Municipal government is the administrative and economic activity authority aimed at maintaining and developing the social and industrial infrastructure of the city or other settlement, as well as managing institutions that are owned by the city / township community. Such activities are carried out within the municipal boundaries in accordance with the General Plan for the Development of the Territory adopted and approved by the deputies.

Municipal government is not directly a form of political administration. However, according to the current Russian constitution, local authorities are included in single system state power. Therefore, economic, social and administrative decisions taken by municipalities are implemented within the framework of legal norms established by the federal authorities.

The system of state and municipal government differs both in functional and legal criteria. For government controlled the mission of general control over compliance with federal legislation in a particular territory is more characteristic. At the same time, the municipal government is busy with the economic development of the settlement. In particular, we are talking about support and modernization of the transport sector (medicine, education, local social programs), collection and redistribution. A special place in this list is occupied by regional programs development, which are usually aimed at the technological specialization of the economy of the municipality.

In other words, municipal government is a whole complex of economic, social and legal influences on the local community, aimed at improving its economic well-being. Local administrations have the right to independently determine the goals and objectives of the development of the territory that do not contradict federal law.

In total, the municipal government has such functionality, how:

Adoption of the local budget and administration of regional taxes;

Building a convenient, autonomous development in relation to the federal government, in particular, the right to create administrative and bureaucratic structures for the management of municipal property;

Involvement of the population in solving the most important issues, in particular, by holding local referendums.

In addition, the functions of the municipality include the management of the most problematic issues are the maintenance and modernization of transport infrastructure and the physical condition of the housing stock. The fact is that most of the enterprises responsible for the development of housing and communal services have either been privatized or sold to private owners. However, utility networks are still in municipal ownership, and therefore there is a problem of combining the interests of the local community, the administration of the settlement and the owners of energy companies.

The situation is similar with respect to transport infrastructure. It turns out that roads and interchanges are mostly state or municipal, while transport is private. Accordingly, the question arises of how to manage property that is administratively owned but not economically owned. And this despite the fact that regional economic programs and the administration of local taxes are the basis of municipal government.

QUESTIONS

final state exam majoring in "State and municipal management"

State and municipal administration.

1. The system of public administration in the Russian Federation: composition, structure and mechanisms of functioning.
2. Methods, mechanisms and tools of public administration.
3. Formation of the organizational structure of state and municipal government. Types of organizational structures. The structure of ministries, agencies and services of federal executive bodies of the Russian Federation.
4. Evaluation of the effectiveness of the activities of state and municipal government in the Russian Federation: the essence, factors and evaluation criteria.
5. Designing organizational structures for managing state and municipal governments. Formation of the register of state and municipal services and functions. Regulations for the provision of services and functions.
6. Municipal service in Russian Federation: normative regulation, principles, procedure for entering the service and its passage.
7. The system of state and public control in the Russian Federation.
8. Local self-government in the Russian Federation: territorial organization and its economic foundations. Features of the implementation of the Federal Law No. 131 of 06.10.2003
9. Strategic planning development of the territory: methods, models and tools. Development of a strategy and program for social economic development.
10. The current state of public administration and local government in Russia priority areas their development in the context of the implementation of administrative reform.
11. The organization of local self-government and the subjects of its jurisdiction. Delimitation of powers. Formation of the economic basis of LSG in the Russian Federation.
12. Forms of participation of the population in the implementation of local self-government.
13. Administrative reform in the Russian Federation in 2004-2009: essence, goals and main directions of implementation.
14. Representative bodies of local self-government: the procedure for formation, powers and organization of activities.
15. State civil service in the Russian Federation: regulatory regulation, types and procedure for passing.
16. The highest official of the subject of the Russian Federation and the head of the municipality: status, procedure for empowering and competence.
17. Legal status(status), rights and obligations of municipal employees. Countering corruption in public authorities and LSG.
18. Organization of activities of executive and legislative (representative) authorities in the constituent entities of the Russian Federation.
19. Local administration of the municipality: status, powers, structure and functions, organization of activities.
20. Organization of staffing of public authorities and local self-government.
21. Responsibility of bodies and officials of local self-government. Types of administrative violations. Anti-corruption activities in public authorities and LSG.
22. Organization of activities, structure and powers of the executive and legislative (representative) bodies of state power of the constituent entities of the Russian Federation. Delimitation of powers.
23. Tax policy of the Russian Federation. The system of tax authorities in the Russian Federation. Features of tax sources of income in the budget system of the Russian Federation.
24. Organization of social protection of the population in the Russian Federation. Social policy of the state.
25. Management of public and municipal procurement in RF. Organization of competitive placement of orders. State customer: functions and responsibility. The main sections of the state (municipal) contract.
26. Organization of the activities of government bodies in Russia under special administrative and legal regimes. Special economic zones: the order of their organization and functioning.
27. Organization of labor and management activities in public authorities and local self-government. Motivation of work of state (municipal) employees. Development management decisions. Ethics of the state (municipal) employee.
28. Organization of social protection of the population in the Russian Federation. Social benefits and benefits for various categories population. Social policy of the state.

Economic theory

Management is a universal and necessary element of the world around us. In the broadest sense of the word, it is various ways the impact of the subject (subjects) on the object (objects), changing the position, behavior and properties of the subject (subjects). From these positions, even the gravitation of the planets of the solar system can be considered to some extent as mutual multilateral control. However, management is most often understood not as a spontaneous, but as a purposeful impact on the part of people (devices created by them) on those objects that can be regulated. Not all objects, events, states can be the subject of people's control (for example, space). It is useless to apply management measures to an improper object. Not all goals can be achieved with management (for example, in the field of weather management). Therefore, applying management measures, you need to set realistic goals.

You can control natural objects (for example, with the help of hard training a person can change his figure), physical processes (control of a nuclear reaction in order to obtain “peaceful” energy, and not an explosion), technical systems(car driving). The trainer controls the behavior of the animal, the person regulates his behavior, restraining anger or irritation, etc.

