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

1) the municipal electoral corps, as a base,

2) an administrative council that came out of his womb,

3) executive body,

4) at the top of this pyramid - an official, vested with the role of the highest representative of the municipal commune.

Starting from the 20s. this almost ubiquitous four-stage type of municipal structure was changed in a number of European countries, where, for the sake of economy and simplicity of design, they abandoned a special executive body, entrusting executive functions to the sole highest official of the municipality, or combining both administrative and executive power in a single representative body." 1

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

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

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

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

Option 3: all powers directly delegated by the population are exercised within the competence of an elected senior official (at the same time, the population retains control powers and exercises them through gatherings or by creating a special elected control body).

The application of this or that option of delegation of authority depends on the population of the municipality and the size of its territory, on the volume and complexity of local issues resolved by the population.

Practical experience allows us to identify the following main models of local self-government organization in these options: 2

Option 1

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

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

This option corresponds to the model of local self-government organization, in which the population elects both a representative body and the head of the municipality, who directly and single-handedly heads the executive bodies and has effective mechanisms for influencing the decisions of the representative body (the right of "veto"). Such a model is sometimes conventionally referred to as: "council -" strong "mayor".

Here is an approximate differentiation of competence in this model:

representative body (directly elected by the population):

Makes binding decisions, including management

municipal finance;

Regulates the management process municipal economy;

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

Education (overcoming the "veto" of the head of 2/3 votes).

Head of the municipality (directly elected by the population):

Carries out direct management of the municipal economy;

Independently forms executive bodies and appoints relevant officials;

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

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

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

Varieties of this model are determined, as a rule, by the scope of powers of the head of the municipality - primarily in his relations with the representative body.

The most typical way of forming a collegial representative body is the election of its members through single-member constituencies covering the entire territory of the municipality.

Option 2.

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

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

In the most typical cases, executive powers are exercised:

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

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

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

b) members of a collegial representative body (the “city commission/municipality” model).

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

In this case, it is also possible to have a senior official elected from among the members of the collegiate body and, as a rule, endowed only with representative functions and without any additional powers;

c) by a municipal official appointed by a representative body based on professional qualifications (the "council-manager" model).

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

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

Option 3

The third variant is most typical for small, small municipalities (usually rural ones), where the range of really resolved issues of local importance is insignificant. At the same time, all representative and executive powers directly delegated by the population are exercised in the competence of the elected senior official (headman).

The population reserves the right to decide the most fundamental and important issues local significance, as well as control powers and exercise them through meetings (gatherings) and local referendums. The head of the municipality, elected by the population, performs representative functions, manages the executive body, periodically reports on his activities to the population and may be dismissed by a decision taken by the population of the municipality at a gathering or referendum.

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

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

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

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

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

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

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

The resolution of these contradictions, in our opinion, is provided by the Federal Law "On the General Principles of the Organization of Local Self-Government in Russian Federation» scheme of two-level local self-government (clause 3 of Article 6 of the Law).

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

An equally difficult problem is the formation of a financial and economic base capable of ensuring the real independence of local governments.

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

The organizational structures of local administrations, as a rule, do not remain unchanged and are improved as practical work experience is accumulated and new tasks emerge. Here the subjective element is great, and with the advent of leadership new head administration usually begins to adjust its structure.

At present, the main shortcomings of many existing organizational structures of local administrations are as follows.

• 1. An ingrained approach to the municipality and, accordingly, to its management as a production or social production system. The main emphasis is on improving the performance of the structural divisions of the administration themselves (housing and communal, transport, healthcare, etc.), and not on the degree and quality of meeting the needs of the population in a particular municipal service. In other words, the measure of the effectiveness of the service is its own indicators, and not final result activities.
• 2. Focus on solving current problems related to the life support of the municipality, and the lack of strategic approach to management. The variety of current private tasks and goals of municipal government inevitably gives rise to contradictions between them, due primarily to limited financial resources. At the same time, each structural subdivision is aimed at solving its own tasks and seeks to obtain the maximum funds for this. In this case, the entire control system works inefficiently.
• 3. The fuzziness of the system of functional relationships between individual structural units, the duplication of functions, the lack of clear organizational procedures by which the units interact with each other. As a result, an excessive amount of work falls on the shoulders of the head of administration, who has to solve many "butt" issues.
• 4. Weak development of structural units focused on working with the population and local structures of civil society.

