistribution is discussed at a meeting of financial directors of the cantons, following which a joint decision is made. This takes into account the population of the canton, the amount of taxes per capita, other fees per inhabitant, etc. Thus, the distribution takes place on the basis of mutual agreement between the representatives of the cantons. About a third of the cantons receive additional funds. The poorest cantons have high rates of
logos and get a lot of help. Redistribution of tax revenues according to unified methodology led to a significant leveling of regional differences, although the richer cantons certainly lost out economically.
Centralization and development of territories in Australia. Australia is financially highly centralized. The federal government has the authority to use any form of taxation, and the states are prohibited from imposing any kind of sales tax (and other indirect taxes), as well as personal and corporate income. The federal budget collects 80% of all tax revenues in the country.
With such volumes of centralized tax revenues, the states do not have enough of their own revenues to finance the expenditures assigned to them. Therefore, the federal level widely applies the system of subsidies to the states while simultaneously implementing the “leveling policy” (that is, in essence, managing the socio-economic development of territories). Subsidies are based on tight federal control over state spending.
Centralized allocations to the states are based on a single equalizing formula designed to meet the budgetary needs of all states in such a way as to ensure the same standards of public services throughout the country. The Special Grant Committee decides whether additional funds should be provided to the State or determines that the Territory is capable of managing its own economic development.
Subsidies are one-time in nature and are designed, as a rule, to restore the financial balance of the territory (state). Central government evens out regional differences through uniform distribution formula
grants and addresses specific problems as they arise through targeted grants. The Northern Territory is the only area that has been granted special tax privileges (special tax treatment) on a permanent basis. Since the late 1970s, the Northern Territory has gained the status of a self-governing territory, and it has been given the authority to independently implement spending and collect taxes. Under the Northern Territory Home Rule Act, all of its tax receipts, loans and other income are included in public funds to cover its expenses.
Due to the high percentage of the indigenous population and their special problems, the territory was provided with more significant budgetary funds so that with their help the indigenous population could solve their problems themselves. In addition to the general subsidies provided on the basis of the formula, "additional assistance", "special assistance" and "targeted subsidies" may also be allocated annually from the federal budget to this territory. Each year, the Grant Commission reviews such requests and recommends appropriate action.
Australia, despite its federal status, is financially approaching a unitary state. Highly centralized finance with a strong equalization policy makes it possible to ensure that there are uniform financial institutions throughout the country. public services. However, this naturally reduces the responsibility of state authorities, their interest in finding new profitable sources and better organization of the economy, and developing their own territorial development programs.
Decentralization of territorial development management in Canada. Canada is an example of a decentralized federal state. Canadian provinces have broad powers, both in spending and in tax collection. In addition-
In addition to the funds collected by the provinces themselves, the central government makes special allocations to low-income provinces so that all provinces have an equal level of budgetary resources. In such major country like Canada, decentralization helps to tailor social policies to local needs, while at the same time providing provincial governments with sufficient revenue to maintain uniform standards of public services at equal levels of taxation.
For the purposes of inter-regional equalization (development management), Canada's general federal tax revenue fund is distributed among the provinces on the basis of a special formula designed so that all provinces receive the equivalent of not less than the average level of taxes in relation to the average tax base for the country. The principal algorithm for calculating transfers is as follows. First, the country's average level of taxation is determined (by dividing the sum of tax revenues of all provinces by their total tax base). This figure (average tax rate) is multiplied by the tax base of each province; this determines the standard-calculated level of tax revenue per capita for a given province. Then, conditionally, the country's average tax collection per capita is determined (with the average per capita tax base of the given province and the average national tax rate). The difference between the conditionally average for the country and the normative-calculated for this province level of tax revenues per capita is multiplied by the population of the province, which gives the required amount of the transfer.
This calculation is done for each type of tax and for each province. Recently, the described mechanism of budgetary redistribution of funds, based on a high degree of provincial autonomy, has become
the subject of intense political debate. The idea of the need to abandon the policy of uniform delegation of powers to the provinces is discussed in order to pursue a regional policy that meets their conditions in favor of establishing special budgetary regimes for individual regions - Subsidies for the development of territories in India. India is a centralized federal state that solves the problems of regional socio-economic development of territories by redistributing budgetary funds, both on the basis of a single criterion (formula) and on the basis of one-time targeted support for specific regions. A country with large inter-regional differences in economic development and income levels faces the challenge of narrowing these differences while meeting the special requirements of the regions.
In India, there are three types of deductions from the center in favor of the states. First, there are deductions to help states meet regular operating expenses. They are granted on the recommendation of the Financial Commission, a statutory official body appointed by the central government. Secondly, planned allocations have been established to finance capital investments and development projects; decisions on them are taken by the Planning Commission, also appointed by the central government. Planned contributions are distributed among the states according to the so-called "Formula Gajeel", which takes into account a wide range of territorial factors and other bases for the distribution of funds. Thirdly, there are "other deductions" - centralized funds that are provided to states to finance "socially expedient" projects (according to the criteria of the center).