Management is aimed at achieving some result, it must be effective. However, not every impact, even on the proper object and with a real goal, gives the result that the managing subject was striving for. Sometimes the measures taken by him do not give any result, and often lead to the opposite consequences. The latter does not mean that there is no control, just that the impact did not reach the desired goal. one

Most often, the impact in management is understood as one-line: the subject is the object. We usually see only these direct connections, but there are also inverse connections: the impact of the object on the controlling subject. These connections are very important to take into account, especially in public administration: the reaction of the population to the managerial measures of state authorities and municipal governments can change and often change management decisions. In addition, the subjects and objects of management in this process can change places: the object becomes the subject (subordinates demand that the boss, who has lost confidence, resign from his position, and achieve this). Feedback effects can also be considered from the point of view of cybernetics as control, they may have a goal (as a result of a strike, the administration of an enterprise increases wages), but in state and municipal management, the term “management” is not used to characterize feedback (in the form of impacts), it refers to direct connections of a strong-willed, “command” nature.

Any collective (and society is the most comprehensive collective within state boundaries) has common interests and, consequently, common goals(for example, maintaining a certain order, preventing anarchy and the collapse of society). In this regard, “common affairs” appear in society, they need to be solved, to manage events (those that can be managed). To regulate life in various collective societies, special bodies are created (in a tribe - councils of leaders, elders, in a state-organized society - parliaments, governments, etc.).

On the other hand, society is always (if we exclude the earliest stages of the primitive existence of man) structured and asymmetrical. It is made up of different social groups(workers, peasants, entrepreneurs), national (ethnic) communities, many associations (parties, trade unions, women's organizations). There are also many institutions of an economic and social nature operating in society (economic monopolies, joint-stock companies, tripartite organizations of workers, employers and the state). Outstanding personalities and others play their role. Each of these communities, institutions, organizations, and often personalities pursues certain goals, defends its interests, and puts forward certain demands.

As a result, contradictions and conflicts arise in society. They must be regulated, otherwise the society will not be able to function as an integral organism. It must seek in itself and, as a rule, finds the means to ensure its development. Ultimately, this is the result social management, through the use of social incentives, means, mechanisms. Acting in the name of their interests and at the same time performing "common affairs", various groups, organizations, institutions, individuals participate in the change and development of society, i.e. in managing it, if the word "management" is understood in a broad general sociological sense.

The political management of society is carried out as a result of the activity of the political system of society. These are political institutions, regulatory norms that have political significance (primarily law), political regime, political ideology. The political system in a concentrated form reflects the most important interests of various social groups and raises them to the level of politics. The essence of the functioning of the political system is the streamlining of social processes, their introduction into a certain framework on the basis of legal (that is, legally permitted) forms of struggle (competition) and cooperation (including through compromises). The political system provides one of the most important components of management - the regulation of social relations by political means, but it cannot provide targeted, predetermined activities. There are too many opposing associations and institutions in its composition, and the regulation of relations is objectively carried out in the struggle of different forces and tendencies, in search of compromises accepted by various social and political forces. Such compromises express only the most general goals of the whole society - economic development, preventing the collapse of society, etc.

The task of specific target regulation of social processes, i.e. orientation of economic development in a certain direction, political and spiritual processes, the implementation of specific measures - the development of transport, education, health, culture, etc. is solved through the use of public power, which is concentrated in the hands of certain institutions of the political system. First of all, this is the state, acting as a representative of society (a state-organized society), although in practice the state usually represents primarily the interests of the social strata that dominate in society. The state exercises state management of society. Acting on behalf of the people, it creates its own bodies to govern: parliament, government, courts, etc.

On the ground, in territorial units, their own territorial collectives are formed. These are municipalities. They create their own bodies, vaguely resembling state bodies in form (there is a local representative body, relatively speaking, the local "parliament", the head of the municipality is the local "president", its administration is the local "government", departments - local "ministries", etc., but in their system there is no third branch of the well-known triad - the judiciary, the prosecutor's office, constitutional control bodies, etc.).

The bodies of the municipality exercise management on behalf of the population of the territorial collective. Since its decision-making bodies are elected, this form of local government is called local self-government. It solves other problems than state bodies. At the same time, other bodies and officials appointed by the state (departments and departments of ministries, in some foreign countries - governors, prefects, heads of districts, etc.) can also act in places. They exercise the powers of the state on the ground. In federal countries, there is a special link between the state and local self-government - the subject of the federation. Local government is considered as the sphere of regulation of the subject of the federation, the federal state establishes only the foundations of local self-government.

State and municipal management is a broad, political interpretation of management. All branches of government participate in it: legislative (rule-making in local self-government), executive, judicial (in municipalities, as mentioned, this branch does not exist), other bodies that are considered by many researchers to be not part of any branch (for example, the prosecutor's office, constitutional control, election commissions, parliamentary commissioners, in particular, for human rights, etc.). In a narrower, special sense, state and municipal management is understood as a limited scope of activity of state and municipal bodies: administrative, executive and administrative activities. It is carried out not by everyone, but only by executive and administrative bodies belonging to the branch of executive power. If we apply this approach, it will mean studying only the management activities of the administration of the municipality. Other bodies (including the representative body) and procedures (eg direct democracy) will be excluded.

State and municipal management is considered in a broad sense. This is the directing, organizing, streamlining the activities of the state and municipal authorities (at the local level) using all branches of government, all bodies, all state and municipal officials and employees. In this sense, the purpose of state and municipal government is to regulate and streamline the life of society (territorial collective), relations of the individual, various collectives, the state and society, the establishment of their rational relationships through the use of state and municipal authorities. Such a broad approach to management, in our opinion, is more appropriate for the training of managers than a specialized legal approach.

Unlike other possible forms of management (in the family, for example, it is carried out using parental, i.e. personal, power, and in many collectives (for example, in a public association) - through the use of corporate power organization, moral attitudes, prohibitions and restrictions) state and municipal administration is public administration in society and a territorial community based on the use of public state and municipal authorities.