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

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

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

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

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

Temporary structures (commission, headquarters, working group, etc.) can be created to solve more specific problems of a long-term nature. The list of such structures changes periodically. Some are liquidated, others reappear, many exist for years. A program of work is drawn up for each structure and the necessary resources are allocated. Employees included in the temporary team are in double subordination: in administrative subordination to their line manager (vertical connection) and in functional subordination to the program manager (horizontal connection). Thus, matrix control structures arise.

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

Introduction

The modern period of development of human society has brought the understanding that a democratic, rule of law state can solve the main tasks only if there is a developed system of self-government. “Constituting one of the foundations of the constitutional system of a rule-of-law state, local self-government makes it possible to democratize the administrative apparatus, effectively resolve local issues and ensure that the interests of local communities are taken into account in the conduct of state policy, and optimally combine the interests and rights of a person and the interests of the state.”

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

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

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

In 2003 accepted the federal law“On the general principles of organizing local self-government in the Russian Federation”, federal and regional centers have begun work on the implementation of this Law.

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

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

Based on the results of work to establish the boundaries of municipalities and give them the appropriate status, the total number of municipalities in the Russian Federation as of March 1, 2009 amounted to 24,396, of which 532 are urban districts.

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

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

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

The state of scientific development of the topic. The study of the economic and legal mechanism for the implementation of the powers of local governments in the Russian Federation in different years involved as scientists, political scientists, and economists, and lawyers. The problem is borderline and is at the junction of a number of humanitarian disciplines.

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

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

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

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

Particular attention is paid to the issues of interaction between local governments and state authorities, the delimitation of powers between them in the works of S.A. Avakyan, I.V. Babicheva, O.V. Berg, P.A. Besova, V.I. Vasilyeva, S.A. Golosova, E.M. Koveshnikova, T.F. Kolkneva, V. Mateyuka, T.N. Mikheeva, R.F. Saifitdinova, M.V. Stolyarova, Yu.A. Tikhomirova, A.A. Uvarov.

Features of the implementation of municipal power in cities were studied by A. Borisov, N.I. Zakharova, V.M. Manokhin, N.P. Medvedev, V.V. Nelyubin. The work of V.N. Leksina, A.N. Shevtsov, which examines the political aspects of the reform of municipal government, gives a description of the resources, state policy to support Russian cities.

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

The methodological base of the study is based on a comprehensive methodology of systemic, institutional analysis.

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

Based on the goal, the following tasks are set:

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

2) to reveal the theoretical aspects of the organizational structure of the local government

) to analyze the organizational structure of the object of study;

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

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

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

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

The first chapter discusses the theoretical foundations and the current state of the system of local governments.

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

The third chapter suggests directions for improving the organizational structure of the Akhtuba rural settlement.

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

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

1. Local self-government: concept, basic principles and functions

1.1 The concept of local government

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

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

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

The foregoing gives grounds to assert the following:

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

The Constitution of the Russian Federation and federal legislation guarantee the right of citizens to local self-government, which means fixing the stable principles of organizing local self-government, self-organization, independence in resolving issues of local importance, not entering the system of state authorities, establishing competence primarily by law and prohibiting its limitation, the right to judicial protection of local self-government.

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

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

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

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

On the one hand, local self-government has the features of an authoritative, state institution:

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

Legally established responsibility for non-execution or improper execution of legal acts of local self-government.

The right to create municipal bodies for the protection of public order - bodies in the system of local self-government, having legally established powers to use enforcement of laws and acts of local self-government.

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

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

Issues related to the competence of local self-government may be resolved by local referendums and gatherings (meetings) of citizens.

The population of municipalities has the right to legislative initiative.

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

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

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

Thus, local self-government is an essential element of a democratic state. Hopes for the development of a democratic civil society are associated with the development of local self-government in Russia.

1.2 Basic principles and functions of local self-government

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

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

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

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

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

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

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

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

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

a) local self-government carries out its activities under its own responsibility;

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

) local self-government reflects historical and other local traditions.