The central government has developed a scheme for the distribution of certain types of taxes, the sharing of tax revenues and the provision of subsidies based on formulas that even out regional differences and ensure that the center freely solves regional problems or meets specific requirements at the regional level. Although the extent to which India has used federal transfers to various levels of government has repeatedly stimulated evidence of financial irresponsibility, the very concept of such transfers is interesting. Due to the fact that the management of socio-economic development of territories takes into account special components for "backward" regions (determined by the center), as well as for "special states" (for example, the politically unstable state of Punjab), development problems are solved openly, and budget system is not the subject of endless political negotiations.
Territorial Development and Fiscal Diversity in the United States. The United States is an example of the stability of fiscal relations between the state and regions. For American model"fiscal federalism" is characterized by the fact that the states actually have the same rights in tax area the same as the federation as a whole. Therefore, the states have the same name taxes that are collected in the federal budget. At the same time, the structure of the distribution of fiscal powers that had been taking shape over a long period of time, which gave significant advantages to the federal authorities, led to a large-scale practice of financing state and local territorial development by them. Federal subsidies have financed a large number of areas of social and economic development at the state level, including such as infrastructure construction, health care, forestry development, and so on.
The system of subsidizing regional development over the past half century has undergone numerous changes as a result of the alternating dominance of contradictory tendencies of centralization and decentralization.
Currently federal funds provided to the states in the form of targeted, block and program grants. Dozens of federal bodies deal with issues of their allocation. Their distribution takes place under the control of committees and subcommittees of the US Congress. Controversial issues are considered federal courts. Federal ministries and departments stipulate the conditions for the use of funds, establish the procedure for the implementation of programs, determine sections of budget assignments, and items of expenditure. Federal agencies monitor the progress of the use of funds and require strict accountability from states. The Auditor General at the US Congress also oversees the spending of funds allocated to the states.
A variety of models based on formulaic calculations of equalization transfers are used in the process of making decisions about the financing of development management. A portion of federal government funds received from the transfer is distributed within the states between the budgets of cities and counties, taking into account population, tax revenues, and per capita income.
State regulation of the development of territories in Germany. The problem of integrated management of the socio-economic development of territories (including the distribution of income between the two state levels - the federation and the states) is relevant for Germany, especially after the unification of the GDR and the FRG.
Federation Development Financing in in the broad sense of the word, it represents the empowerment of individual levels of budgetary funds management,
which are not targeted. Along with this, under certain conditions, the federation provides targeted payments to the lands, for example, to perform such general socio-economic tasks as improving regional infrastructure, solving agrarian problems, expanding and building universities, and supporting scientific research. These earmarked allocations are also made under federally funded cash transfer laws (e.g., housing allowance, child-rearing allowance, educational assistance) and as financial assistance to stimulate municipal development, social housing construction and development of public transport. The constitution justifies these exceptions by the need for the financial participation of the federation in the tasks of the states.
Targeted payments from the federal budget affect the distribution of financial resources between the federation and the Länder, but not within the Länder. These payments, made by the federation and the Länder with varying intensity, differ from the system of financial equalization, which helps to smooth out differences in income between individual budget levels.
The allocation of appropriate budgetary resources to each level is carried out by distributing tax revenues in two directions: between the federation, the Länder and partly the communities (vertical financial equalization) and within the Länder (horizontal financial equalization). [See, for example, Hauser H.-G The system of financial equalization between the federation and the states in Germany. - Finance, 1995, No. 5].
The financial legislation provides for a number of corrective tools in the field of vertical financial equalization: equalization of excessive load. If in accordance with federal law additional costs are imposed on the lands, or
part of the income, and these costs are limited to a certain period of time, then instead of changing the shares of the federation and the states in the value added tax, financial subsidies from federal funds can be provided;
compensation for the special costs associated with the creation in the lands or communities of special institutions at the request of the federation. This applies primarily to local defense institutions;
subsidies to economically weak lands in addition to the inter-land system of financial equalization. The redistribution of taxes and inter-land financial equalization are carried out in several successive stages.
In order to cover the costs of economically weak lands in accordance with the principle of the unity of living standards throughout the country, enshrined in the constitution of the Federal Republic of Germany, equalization subsidies are provided for economically weak lands at the expense of economically strong ones.
Domestic examples of regional programs. Let us consider the experience of managing the socio-economic development of the regions of the Russian Federation. The tools for managing the development of regions are budget transfers, targeted federal and regional programs. The main features of the Russian experience in managing the socio-economic development of regions are determined by the characteristics of the crisis transition period in which the state is. The imbalance of the budget, inflation, falling production, financial crises determine the unstable nature of state, regional and economic management. The tasks of integrated management of the socio-economic development of regions and territories form various grounds for regionally oriented programs. One of the first and major re-
The program "Socio-economic development of the Republic of Sakha (Yakutia) for 1995 - 2005" became a regionally oriented program.