Any collective generates relations of power, domination and subordination. This fact stems from various aspects of the inequality of people and their groups in the collective. Initially, this inequality has a natural character. Some people are physically stronger, smarter, more resourceful, have natural leadership qualities, and so on. Other people voluntarily or under duress submit to them. This personal element (special qualities of this or that person) when creating certain groups of people, in collectives of a certain kind, can acquire public, social significance, becomes a prerequisite for the emergence of public power, which is separated from the collective. However, for the emergence of public power, it is not the personal qualities of people or their groups that are of primary importance.

Public power does not arise in every collective. Parental power in the family or the power of the leader of a criminal gang is not public, but personal, personal. Public power arises in a public collective, whose members are connected not by kinship or other personal, but by social relations. Directly public power is connected with two factors, which were mentioned above: common interests, at a certain stage becoming public, and social (rather than personal) asymmetry. For these reasons, state power arises in the society of the country, municipal power - initially in a team of people who settled in place for a common life. These two types of public authority have many common characteristics. They are separated from society (an exception is, for example, decision-making by a village assembly in small municipalities), public authorities have the right to establish generally binding for a given team (society, municipality) general rules and apply coercion. Both of them have a special apparatus - a team of people, as if separated from society and professionally engaged in management (and coercion) - state and municipal.

However, each of these two varieties has its own characteristics. They are rooted in the fact that state power acts on behalf of the entire people, and municipal power acts on behalf of a relatively small territorial collective. State power acts throughout the country and in international relations, the municipal government has a local sphere of activity, the first is sovereign, it establishes general rules for the activities of the municipal authorities as well. The powers of state power are not only immeasurably wider, but also qualitatively different, which follows, in particular, from state sovereignty. Many powers that belong to the state power, its bodies (issues of citizenship, crime and punishment, foreign affairs, the prosecutor's office, courts, etc.) can never, by their nature, be exercised at the level of the municipality, no matter how large it may be (abroad, some large cities, such as New York or Tokyo, having the status of a municipality, outnumber many states in terms of population). The municipal administrative apparatus is focused on other, local tasks, and no matter how large the municipality is, its apparatus is essentially different from the state apparatus.

Differences between state and municipal public authorities are continued in the differences between state and municipal government.

Public power is a static phenomenon to a certain extent. For it to be used as dynamic relation, i.e. for management, some fact (event, action, etc.) is needed that has social significance. In this case, the subject of management acts as a power, using power for certain purposes. A managerial relationship arises: an acting subject, an object, and a managerial relationship between them.

Public administration is the impact of a subject with public authority on an object for the purpose of any public interest. There are, of course, cases when a governing body, and more often an official, when giving orders, pursues not public, public, but selfish interests, but this is already an offense that goes beyond public administration. State and municipal government -- a kind of public administration. These are social relations that develop in the process of the influence of bodies and officials of state and municipal authorities on the consciousness, behavior and activities of the population in the purposes determined by these bodies and persons and adjusted taking into account the feedback of the population with the managers. one

Society and municipality -- complex systems, where the principles of not only cybernetics, but also synergetics operate. This, in particular, means that society and the municipality are managed in a structural-unstructured way. The bodies of the state and the municipality set the structure of management, but in addition to them, other factors (economic, social, ideological, etc.) operate in society, the municipality, which have their impact on management as well. With structural management, information (including instructions and other management acts) is distributed in a targeted manner, according to a special structure and to a selected object. With unstructured management, information, spreading freely or along random chains (through neighbors, former classmates, etc.), can have an impact on the manager. For example, a subordinate wants to get a promotion, but he cannot directly influence the boss. Then unstructured management is used: public opinion is created around the boss, for example, through the friends of his wife, which influences the manager, and the subordinate receives the desired reward. This is a joking example. In fact, many processes of social management in society and in the municipality are unstructured (relocation work force, upbringing of the younger generation, demographic processes - births, deaths, etc.), and the bodies of the state and the municipality can only partially influence them, and some cannot at all.

Researchers call various principles controls and their unequal number (the largest, 14, was named by the French author L. Fayol). The vast majority of them are applicable, sometimes with some peculiarities, to state and municipal administration, others need to be rethought. As a result, the following principles of state and municipal government are formed.

1. Public authority of the manager. For state and municipal government, the right to dispose (powers) and the power to ensure the execution of orders are necessary. Of course, the powers and power at the level, on the one hand, of the state, and on the other hand, of the municipal administration are not the same.

2. Unity of leadership and division of managerial labor. Without a unified leadership, chaos ensues, and the division of labor ensures specialization, i.e. management quality.

3. The unity of command over a certain range of issues and the specificity of the performers. With many stewards giving instructions on the same issue, confusion arises, and without a specific designation of the executor, the orders are not carried out.

4. Subordination to the interests of the state and municipal administration of other interests in the state and municipal service. Of course, the body, official of the state or municipality has other interests, but during the performance of official duties, the interests of management have priority.

5. Required degree centralization and hierarchy in management. They create stability and ensure the operation of the management mechanism as a whole.

6. Consistency management personnel. The turnover of managers and performers is harmful to the business.

7. Fairness towards superiors, subordinates, employees of the governing body. Encouragement and punishment should be proportionate to the act and regarded by the team as justified and fair.

8. Feedback in management. The manager must take into account the results of his actions and correct them if the feedback indicates the need for this.

9. Remuneration of managerial work. This work must be paid in accordance with its social utility, quantity and quality.

A specific subject of state or municipal government is the relevant body, official of the state or local self-government. There is a huge variety of state bodies (from parliament to the local department of the Ministry of the Interior) and officials.

In federal states, state power (non-sovereign) is possessed by such subjects of the federation, which have their own legislative and executive bodies, their own public service. In local self-government, there are various bodies (representative body - council, committee, etc., local administration), municipal service.