The Constitution of the Russian Federation, Federal Law of the Russian Federation No. 131 “On the General Principles of Organizing Local Self-Government in the Russian Federation”, the relevant laws of the constituent entities of the Russian Federation, based on the provisions of the European Charter on Local Self-Government, establish the general principles of local self-government inherent in the entire system of local self-government in the Russian Federation.

The general principles of local self-government include:

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

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

) conformity of material and financial resources of local self-government with its powers.

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

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

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

) observance of human and civil rights and freedoms;

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

) publicity of the activities of local self-government;

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

) state guarantee of local self-government.

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

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

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

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

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

) protection of public order;

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

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

In accordance with the Federal Law of the Russian Federation "On the general principles of the organization of local self-government in the Russian Federation" (Article 14), local self-government bodies include:

representative bodies of local self-government;

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

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

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

The representative body of local self-government is an elected body of local self-government, which has the right to represent the interests of the population and make decisions on its behalf that operate on the territory of the municipality.

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

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

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

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

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

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

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

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

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

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

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

In Art. 15 of the Federal Law of the Russian Federation "On the general principles of the organization of local self-government in the Russian Federation" establishes that the following are in the exclusive jurisdiction of the representative bodies of local self-government:

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

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

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

) Establishment of local taxes and fees.

) Establishing the procedure for managing and disposing of municipal property.

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

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

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

1.3 Municipal budgets - the financial basis of local government

Each municipality has its own budget. "The local budget (the budget of the municipality) is a form of formation and spending of funds intended to ensure the tasks and functions assigned to the subjects of local government."

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

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

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

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

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

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

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

Financial planning is one of the most important functions of financial management. The preparation and coordination of financial plans is carried out by the executive bodies of local self-government, on the basis of priorities established by the legislative body of local self-government. Priorities are determined based on analysis current state and prospects for the development of the municipality. It is advisable to develop a financial plan in parallel with the budget, as this allows timely consideration and coordination of emerging adjustments. Direct approval of the budget of the municipality should be carried out by the legislative body of local self-government, representing the interests of the population. The financial plan is usually not approved by the representative body of power, but is used as a document substantiating the proposed draft budget.

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

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

With the development of local self-government, in order to increase the efficiency of activities, it became necessary to develop and use independent local budgets - approved normative act plans of financial activities for a certain period, presented in the form of an inventory of expenses and incomes, grouped according to certain criteria. Formation and execution of the local budget are carried out by local self-government bodies independently in accordance with the charter of the municipality. For independent local governments, the budget becomes from the usual estimate of income and expenses essential tool implementation of plans for the development of the municipality.

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

Representative bodies of local self-government independently carry out:

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

drawing up and reviewing draft local budgets, approving and executing local budgets, exercising control over their execution and approving reports on the execution of local budgets;

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

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

provision of financial assistance and budgetary loans from local budgets;

determination of the procedure for the implementation of municipal borrowings;

implementation of municipal borrowings and management of municipal debt.

Public authorities guarantee:

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

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

compensation for an increase in expenditures or a decrease in revenues of local budgets that have arisen as a result of the adoption of federal laws and laws of the constituent entities of the Russian Federation, the Federation, as well as other decisions of state authorities.

The formation of local budgets should be carried out by applying a single methodology, state minimum social standards, social norms, standards of minimum budget security established by public authorities. The drafting of local budgets, the approval and execution of local budgets are carried out in accordance with budget classification of the Russian Federation and the budget classification of the subject of the Russian Federation.

Control over the budgetary practice of municipalities by state authorities includes control over the adoption of the budget within the legal deadlines and compliance with the procedures established by law, control over the introduction of mandatory expenditures into the budget and control over the entry into the budget of expenditures by decision of certain state powers transferred to the authorities local government.

With absence mandatory expense in the published budget, the oversight body requires the local council to pay this expense to the budget within one month from the date of submission. Otherwise, the case may go to trial.

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

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

If the budget has not yet been adopted and published by the beginning of the financial year, then until the approval of the budget, the municipality can carry out only those expenses to which it is obliged by law, or which cannot be postponed to further solve the necessary tasks. You can continue what you started construction works and constant purchases. To cover expenses, you can levy taxes and fees at last year's rates, as well as take out loans up to one twelfth of last year's credit authority per month.