A feature of this program was the political basis for its formation. In essence, the program was a form of solving the political problem associated with the threat of the collapse of the federation in the early 1990s. The idea of developing a program arose in 1992 in the Security Council of Russia, since a powerful process of disintegration began in the country in almost all regions and regions. The political crisis between the subjects of the federation and the center grew ominously. Under these conditions, the presidents of Russia and the Republic of Sakha (Yakutia) in December 1992 were the first to sign an agreement on the completion of the delimitation of resources, rights and property. Part of the political decision was the initiative to create a major federal program.
Unlike the program "Socio-economic development of the Republic of Sakha", the majority of regional and regionally oriented programs at the federal level are developed and implemented with less political grounds. The same applies to regional programs at the republican, regional, autonomous-okrug and regional levels. These programs are characterized by stable underfunding and a rapid loss of interest in the subject of the program on the part of the federal and regional authorities. Most of these programs in 1994 - 1997. preceded the decrees of the President of the Russian Federation, which outlined measures of state support for individual regions.
A typical example is the federal program for the socio-economic development of the Republic of Buryatia, developed in the context of the Decree of the President of the Russian Federation of May 29, 1995 No. 543 “On additional measures of federal support for the socio-economic development of the Republic of Buryatia”. AT special resolution Government of the Russian Federation on the approval of this
program (dated April 15, 1996 No. 442), the general customer is the Ministry of the Russian Federation for Nationalities and Federal Relations. By the same resolution, the Ministry of Economy of the Russian Federation, together with the Ministry of Finance of the Russian Federation, the Ministry of Science and Technical Policy of the Russian Federation and other interested federal authorities when forming annual forecasts of the country's socio-economic development and federal budget projects, the executive branch was ordered to allocate limits for centralized capital investments and financial resources for the implementation of program activities,
For large federal and regional programs, it is typical selection national resources to solve specific problems of integrated socio-economic development. At the same time, it fixes separation of powers regional and federal authorities. Let's consider a typical regional program - "The program for the development of national villages - places of compact residence of the small peoples of the North of the Chukotka Autonomous Okrug." An important condition for the implementation of this regional program is the preservation and development of traditional forms of management, the latter are directly related to the fishing regimes established at the federal level. In this regard, the Government of the Russian Federation adopted a resolution "On the implementation of the regional program for the development of national villages - places of compact residence of the small peoples of the North of the Chukotka Autonomous district for 1996 and the near future” (dated December 16, 1995, No. 1237), which instructed the Committee of the Russian Federation on Fisheries to allocate annually in 1996-1999 to the administration of the Chukotka Autonomous Okrug quotas for catching up to 100 thousand tons of fish and seafood in the exclusive economic zone and on the continental shelf of the Russian Federation with their subsequent sale in the domestic and foreign markets, bearing in mind that the types of fish and seafood and the order
their implementation is preliminarily coordinated with the relevant federal executive authorities. At the same time, the administration of the Chukotka Autonomous Okrug was instructed to use the funds received from the implementation of these quotas exclusively to finance facilities provided for by the regional program for the development of ethnic villages - places of compact residence of the small peoples of the North of the Chukotka Autonomous Okrug. Control over the intended use of quotas is entrusted to the administration of the Chukotka Autonomous Okrug and the State Committee of the Russian Federation for the Development of the North.
Problems of financing regional programs. Based on the analysis of the actual execution of the state budget, it can be concluded that in reality the program component of the federal budget is insignificant. Thus, in the relatively prosperous year of 1995, budget appropriations for the implementation of 40 targeted federal programs of regional and sectoral orientation and about 20 federal programs for the development of regions should have amounted to about 7% of all budget expenditures at the federal level. The share of program-oriented expenditures remained approximately the same in the federal budgets of 1996, 1997, and 1998. In fact, none officially accepted program has never been financed in the amount originally provided for by the relevant documents.
Trends in annual underfunding and reduction in program funding are decisive. Thus, in 1994 (typical in terms of program funding indicators) in the course of implementing one of the most important federal programs - "Fuel and Energy", budget expenditures for scientific research under this program were planned in the amount of 160 billion rubles, of which less than 15% was actually transferred. Another typical example is
financing of the federal program "Conversion of the defense industry"; commissioning of convertible production capacity averaged only 38.7% of the originally envisaged level.
The most important social program is "Housing": in 1994, it was planned to allocate 126 billion rubles for the implementation of the program's activities. (with the originally approved 846 billion), but actually financed 20%. Only 51% of the budgeted allocations were provided for scientific and technical programs. For the implementation of the program "Development of the Economy and Culture of the Indigenous Peoples of the North" in the same year, out of the envisaged (for capital investments) 218 billion rubles. The Ministry of Finance of the Russian Federation allocated only 103 billion, which were largely “eaten up” by inflation, which greatly affected northern investments. In this regard, the commissioning of housing under this program amounted to 1.5% of the program task, preschool institutions - 0.9%, secondary schools -3.1%.
A similar situation has developed with the federal regional program "Socio-economic development Kuril Islands". In 1994, the administration of the Sakhalin Oblast received 17 billion rubles from the federal budget for this program, which amounted to 64% of the stipulated annual limit of capital investments; from the intended volume investment loan allocated only 2 billion rubles, or less than 8%. No fundamental changes for the better were observed in 1995-1998 either: the actual financing of federal targeted programs turned out to be, on average, five times less than planned.