The object of state and municipal government is the public relations of social, national and other communities of people, the behavior of public associations, organizations, legal entities, the behavior of individual citizens, acquiring social significance. Sometimes personal relationships can also acquire social significance (for example, maintenance obligations of children in relation to elderly parents or the prohibition of children under a certain age from attending certain films). In this case, such relations may be subject to state or municipal regulation, i.e. using public authority.

Thus, state and municipal administration is a special kind of social activity on purposeful use on the basis of the law and other legal acts of public authority by a special group of people (bodies, officials), carried out on a professional basis. This leads to the establishment of direct and command relations that bind the object, but general rule subject to feedback object -- subject. Under the influence of feedback, the actions of the subject may change.

Within the powers established by law, the subjects of management use various means at their disposal: economic, political, ideological. In order to accelerate the development of any industry, a certain object, preferences (preferences) are established for it, state or municipal investments are provided. The state (through a court decision) can ban a political party for its anti-constitutional activities, and the mayor's office can not allow a political demonstration with nationalist slogans, prohibit propaganda of extremist ideology, etc. Various methods of encouragement, permissions, requirements, prohibitions, etc. are used, and liability can be established for non-compliance. These means direct the activity of people and their collectives.

These or those bodies and officials can use only such means of state and municipal administration that are permitted by law (and in accordance with it by the charter of the municipality). Different kinds bodies and officials use different methods of state and municipal government, and each of them uses the methods and within the framework established by the relevant legal act.

Used to achieve different goals different ways. Technical management traffic from the side state inspection on road safety or the activities of the municipal administration to repair the school is not at all the same as governing society by passing laws by parliament or approving the budget of the municipality by its representative body. Management through the adoption of judicial decisions differs from management carried out by the head of a department of municipal administration, the activity of the Commissioner for Human Rights is not at all the same as the protest of a prosecutor against an illegal decision of a local self-government body, etc.

In the management system, its goals are of paramount importance. There are specific goals (organizing activities for the repair of a local road), and there are goals of a global order, which should be consistent with universal values ​​(freedom, democracy, social justice, etc.). Goals must be realistic and achievable. It is useless to engage in managerial activities if the goal is impossible by itself.

Goals of management determine the essence of a management decision: the choice of actions by which the goals should be achieved.

The validity of the managerial decision is of paramount importance. In such a decision, it is possible to fully take into account all the circumstances that have both a direct and indirect relation to the problem being solved, factors favorable and counteracting.

Management stability is essential to success. Not rush work, but persistent consistent work brings results. From this point of view, it is necessary to calculate the effectiveness of management in advance: achieving the best results in the possible short term With least cost material resources and managerial energy. Efficiency is not related to the quantitative side of management: too much management (surplus management) is just as bad as not enough management (little management).

The most important material base of management is management resources (availability of appropriate bodies, personnel, financial capabilities, management techniques, etc.). They are very different in state and municipal administration. When solving this or that managerial task, it is important to first assess the availability of resources (including not only material, but also spiritual) for this.

Deadlines are important. Management task must be resolved on time. Otherwise, it may turn out that her decision is belated and simply no longer needed. one

State and municipal administration may use non-public institutions. In the countries of Muslim fundamentalism (Saudi Arabia, Oman, etc.), religious norms play the most important role in governance. In some countries, public associations are used for management (for example, many labor protection control functions are transferred to trade unions in Russia, in France business unions can carry out commercial arbitration, etc.).

The influence of the managing subject (body, official, etc.) on the object is the establishment of its direct links with the object. Such an impact can be permanent (for example, subordination by service), episodic or temporary (for example, the introduction of a state of emergency for a period of 30 days in a certain region of Russia). It can be very active, even forceful (activities government agencies to stop a strike that was declared illegal by a court), or it can be soft “management by a conductor” or even outwardly invisible. It is precisely the latter that is characteristic of well-functioning management. Not rush and assaults, emergency and emergency measures, but the current, imperceptible at first glance, managerial work always gives the best effect. Of course, in emergency situations emergency measures are also necessary when the forms of direct control change dramatically. However, they should be used with extreme caution, as they can destroy the management mechanism.

The object of managerial influence, direct links is not only an object external to the control system, but also various links of the control system itself, between which either vertical links of subordination, subordination (hierarchy), or horizontal ones are established. In the latter case, they come down to coordination, interaction, mutual assistance in the implementation of the common goals of state or municipal government.

Since the impact of the subject on the object takes place, the object reacts to it (if the impact turned out to be unnoticed, then there is essentially no control). The object may not change its behavior (for example, law enforcement agencies require the organizer of the demonstration to return to the approved route, but they continue to direct traffic along the streets closed for this), or it may change. Such changes may correspond to the will of the governing entity - a reaction of consent, submission (a citizen submits a declaration of his income to the tax department in a timely manner, the Italian government resigns as a result of a vote of no confidence adopted by Parliament), but they may not correspond (a reaction of disagreement), acquiring a form not only of disobedience (the continuation of the meeting, which the police demand to close), but also of active opposition (demonstrators attacking the police). In this case, direct ties change their character; coercion, and even direct violence, comes to the fore in them. So it was in many countries under the conditions of military dictatorships, totalitarian regimes.

The impact of the subject (body, official, etc.) on the object of management generates feedback. The subject of management receives information about the behavior of the object, about the fulfillment (non-fulfillment) of managerial "commands". It is collected in the receptors of the control system. Such receptors can be bodies or officials directly exercising control, analytical centers. A system that runs smoothly delivers planned and smooth information. In case of failures, regardless of whether they occur in the sphere of direct or feedback connections, the information has a spasmodic, uneven character, and distortions occur. The selection and transformation of information takes place in the receptors, the separation of the essential from the non-essential, the generalization of the material for the conclusion that the control subject makes.

If the managerial influence turned out to be unnoticed, if the object did not change its behavior or if it directly resists the subject of management, the latter has to make a new decision based on the conclusions drawn from the information received. It may be different (stop the impact altogether, use other methods of exposure, etc.), but in any case, this decision modifies, changes both direct and feedback. New information about the behavior of the control object is again evaluated control system, a new cycle begins. Since some kind of influence (very active or almost imperceptible) practically always exists, if there is a management process, then direct and feedback links are constantly cyclical, only their content changes depending on the situation. The study of control processes based on the study of direct and feedback links using the methods of cybernetics and informatics has received the name "input (information) - output (decision)" in Western literature.