Under the management system for the integrated socio-economic development of a territorial entity, we mean a system in which management functions are implemented (planning, organization, regulation, accounting, control, analysis) and which includes: the economic potential of a territorial entity; economic activity of residents of the territorial entity; specialists united in management bodies; used set of management methods; links between the governing bodies, the object of management and the external environment, which are determined by various methods of interaction and flows of management information.
In the system of self-government, residents (local community) can be considered both as an object and as a subject of management. Therefore, they are naturally included in the management system of the integrated socio-economic development of a territorial entity.
The main elements of the management system for the integrated socio-economic development of a territorial entity. Under the self-governing territorial socio-economic system, we mean the integrity, which includes the main components (see Fig. 1.2.1): population (residents) + territory + resources of the territory + collective interests of residents = self-governing territorial socio-economic system. The presence of these components is a necessary condition for the implementation of self-government. The absence of one of these elements makes self-management impossible.
One of the necessary conditions for the effectiveness of self-government is the readiness of residents to implement self-government (ie, the potential for self-government). If the residents themselves (each individually) are able to solve all their problems, then there is no need for self-government. However, in real life this is impossible and the need for a joint solution of common problems (satisfaction of common needs) really exists, and it is economically beneficial for society to satisfy these needs not individually, but jointly. In this regard, self-government is one of the effective tools for solving the problem of meeting the needs of the population, realizing their collective interests. Thus, the interest (needs) of residents is the driving force of self-government, therefore it is an extremely important component in matters of organizing local self-government.
If in the conditions of a unitary state the interest of the inhabitants does not always contribute to the implementation of centralized plans in the conditions of an administrative economy, then in the conditions of self-government, the manifestation of the will of the inhabitants is a highly desirable phenomenon, which is a reliable signal system in the development of programs for socio-economic development. In this regard, depending on the activity of residents (manifestations of will), we can talk about the potential of self-government in a particular territorial entity.
There is a simplistic view that local self-government is basically just a tribute to democracy. Such a view of self-government leaves in the shade a very important objective factor of self-organization, which the principal supporters of administrative methods of management do not attribute to objective factors. It is known that effective management in a market economy is possible only with the inclusion of active feedback. Therefore, self-government is not so much a tribute to democracy as a management method that best meets the economic laws of market relations. It is self-government with active feedback inherent in this type of management that is the potential that can become a powerful resource for the economic development of Russia as a whole.
It is customary to distinguish four main types of economic resources of the territory: land, labor, capital and entrepreneurial abilities. These types of resources are sometimes also called factors of production. The term land in economic theory means natural resources, i.e. area, location and fertility of the land, minerals, climate, forest, water supply, hydropower, etc. Labor as an economic resource is usually characterized by the number of workers, their qualifications, the duration and intensity of the performance of production functions. Capital, or investment resource, characterizes the means of production: equipment, tools, buildings, stocks of materials, etc. Many authors single out entrepreneurial abilities, or entrepreneurial spirit, as a separate type of economic resource. Entrepreneurial abilities are manifested in the rational use of labor, land and capital, the ability to find and apply new scientific, technical, organizational, artistic, commercial ideas.
It should also be noted that self-governing socio-economic systems are not completely autonomous or, in other words, self-government in them is carried out to the extent that this measure is established by a higher-level system. In relation to a self-governing territorial entity, a higher-level system should be considered a subject of the Federation, the Russian Federation as a whole.
Management of the development of a territorial entity and management of specific programs and projects within the framework of the process of integrated socio-economic development are different concepts that differ both in scale and in management methods. This paragraph discusses the main stages of managing complex socio-economic development on the example of managing a separate specific project, which can be an integral part of a more general program. The management of a program for the integrated socio-economic development of a territorial entity does not fundamentally differ from the management of a separate project, however, the number of connections and the necessary coordination procedures increase significantly.
The stage of collecting and processing information (see Fig. 1.3.1) for local governments in real self-government is of key importance. In terms of self-government, this is not only the collection of information for statistical reporting. In essence, information support is the establishment of direct and feedback communication with the population of a territorial entity. Information becomes a real tool in the management process. (One of the sections of the Federal Program of State Support for Local Self-Government, approved by the Decree of the Government of the Russian Federation on December 27, 1995, is devoted to the development of unified information systems based on the existing disparate experience in Russia.)
A reliable and understandable system for every citizen to publish decisions of local governments, a system for collecting and processing information about the reaction of the population to decisions made- important components information support self-government.
Without reliable feedback from the local community, one can hardly count on success in the development and implementation of programs for the development of a territorial entity. The development of a system of direct and feedback communication between local self-government bodies and the local community can be carried out both on the basis of the development of official communication channels established at the initiative of local self-government bodies (official publications, bulletins, speeches by leaders in media mass media etc.), and through the development of social movements and organizations, which are a kind of information channels for communication with certain groups of the population. (Public organizations operating on the scale of large territorial entities should be encouraged in every possible way.) It is also advisable to support critics and opponents, since this is the most active part population contributes to informed decision making. Thus, a practical recommendation is to create and develop information support for the self-government of a territorial entity. Having provided themselves with a reliable information base, local governments can develop more effective real (ie realizable) development programs.
A special place in working with information is occupied by the process of collecting and processing information in order to develop programs for the integrated socio-economic development of a territorial entity. This process should not be passive and random, information should be collected purposefully. The question arises of what information should be collected for use in the process of developing a program of integrated socio-economic development.
The main task of the preliminary stage of collecting information is to accurately formulate the goals of the development of a territorial entity and determine the real ways to achieve these goals. Based on the information obtained at this stage, the most promising directions for the development of the economic basis for the integrated development of a territorial entity should be determined. It is necessary to answer a number of questions: what is the "uniqueness" of this territorial entity; what is the external conjuncture in relation to this "uniqueness" (how many competitors and how promising is it in the future); Is it possible on the basis of this "uniqueness" to form the economic basis of self-government.
At this stage, the main social problems that need to be solved in the future are also identified. An example of the maximum use of the main city-forming resource of the economy of the past period can be the programs for the integrated socio-economic development of some cities with the predominant development of the scientific and technical complex, the so-called science cities. A feature of these cities is the high concentration of intellectual and scientific and technical potential and the almost complete absence of an economic basis for the implementation of local self-government.
The budget of the Anadyr region is formed through the mechanism of interbudgetary relations. The Russian budget system is based on four federal taxes: VAT, income tax, excises and personal income tax. They make up more than 80% of the consolidated budget revenues and are used by budgets of different levels in the order of equity participation.
The regional fiscal system is a special part of the relevant state system. It, in turn, consists of several regional subsystems of different levels according to the hierarchy of building a territorial organization (district, region, etc.).
Regional fiscal systems perform the following main functions;
1. Fixing a certain procedure for the movement of budgetary and tax flows by levels of territorial organization (the direction of these flows, the proportions of their division, the intended purpose, etc.) and adequate procedures for regulating the relations that arise in this regard.
2 Accumulation and use for general regional purposes of funds generated on the territory itself and entering the regional budgetary and tax systems completely and single-channel (this includes most local taxes, fines and other financial sanctions); similarly to the generated funds that come into these systems in part, in accordance with the accepted procedure for their distribution between the budgetary and tax systems of different levels. Part of the funds accumulated in the higher budgetary and tax system is redistributed for one reason or another in favor of the lower regional systems (such as grants and subventions, as well as part of the "local funds" that were not transferred to them by permission of the higher systems).
3. The implementation by regional authorities and management of their representative and executive powers in compliance with the requirements of formal financial independence their policies from higher levels.
4. Self-sufficiency of intra-regional social programs, i.e. budgetary satisfaction of a part of the needs of the population in certain vital goods and the realization of its national and ethnic interests. Despite the increasing self-sufficiency of the population and the commercialization of the social sphere, the share of the cost of relevant services financed through the channels of regional budgetary and tax systems reaches a quarter of the total income of the Russian population (net of taxes).
5. Formation of the infrastructural frame of the territory (industries of the "local economy", local roads and transport, etc.) as the most important initial condition for the formation and maintenance of intraregional ties.
6. Regulation of the state and use of natural resource and ecological potential (land, subsoil, forests, water, flora and fauna, air basin) as a natural basis for the existence and development of the territory.
7. Stimulating certain holistic regional guidelines for the population, creating conditions for its business activity, for structural transformations, for investment attractiveness, etc. This is a question not only of the potential for territorial development, but also of future fiscal well-being.
Classically, for a three-level territorial structure (the state-subject of the federation is the lower link), the distribution of the main taxes is as follows: land - lowest level, property - medium, income and profit - top. However property taxes, including land, are not sufficiently effective and reliable, their collection is associated with serious technical difficulties, primarily related to determining the value of property. Therefore, these taxes cannot meet spending requirements. regional budgets, which determines the need to redistribute income from the most effective and reliable taxes - income and profit.
Since the beginning of the 1950s, the leading branch of the mining industry in Chukotka has been gold mining, which produces gold from alluvial deposits with a subordinate value of developing medium-sized tin deposits. In fact, the mining industry of the district was a mono-industry. The specialization of the mining industry also determined the direction of geological exploration, focused mainly on the search and exploration of placers of gold and, to a lesser extent, on other types of minerals. But, starting from 1991, the Okrug began a constant reduction in gold production by an average of 2.5% per year, since 1995, the rate of decline in production amounted to 6% per year (Table 3.2.1) .
Gold mining only from placers, moreover, with imperfect technologies, did not create conditions for an increase in the production of mining products, although by the beginning of the 80s, geologists had already been prepared for the development of an ore gold deposit in Western Chukotka - Karalveemskoye, Maiskoye and in the Anadyr region - Bouldery.
Significant damage to the current economy of the district and the Anadyr region was caused by the strategy of the state leadership in the 70s-80s, aimed at exploring oil and gas deposits mainly in areas of Western Siberia. The funds allocated for the creation in the Okrug of its own raw energy base made it possible to carry out limited volumes of work only on the mainland of the basins promising for gas and oil.