Ways of expressing feedback can be active (actions in agreement with the management decision, protest) and passive (current information). They are diverse: for example, support or rejection of a draft law in a referendum, a demonstration of protest, the refusal of voters to vote in elections for the candidacy of the former or proposed governor, criticism of the government's actions in the press, etc. In Western literature, participation is considered to be a particularly effective way of active feedback - voluntary participation of the population in government projects and local self-government activities.

Feedbacks are of particular value for determining the quality of management. It is from the object that information is received about the correct understanding and execution of "commands" or data indicating failures or shortcomings in the control system. It happens that the managed entity not only misunderstands the “commands” (for example, due to insufficient qualification of personnel, due to communication failures), but also distorts feedback, sends false information to the managing entity (most often this is due to hiding shortcomings in the work ). Shortcomings can be hidden for a long time and, if the situation becomes more complicated, lead to a management crisis, and even to a collapse, accompanied by the liquidation of institutions, the mass dismissal of officials, and their prosecution, including criminal liability. Therefore, the constant control of the managing entity over the objectivity and accuracy of data in the process is important. feedback. When a distortion of feedbacks, their content, appropriate measures should be taken.

State and municipal administration is not limited to the activities of its bodies and officials. It is also carried out with the participation (often decisive) of the institutions of direct democracy. These include elections, when citizens decide which party will form the government (in the parliamentary monarchy of Great Britain or in the parliamentary republic of Germany), who will take the highest state post (the post of president in Russia). Participation of citizens in governance is carried out by recalling deputies by voters (in Russia, members of the State Duma cannot be recalled, but deputies of legislative bodies in some constituent entities of the Russian Federation and deputies of representative bodies of municipalities can be recalled). In some constituent entities of the Russian Federation, in municipalities, early recall of elected officials is also possible. By voting in a referendum, citizens can adopt a constitution that defines the entire system of government of the country (for example, in Russia in 1993) or another law. At local referendums in many municipalities of Russia, their charters were adopted. A referendum can be not only decisive, but also advisory (voting results in this case are not binding on state bodies).

A new law (local normative act) can be proposed through a popular legislative (law-making) initiative, for which it is necessary to collect a certain number of signatures of voters in support of such an act (for example, in Italy 500 thousand; for a law, for normative act local self-government body in some municipalities in Russia, 200 signatures are sufficient).

People's discussions of important issues of state life are used (in Russia, the procedure for conducting them is regulated by a special legal act). In Russia, in local self-government, a civil initiative is used - a direct appeal by a group of citizens to government bodies with a proposal for any measures.

System of state and municipal government

Local self-government: essence, concepts, signs. Theories of local government

The concept and essential features of local self-government

Local government as component state administration systems. Subjects of jurisdiction and powers of local self-government.

Federal Law "On the general principles of the organization of local self-government in the Russian Federation" No. 131, its main provisions

Federal Law "On the general principles of the organization of local self-government in the Russian Federation" No. 131 on the types of municipalities, their characteristics

Organizational bases of local self-government

Economic basis of local self-government

Legal basis of local self-government

The main scientific schools about the state and management

Regional management: delimitation of jurisdiction, public authorities in the constituent entities of the Russian Federation

Typology of municipalities. Features of the city as a municipality

Local interests, the role and functions of local government in society

Municipal formation as a territorial link of local self-government

Constitutional foundations of state and municipal government

Federal legislative authorities of the Russian Federation

Federal executive authorities of the Russian Federation

The emergence and development of local self-government. Local self-government in Russia at various historical stages

Fundamentals of state and municipal social policy

Municipal service: concept, signs, legal regulation, passage. Municipal positions and qualifications of municipal employees

The specifics of municipal government. Municipal management as a type of management activity. Features of management in the municipal sphere

Efficiency of municipal management: assessment, criteria and meters. Determination of the effectiveness of the organization of municipal government

Organizational structure of the local administration

Municipal activity and municipal policy

Direct participation of citizens in local self-government

The charter of the municipality as its main normative legal act. Provisions of the charter of the municipality

Municipal services: characteristics, classification, measures of volume and effectiveness. The role of local governments in the provision of municipal services

Staffing of municipal government

Information support of municipal government

Development and implementation public policy

Public administration is called upon to regulate social relations that ensure the protection and reproduction of the integrity of the state and its main institutions. The predominant direction of the vector of public administration is the direction "from top to bottom", in connection with which the state assumes the right to realize public interest in the development of its constituent territorial entities.

Public administration is the process of regulating relations within the state through the distribution of spheres of influence between the main territorial levels and branches of government. Public administration is based on the state interest aimed at protecting the integrity of the state, its key institutions, supporting the level and quality of life of its citizens. Among the priority areas in the implementation of the public (state) interest is the need to perform several functions: protective, defense, social, legal, economic, political and arbitration.

The systemic nature of public administration lies in the fact that it ensures the unity of the administrative (command-administrative) and partner (social-consolidated) principles in the practice of regulating social relations and processes. As a system, public administration performs several functions.

1. Institutional - through the approval of the socio-economic, political and civil institutions necessary for solving state issues for the distribution of power.

2. Regulatory - through a system of norms and laws, which are designed to establish general rules governing the behavior of subjects.

3. Goal-setting - through the development and selection of priority areas of socio-economic and political development through the implementation of programs supported by the majority of the population.

4. Functional - through the development and implementation of actions aimed at supporting the entire economic infrastructure of the state in the face of its leading industries.

5. Ideological - through the formation of a national idea, designed to consolidate society within the boundaries of the state.

The main principles of the formation of the public administration system are:

♦ The principle of separation of powers presupposes the division of the sole state power into three spheres: legislative, executive and judicial, which should serve as a condition for effective control over the activities of the state apparatus.