Lack of involvement in the operation of the above ore deposits, cumbersome and highly costly infrastructure mining enterprises Chukotka, resulting in high production costs, low rates of creation in the region of its own raw energy base largely predetermined economic problems today's districts
First, high inflation. The inflation leader is obviously the exchange rate foreign exchange, the first to reach the market saturation limit. Gold is a currency raw material for Russia, and in the course of a currency race, the state, which exercises a monopoly on buying up metal, is forced to raise purchase prices, but at the same time taking into account the objective limit of world prices. Under these conditions, the growth rate of the purchase price, tending to this limit, will slow down more and more and lag behind the inflation rate. On the other hand, Russia's main currency commodity is fuel. It is also a source of inflation in the free domestic market. Therefore, fuel prices, in principle, cannot lag behind inflation rates. And the self-sustaining spiral of growth of all domestic prices, pushed by the price of fuel, also practically does not lag behind the rate of growth in the price of the currency. All components of the cost of metal production are involved in this process, and in the conditions of Russia, with inflation, the cost of production will inevitably grow faster than the price of the metal, and profitability will steadily fall.
Secondly, inflation objectively causes a sharp investment crisis, which is especially painful for such an industry as mining - capital-intensive and with a long capital turnover cycle. For the mineral resource complex of Chukotka, the coincidence in time of this investment crisis with the period of exhaustion of the placer resource base and the need to switch to the development of large, highly profitable, but capital-intensive ore objects is especially painful.
Thirdly, the special position of the mining enterprises of the North. The seasonal nature of production and supplies to Chukotka drastically complicates investment and lending. The median term for future gold loans is over 8 months, and they are very expensive. At the same time, the absence of a truly marketable product is caused by the truncation of the metallurgical complex in Chukotka only before the mineral resource cycle.
Finding your calling in life is what makes a person truly happy. Justin Wren devoted himself to boxing and for a long time seriously believed that this was the only thing he wanted to do. By the age of 18, he had reached a professional level, and by 23 he had won 13 fights, but at the same time he began to experience depression, tried drugs and even made a suicide attempt. He was able to get out of this depressing state only when he gave himself the word to do something significant and be useful to people.
Justin came up with the idea of helping suffering people in Africa. He went to the Congo, where the settlement of the undersized pygmies lives. These people do not have their own territory, and, in fact, for many years they have been in slavery to the more developed Mokpala tribe, working for food (two tiny bananas are given out as a reward for a pygmy family). A heightened sense of hunger did not allow the pygmies to resist the oppressors, and Justin realized how ready he was to help them. He formulated his goal as follows: "I fought against the people, but in fact I wanted to fight for the people."
Boxer understood that it was impossible to free the pygmies by force, because this would only increase hostility in the future. Then he came up with a way to make both tribes happy. Justin was convinced at that moment: you can't love one side and hate the other; to achieve a result, you need to help both one and the other.
The way to help both sides was obvious: to provide water supply to the place of residence of the tribes. Justin founded a charitable organization whose name translates as "Fight for those who are forgotten." With the money raised, he managed to hire workers who laid water pipes and built a column in a place remote from civilization. From now on, the Mokpala did not need slaves who would carry water to them daily, so they managed to free the pygmies without violence.
Justin's project is already 8 years old, during which time he made many trips to the pygmies. The ex-boxer's savings were enough to purchase a small plot of land for the tribe and establish water supply. Previously, most of the children of the pygmies died of dehydration, now the tribe has a chance to survive.
2017 I traveled around Adygea and the Krasnodar Territory. The remote one is located in the mountain valley of the Pshekhi River, sandwiched in a stone bowl. Surrounded by mountains: the sacred Circassian Mountain, Sugar Loaf Mountain, Chamur-Tapa, Chatal-Tapa, and others. This is a unique place for that alone.
There are shady mountain forests around, stretching for tens of kilometers along the high mountain plateau of Lago Naki. Nearby rises Mount Sail - a Natural Monument. I ended up in the village on September 24th. The rain had just stopped, I went to the threshold of the store, where I waited, and looked around. The mists began to spread, and an unforgettable picture of the apocalypse opened up to the eye.
Ruins of houses, broken roads, rotting fences. And what a building - well, really, like Beslan. Which terrorists, one wonders, have worked so skillfully here? But it is useless to ask this question to the locals. Well, it's bad, yes - we are surviving ... Who is to blame - yes, God knows ... Everyone lives like that ... There is a crisis in the world ... Gays have flooded Europe. America is pressing with its sanctions. The banjamins are to blame for everything (well, that is, dollars and the Federal Reserve). Or the Chinese - you'll understand the hell.
Silence. Everything is as if dead... Yes, I saw such desolation only in the Chelyabinsk region. Well, I still remember the paintings of Iturup at the end of the 20th century. Post-war Abkhazia in 1998. To get here, to Remote, you need to use the train of the Apsheron narrow-gauge railway. Or along the bumps of a recently laid automobile road.