♦ The principle of complementarity is characterized by a focus on continuity in the power structure. The principle aims at creating conditions for an even distribution of power functions in the context of the entire vertical of government at various territorial levels.

♦ the principle of subsidiarity determines the procedure for the distribution and redistribution of powers between the administrative levels of state power

♦ the principle of sovereignty presupposes the existence of actual independence as an essential feature of the state.

♦ the principle of democracy focuses on the need for active participation of the urban population in decision-making of state and municipal importance

♦ the principle of homogeneity - the advantage of federal law over regional law..

Public administration is a complex process of interaction of fundamental elements, the result of which is a special system of public administration, which determines the method and nature of the interaction of its components. social institutions. Four elements form the basis of the public administration system: power, administration, territory and economic system.

Power determines the procedure for electing and the nature of the implementation of the functions of government, the structure of interaction between key political institutions. In the system of public administration, power is exercised through a form of government that sets the typical features of the functioning of the executive and representative bodies of power.

Management, being a derivative of power, expresses a set of government actions aimed at regulating current socio-economic and political processes. Management is embodied in the nature of state intervention in economic life, ensuring the political rights of citizens, the maintenance of civil society institutions, etc. An integral element of the state management system is the political regime, which incorporates a set of methods for implementing the functions of state power.

The spatial features of the territory have a special influence both on the system of state administration itself and on the nature of the economic policy of the state. If the territory of the state occupies a significant area, then this requires the creation of a larger number of administrative levels for territorial entities in comparison with countries occupying a smaller area. In addition, the geographic features of the territory play an important role in the mechanism of state administration: relief, the presence of waterways, climate, etc. geographical features of the area.

And finally, the economic system of the state, serving as a functional subsystem of state administration, contributes to ensuring the functions of rational management of the economic life of the country, meeting the basic needs of its citizens, supporting vital areas of production and distribution of products.

Requirements general principles should be taken into account both in the functioning of systems of state and municipal government, and in their construction and improvement.

Private principles relate to individual elements of management and will be given when considering these elements, for example, the principles of organizing and monitoring the execution of management decisions.

To general principles state and municipal administration include:

1. The rule of the Constitution of the Russian Federation, federal constitutional laws and federal laws issued within the jurisdiction of the Russian Federation and the powers of the Russian Federation on subjects of joint jurisdiction of the Russian Federation and the constituent entities of the Russian Federation.

2. Democracy.

3. Responsibility.

4. Ensuring the rights and freedoms of man and citizen.

8. Combinations of centralization and decentralization of management.

9. Publicity.

10. Legality.

11. Functional-industry.

12. Double submission.

13. Linear-functional.

14. Combinations of unity of command and collegiality.

15. Situational control by deviation, by disturbance, by forecasting disturbances.

16. Program-targeted.

17. Planning.

18. Scientific.

19. Delegation of powers.

Consider their content.

1. The principle of supremacy of the Constitution of the Russian Federation, federal constitutional laws and federal laws issued within the jurisdiction of the Russian Federation and the powers of the Russian Federation on subjects of joint jurisdiction of the Russian Federation and the constituent entities of the Russian Federation means that in cases of discrepancy between the laws of the constituent entities of the Russian Federation and the Constitution of the Russian Federation and federal laws, Constitution and federal laws. In the event of a conflict between federal law and a regulatory legal act, an act of a constituent entity of the Russian Federation, issued outside the jurisdiction of the Russian Federation, joint jurisdiction of the Russian Federation and constituent entities of the Russian Federation, the regulatory legal act of the constituent entity of the Federation is in force.

2. The principle of democracy establishes that the source of state power in Russia is its people, whose will is implemented by representative and executive bodies of state power, as well as local self-government bodies.

3. The principle of responsibility requires the establishment of a clear responsibility of officials and bodies of state and municipal administration for non-fulfillment or poor-quality, untimely fulfillment of the powers assigned to them.

4. The principle of ensuring the rights and freedoms of man and citizen requires officials and employees of state and municipal government bodies to strictly observe the rights and freedoms of man and citizen established by the Constitutions of the Russian Federation.

5. Essence separation of powers lies in the need to separate state power into legislative, executive and judicial.

Since the state power in the Russian Federation, the source of which is the people, is one and indivisible, like the people themselves, then the principle of separation of powers should be understood as the division of a single power into its separate functions.

In the Constitution of the Russian Federation, the principle separation of powers enshrined in Art. 10, which states: “State power in the Russian Federation is exercised on the basis of division into legislative, executive and judicial. Legislative, executive and judicial authorities are independent”.

However, the following article of the Constitution states that “state power in the Russian Federation is exercised by the President of the Russian Federation, the Federal Assembly (Federation Council and The State Duma), the Government of the Russian Federation, the courts of the Russian Federation”. Thus, it turns out that the state power is exercised by four authorities. What power the President exercises is not explicitly stated in the Constitution. However, it can be concluded that the President, in accordance with the Constitution, exercises supreme power.

The principle of separation of powers acts in the legislative body itself, dividing it into upper and lower chambers, which takes place mainly in federal states.

6 . The essence of the principle of federalism is to ensure the territorial and political unity of the Russian Federation in combination with the decentralization of state power on the basis of the constitutional delimitation of the subjects of jurisdiction and powers between the federal state authorities and the state authorities of the constituent entities of the Russian Federation while ensuring equality subjects of the federation among themselves and in their relations with the federal authorities.

In accordance with this principle, state authorities are formed at two levels: federal and subjects of the Russian Federation.

The principle of federalism in legal aspect is manifested in the fact that the legal acts of the federal executive authorities are binding on the relevant authorities of the constituent entities of the Russian Federation, the legal acts of the executive authorities of the constituent entities of the Russian Federation must be observed by the federal executive authorities. As a component of the mechanism for implementing the principle of federalism, an administrative contract is used as legal form regulation of relations between federal executive authorities and executive authorities of the constituent entities of the Russian Federation.