The most common people you meet in the village are pigs. But even those were pruned before the Olympics, even wild boars. Specially poisoned - why? Yes, on the sly, the local Tsarek decided to breed his pigs, so he "promoted the topic", created a deficit. Every dog in the village knows this. Every pig remembers.
Until recently, the Remote, aka Shpalorez, remained isolated, the narrow gauge railway was the only "Road to Life". But even today, when the first quarter of the 21st century is already behind us, the situation, as it turns out, has not changed. The train stopped going to Apsheronsk at all, the enterprising administration turned the station in Novye Polyany into an elite cottage for rent.
Active reduction of the unique mountain forest, a shop, a social program, a garden, some kind of tourism - that's all the employment of the population of foggy Albion "Remote", with 450 inhabitants.
Excellent economic model 21st century, right? And not something random or unimaginable. And a typical model for Russia: sell something faster than others, make money on your own comrades, hatch out. Here is such a progress.
This is where you can start arguing. Like, open your eyes! Crimea is ours! But, once in the Remote, climbing into the skin of a sheep, all these achievements somehow recede into the background against the backdrop of devastation. Real life, the ordeals of people tell a completely different story.
From the box they tryndyat about economic power countries. Whose country, Vladimir Vladimirovich? What power? Why are your planes patrolling Syria, fighting for security there and not here?
Is it these people you wished "Happy New Year 2018?" I don't think they even noticed it. One gets the impression that you simply forgot to pick them up in the second millennium. Where is it, your notorious power of United Russia? In this hut of the early 20th century with a polyethylene window?
And you, Vladimir Volfovich? Something of your LDPR activists is also not observed here. Too global problems decide? I dare to remind you that they begin with solving problems in long-forgotten regions. How did you say: "What do cows go crazy for? From British democracy!" Really? And I think it's just from hunger, dear! Together with people. Or are these photos, you say, also photoshop? The machinations of the Democrats?
It's embarrassing, right? And you, Dmitry Anatolyevich! Are you improving the law? Improve the lives of these unfortunates! They don't even have toilets at the stations! Would you, together with Putin, drop in somehow here on New Year. Look around, wait for the derailed train. We would congratulate each other.
On September 25, we devoted time to inspecting the narrow gauge railway. The railcar train, renamed by popular rumor into the Matrix, runs 2 times a day, launched in 1927. The train slows down at the request of the passenger in any section, picks up everyone. The cost is 56 rubles 27 km in 2.5 hours.
The railway line, despite the abandonment of the villages, has retained the flavor of the previous era. Not only in the store of the Remote there is a table for visitors, but also in Rezhet, Kuvshinka. The ruins of greenhouses along the railway have been preserved, where once any lost person could wait out the bad weather at the stove. But not today.
At all stations in Soviet times there were stations where latecomers, I think, could wait out the night, warm themselves with a glass of tea. Today, a traveler lagging behind the train is doomed to survive only in the forest.
In the villages and towns, as elsewhere in the country under the USSR, there were baths, clubs, schools, etc. Where are they, one wonders, today? Why haven't they been restored to this day? ISIS again? Or NATO? The railway covers several villages. Walked, looked at many. The remote one turned out to be the most colorful in terms of gouging.
The village of Cuts is completely extinct, one street, only traces of most of the houses remain. Once trodden paths - the streets have turned into green carpets.
Near the village of Kuvshinka, the train derailed. And what, says the machinist Eugene, is a typical situation. Not every time, of course, but often. The sleepers are rotten. Who changed the rails? When? That's all right ... So that the train does not accidentally roll away in the opposite direction, or even go - it does not skid, we add sand. Passengers help.
The machinist Eugene is the first guy in the village. He is not only a machinist, but also an usher, a western union, a loader, a mechanic, a locksmith. And then there was the traveler. Without much discussion, Eugene jumped out of the cab and climbed under the train as it is. It's the Americans who are snickering and wearing overalls. We don't need that. "Otherwise, we won't be here in the morning."
Other men from the Water Lily also arrived in time, pulled out sledgehammers, and began to level the rails. Under the rotten, falling apart from the touch of the sleepers, they placed stones from the river. Indeed, sleepers, rails - laying from the times of the USSR!
A specially adapted beam cut at sharp angles began to be pushed under the wheels. A simple idea to drag a multi-ton car onto a beam in order to put it back on the rails. But very labor intensive.
In the meantime, the men from the neighboring village, having long known about such situations, started a home-made railcar, assembled from old trolleys and motorcycles, and "overtook" the train.
The first time to put the car back on the rails, using only pieces of wood, did not work. Then the men began to take the car out with the help of beveled channels, pricked up, the diesel engine pulled - it got up. About two hours after the stop, we set off again.
The men smile heroically: it worked! But how! And then: and, it happens, we will survive! Everyone is happy. And I look at them like they're crazy. The risk of remaining crippled, shoving under the car with your feet cutting timber... So far from real life... And they think it's normal... That it's normal work. For families, children... Unhappy.