From the principle of federalism the following requirements:

Ensuring the protection and interests of the Russian Federation as a whole, maintaining its unity and territorial integrity,

A clear definition of the powers of federal government bodies, ensuring the protection of the interests of the Russian Federation as a whole and not limiting the independence of the subjects of the Russian Federation in resolving issues within their jurisdiction,

Alignment of the real rights of the subjects of the Russian Federation.

7. The principle of democratic centralism is the most important principle of state and municipal government, which determines the content, forms and methods of activity of government bodies, managers and performers at all levels of government. FROM essencethisprinciple consists in combining in the state and municipal administration of democracy as the sovereignty of the people, its initiative, the election of government bodies, their accountability to the population, ensuring the development of independence and creative activity of local self-government bodies with centralization as a priority of the interests of the majority, allowing to implement a unified general state policy in the main issues of state and municipal administration, with the responsibility of each state and municipal body and official for the assigned work.

Democracy is the way implementation center-lism. One side, the implementation of the principle of democratic centralism presupposes the participation of the people in the discussion and adoption of the most important managerial decisions at all levels of state and municipal government. The development of democracy, by involving the people in the management of the affairs of the state and territorial entities, expands the base of centralism.

On the other hand , democracy is a specific approach to the content and method of implementation of managerial decisions made by the center on issues that affect only the foundations of the state as a single integral entity. At the same time, higher government bodies are vested with a limited range of powers to implement these decisions. Subordinate bodies, within the established limits of their powers, have the freedom to choose ways and means of solving problems of both their own and general development.

Central authorities state administration, outside the limits of its powers, has no right to interfere in the activities of local governments. This approach ensures the implementation of centralism within the necessary, optimal limits, giving democracy an organized character, allowing solving general and particular problems. The main problem of the implementation in state and municipal government of the principle of democratic centralism is the optimal combination, the measure of centralism and democracy. Democracy is central to this dichotomy because it forms the basis of centralism.

Violation of the optimal combination centralism and democracy lead either to increased centralization in public administration, its bureaucratization, the predominance of the command, order, or to spontaneous rally democracy, which generates the same subjectivism and voluntarism as bureaucratic centralism. As is known from practice, permissiveness gives rise to informal violence, rampant group egoism, which does not allow identifying and realizing the interests of social groups and communities.

8. From the principle of democratic centralism follows the principle of combining centralization and decentralization state and municipal administration. Its essence lies in ensuring the coordination of state and local interests through a clear division of the competence of federal government bodies, government bodies of the constituent entities of the Russian Federation and municipal government bodies.

9. Without publicity there can be no democracy. The principle of publicity in state and municipal administration is of decisive importance. This principle ensures the protection of society from manifestations of permissiveness and impunity of state and municipal government bodies, as well as officials. The principle of publicity in state and municipal administration requires ensuring citizens' awareness, accessibility of discussion of the most important state and municipal issues, competent participation of the population in making managerial decisions based on the study and consideration of public opinion.

In state and municipal administration the principle of publicity is a way to implement direct and feedback between government bodies and the population. The implementation of the principle of openness ensures the growth of citizens' activity in the assessment, selection and promotion of personnel to government bodies.

The principle of publicity is especially important in increasing the responsibility of leaders, as well as strengthening the demands of people on them for the assigned work.

Implementation the principle of publicity management is closely related to the law of participation of citizens in state and municipal administration, ensuring the inclusion of a wide range of citizens in state and municipal government, especially in cases where an open, comprehensive discussion and important management decisions are needed.

10. The principle of legality means that state and municipal administration is sub-legal, i.e. all actions performed by the governing bodies in the process of executive and administrative activities must be strictly based on legislative acts.

The principle of legality requires from the bodies of state and municipal government accurate, uniform implementation of laws, the implementation by these bodies of only such managerial actions that would correspond to the content of the state will expressed in laws, the adoption of managerial decisions on issues referred by law to the competence of this body , in the prescribed manner and in a certain form.

Subordination The state and municipal administration is also important because in a number of cases the governing bodies are empowered to independently develop and adopt generally binding rules of conduct.

The relationship of the governing bodies with citizens and public organizations may be carried out strictly within the limits of their powers. Not a single state or municipal body carrying out managerial activity, cannot itself change, expand or narrow the competence assigned to him.

11. Functional-industry principlecombines two principles: sectoral and functional.

A) Sectoral principle of management requires such an organization of management, in which the body of state or municipal government is assigned homogeneous, organically related by the nature of production activities, management objects. For example, utilities, education, healthcare, culture, etc.

Industry organization state and municipal administration makes it possible to equip the apparatus of governing bodies with specialists who know the theoretical and practical issues of the functioning of a particular sector of the economy, and who are able to make optimal decisions on the management of this industry.

As a result of the sectoral organization of state and municipal administration, the efficiency of the functioning of industries increases.

B) Functional principle as an integral part of the functional-industry principle forms a requirement, in accordance with which the authority is vested with the authority to perform a certain function of state or municipal government.

For example, economic bodies of state and municipal government perform the function of forecasting and planning (programming) the socio-economic development of the relevant territory, as well as the function of monitoring the implementation of plans; statistical bodies - the function of accounting for the results of the work of the economy, etc.

12. The principle of dual subordination in state and municipal administration means the requirement for the subordination of a particular body to functional or sectoral competence management body of general competence(government, administration) and the corresponding higher governing body on issues of its competence.

The principle of dual subordination , on the one hand, is aimed at ensuring the implementation of a unified state policy in sectoral and intersectoral management, developed by federal authorities. At the same time, the bodies of general competence of the subjects of the Federation and local self-government carry out linear control relevant bodies of sectoral and intersectoral competence, and federal authorities implement the functional management of these bodies.

On the other hand, federal territorial bodies financed from the federal budget (property management, financial, internal affairs, etc.) are subordinate to the relevant body of general competence of the subject of the federation, municipality, are included in its organizational structure, which ensures the coordination of the ongoing federal policy with the interests of the subjects of the federation and municipalities.

In this case, the federal state administration set goals and objectives, i.e., carry out linear management. The governing bodies of the general competence of the subjects of the Federation and local self-government determine the ways to achieve these goals and objectives in relation to local conditions, that is, they carry out the functional management of federal territorial bodies.

13. Linear-functional principlecombines two principles: linear and functional.

A) Linear principle as an integral part of the linear-functional The principle provides for the requirement for the implementation of linear managerial relations, the essence of which, as previously noted, is the implementation of the connection between the subject and the object of management, management - execution. This principle assumes direct administrative subordination of the object to the subject of management on all issues of the object's activity. On the basis of the linear principle of management, a linear organizational structure of state and municipal government bodies is formed.

B) Functional principleas an integral part of the linear-functional principle implies the requirement for the implementation of functional managerial relations, which, as already mentioned, in the implementation of the connection between the subject and object of management management - execution based on the specialization of managerial work performed on the basis of instructions from qualified specialists acting as functional managers.

Combination based linear and functional principles, linear-functional organizational structures of state and municipal governments are formed.

14.The essence of the principle of combining unity of command and collegiality in state and municipal administration lies in the fact that in state and municipal administration both one-man and collegiate management is carried out. The choice of each of them is determined by the nature of the control object. So, in the management of the sector of the economy, it is used principle of unity of command management, according to which the industry is managed at the federal or republican level by the minister, at the regional, regional, city and district level - by the head of the department or department.

This approach is defined the fact that, on the one hand, for the management of homogeneous objects that make up the branch of the economy, it seems possible to select a candidate with high professional knowledge and organizational skills for the position of head of the branch of the economy. On the other hand, to lay on the head all responsibility for the results of the industry.

When implementing intersectoral (functional) management requires the application of the principle of collegial management, which means the adoption of management decisions by a majority of votes of the members of the management body. The collegiate governing bodies include the Government and services.

This approach is defined the circumstance that intersectoral management, on the one hand, requires the head of various professional knowledge, which is almost impossible for one person to master. On the other hand, if the Minister makes an erroneous decision, then in this case the damage will be done to one branch of the economy; an erroneous decision in intersectoral management will harm all sectors of the economy or most of them. Collegiality in making intersectoral management decisions significantly reduces the risk of making erroneous decisions.

The essence of the combination principle unity of command and collegiality It also lies in the fact that in the implementation of one-man management, important fundamental issues of the activities of a state or municipal government body are discussed by specially created advisory bodies - colleges. Collegiums make decisions by a majority of its members in the form of resolutions. The decisions of the collegium are put into practice by legal acts of the head of the governing body.

Such boards, for example, are created in the federal ministries as part of the minister (chairman of the board), his deputies ex officio, as well as other senior officials of the ministry system. Members of the collegium, except for persons included in its composition ex officio, are approved by the Government of the Russian Federation. In case of disagreement between the collegium and its chairman, the latter enforces its decision by a relevant legal act.

At the same time, the Chairman of the Board reports on disagreements, but on the form of subordination to the President or the Government of the Russian Federation. Members of the collegium have the right to inform these persons of their dissenting opinion on the decision taken. This approach to the role of the collegium as an advisory body gives its members a certain legal status, positively influencing the efficiency of decisions made.

15. The essence of the principle of situational management consists in the implementation of object management in the process of maintaining its functioning at a given level. In other words, this principle means management based on the current situation in the object, which is subject to change in order to bring the object to a given level.

The principle of situational control provides for three types of control: by deviation, by disturbance, by prediction of disturbance.

BUT) The principle of situational control by deviation means that the governing body forms a control action only after detecting a deviation in the control object, for example, a pension is not paid, or hot water is no longer supplied to the population. This control principle is the simplest and most widely used. As a rule, it requires significant expenditures of all types of resources, including compensation for moral damage to citizens.

B) More perfect is principle of situational control by disturbance. Such control provides for the detection of a disturbance before the moment when it can cause a deviation. Having determined the disturbance that has arisen, the control body takes the necessary measures in a timely manner to eliminate it and thereby prevents the occurrence of a deviation. In our example, this may be the timely replenishment of the pension fund or the maintenance of backup heating equipment in working order. To fulfill these conditions, much less resources are required than to eliminate the deviation that has arisen.

B) the most efficient principle of situational control for predicting disturbances, when conditions that can cause perturbation are neutralized. Such management is carried out in our example by creating the necessary cash reserve in pension fund or storage of heating equipment in a warehouse (the so-called cold reserve), necessary to replace the failed equipment without interrupting the supply of hot water to consumers using the working backup equipment (hot reserve).

16 . Essence program-target principle state and municipal management is the implementation of management of the socio-economic development of the management object on the basis of targeted programs.

Target programs provide a set of research, production, socio-economic, organizational and other measures linked by resources, executors and implementation timeframes that ensure the effective solution of clearly formulated goals.

Essential feature program-target management is the presence of program developers and its specific executors, a strict delineation of rights and responsibilities between the customer, developer and program executor, determination of the period of work on the program and the necessary resources for its implementation.

To manage the target the program on the basis of the program-multi-target principle of management forms the matrix structure of the body of state or municipal administration.

17. Principle planning of state and municipal management provides for the need to develop forecasts, programs and plans for the socio-economic development of the relevant territorial entity, as well as work plans for the governing body.

18. Principle scientific means the need, firstly, to build and improve state and municipal government on the basis of management science; secondly, the performance of work on the search for optimal management decisions using scientific methods.

19. Essence the principle of delegation of authority consists in granting by the head of the governing body to his direct subordinates-deputies, lower-level managers of part of their rights and obligations for their independent decision of clearly defined issues, the responsibility for which remains with the head of the governing body.

When delegating full powers decentralization of management is carried out, which contributes to timely decision-making, and also creates conditions for the head of the management body to focus on solving long-term and other priority tasks. Employees to whom the head of the management body has delegated part of their rights and duties are responsible for their implementation to the head of the body.