What do they see in life? If they repair their own roads? Weld footboards? Fold rails from pieces? What are they hoping for? Here is where the expanse for the meeting Public Chamber RF! Solve, finally, academicians and public figures, the problem of train derailment! And honored cultural figures - the problem is to run away to a long distance in winter. Seemingly simple things. Obvious. Why, then, 17 years have passed, but there are still no new sleepers?
Once, all global problems are solved. Some kind of nightmare. Talk about politics and international relations fade against the background of crooked crowbars, rotten sleepers, composite rails. We are all solving global problems - for what? To make these people even more unhappy? Maybe it’s worth not annexing, but giving these and other territories to at least someone smarter? Baikal - China. Kuriles - Japan. Yes, at least someone, so that this genocide finally stops. It's better to live like the Ainu, in a minority, but at least you won't die out.
Shop "Thread of Ariadne"
Yes, Vladimir Vladimirovich, in winter with a crowbar here, it’s not for you to dive into a heated hole. Dear politicians, the whole Kremlin, the whole Duma would walk along this railway, would have addressed directly, as they say - to the people. They would think at their leisure, admiring the views where bike paths have long been laid in normal countries. Tell people about the prospects. Something Peskov's children don't buy houses here. And they don't even play under a makeshift lighting pole. Banquets at the station Kuvshinka, too - do not celebrate.
Or do you think that the people are hiding everything? Well, yes, it will only burp. He understands everything, on an instinctive level, the collective unconscious. Otherwise, the glorious name of Putin would not lean towards the Way, Putyonok, Mr. Pu, Voldemar, etc.
Hey, don't film us! Enough!
Yes, good! Don't disgrace! Also put it on youtube...
Men understand that this is not normal. And unfair, shameful.
I would also like to ask you, dear Putins - Medvedevs. What did the Reserve Fund of the Russian Federation go to? On these inserts in the rails? Geyropa is to blame, the States ... in what? Is it that people are unable to get to work? That the only store is a train that derails? Are you in your right mind that you are pursuing such a policy? And what are you only growing there in the Kremlin in order to carry such nonsense at performances? And the Jews, by the way, are here too, well, it has nothing to do with it. They also defended their homeland.
The worst thing is that there is no end to this. That these photos can be uploaded endlessly. Packs from year to year. Not only from case to case, but also consistently, moving across Russia from place to place. Photos of abandoned churches, dispossessed villages, raised virgin lands, razed to the ground by the bombing of cities. And now - extinct villages, destroyed biological resources. Not even a pattern, but some kind of obscurantism. God, well, why, why are you giving Russia so much? First criminals, and now also idiots. And it's not clear who is worse. There was a direct genocide, now indirect.
On the voters' strike.
Crop production, improvement, reconstruction and new forms of work. Krasnoselkup is rapidly changing, despite the remoteness, the head of the region was convinced during a working trip. There are, of course, problems. In particular, unjustifiably protracted construction projects, said Dmitry Artyukhov. He discussed the solutions at a meeting with residents. Galina Chechikova - with details.
The remote and rather updated Krasnoselkup meets the head of the region. The airport, runway, helipads are being reconstructed.
Innovation is everywhere. Even those who have been fishing for centuries now grow carrots, onions, and potatoes. Agrofirm "Pripolyarnaya" began to master crop production. And last year she gathered a good harvest from the northern fields. Only potatoes - more than 60 tons. The head of the company proudly demonstrates locally produced products with a quality mark and without preservatives. Exclusively natural milk, meat and even culinary products.
Today, residents of the village itself, Tarko-Sale, Novy Urengoy can feast on the products of the Krasnoselkup farmers. True, so far only in season. The plans are to gasify greenhouses. And then local vegetables will be on the tables all year round. Although today local producers are one step ahead.
Takiulla Sharipov - CEO agricultural firms: “And now we have cut down the first day, cabbage is not yet cut on the ground, we are already cutting it here. We selected those varieties according to the growing season.”
The head of the region got acquainted with the project for the improvement of the Mangazeya recreation park. The original object of the "Comfortable environment" involves spacious walking areas, sports grounds and historical architectural forms. He also assessed the state of protracted construction projects. In Krasnoselkup, this is a sports complex and a kindergarten for 240 children. And already at a meeting with residents, he told what awaits long-term construction.
Dmitry Artyukhov - Acting Governor of the YaNAO: “We have provided the necessary funding. Now it is important, as always, we have a construction season, the delivery of materials - to synchronize all this so that the contractor comes out. There is everything for this, there is a resource, it is important to do it.”
Program "Cooperation", relocation to the south of the Tyumen region, roads and high-speed Internet in the village of Ratta. Residents of the district literally overwhelmed the head of the region with questions. Such activity only pleases, Dmitry Artyukhov emphasized. And I already discussed in detail the main points with the head of the municipality, Yuri Fisher, promising in the end - movement without stops.
Dmitry Artyukhov, Acting Governor of the Yamal-Nenets Autonomous Okrug: “You can’t do everything at once, you yourself understand this, but we will definitely move purposefully, so Yamal and the Krasnoselkupsky district have a wonderful, excellent future.”