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

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

After the end of the budget year, the credit manager submits an administrative calculation for the past period to the representative body of local self-government and the audit service of the municipality. The administrative calculation is presented in a form similar to the budget, showing for each item within each part of the budget the budget forecasts and transactions for income and expenditure carried out by the credit manager. The calculation is made on the basis of administrative records maintained by the credit manager, and allows you to control the output of payment orders and receipt orders during the reporting period. The results of acts of inspections and audits are attached to the calculation. The refusal of a representative body of power to approve an administrative calculation does not lead to the automatic need for the resignation of the credit manager, unless otherwise provided by the charter of the municipality.

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

Local budget revenues

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

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

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

provision of subventions to finance certain targeted expenditures.

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

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

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

provide municipal guarantees in excess of 5% of local budget expenditures.

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

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

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

1.4 Organizational structure of local government: concept, types

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

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

Such an experience is very popular abroad but is still almost not implemented in Russia. The formation of the economic foundations of local self-government should proceed within the framework of budgetary federalism, covering the ties between the subjects that form federal states, as well as the relations of which the subject is local self-government. One of the key problems is the orientation of the budgetary system towards securing such profitable sources for municipal budgets that would ensure a stable income for the performance of the functions assigned to local government. Among other problems of great importance, it should be noted the need to determine the relationship between local government and the state, the principles of distribution of competence between them, subsidiarity and budgetary federalism. Subsidiarity is a concept within which the issues of delimitation of functions and competences between different levels of territorial administration are studied and resolved.

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

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

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

Analysis of the existing structure of local governments of various municipalities, the variety of forms of organization and implementation of local governments allows us to identify several organizational models of local governments depending on the population and size of the territory of the municipality, on the delineation of powers of representative and executive bodies, on the volume and complexity of the tasks to be solved. Each model is a combination of elements of the local self-government system - a representative body ("municipal council"), an executive body ("Administration") and a senior official ("Head of local self-government").

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

The head of local self-government is called "strong" by virtue of his authority. (Fig. 1.1) He independently forms the administration, single-handedly manages its activities; organizes the work of the Municipal Council, signs the acts adopted by the Council. Under the Law, the representative body has a certain minimum set of exclusive powers, which can be extended. In this model, the Municipal Council performs only law-making and control functions. Such a definition of functions limits the activities of representative bodies, excluding from it the administration that is carried out by the Administration under the leadership of the Head of Local Self-Government. In addition, the Head of Local Self-Government may resolve individual issues that fall under the jurisdiction of the Municipal Council. For example, in the Charter of the city of Yaroslavl, the list of powers of the city does not include the right and obligation of the representative body to establish the procedure for managing and disposing of municipal property. These powers are assigned to the competence of the mayor of the city and the mayor's office.

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

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

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

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

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

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

local government organizational structure

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

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

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

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

Based on the considered models, it is possible to build mixed models in relation to local conditions.

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

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

2.1 General characteristics of the Akhtubinsky rural settlement

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

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

The territory of a rural settlement may include, as a rule, one rural settlement or settlement with a population of more than 1,000 people (for a territory with a high population density - more than 3,000 people) and (or) several rural settlements united by a common territory with a population of less than 1000 people each (for an area with a high population density - less than 3000 people each).

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

The boundaries of a rural settlement, which includes two or more settlements, as a rule, are established taking into account the pedestrian accessibility to its administrative center and back during the working day for residents of all settlements included in it. The exceptions are territories with low population density, as well as remote and hard-to-reach areas.

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

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

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

Sredneakhtubinsky municipal area founded in 1928, located in the southwestern part of the Volga region of the Volgograd region, 38 km from the city of Volgograd. In the north, the district borders on the Bykovsky district, in the east - Leninsky, in the south - Svetloyarsky. In the west, its border runs along the Volgograd reservoir and the Volga River. It occupies an area of ​​1.96 thousand square kilometers with a population of 57.5 thousand people. Citizens of working age account for 55.3% of total strength population. The regional center is r.p. Middle Akhtuba.

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

The agro-industrial complex of the region is one of the most important sectors of the economy. There are 22 agricultural organizations, 154 peasant (farm) organizations and over 14 thousand personal subsidiary plots in the district.

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

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

Investments in fixed assets in 2009 increased by 21.5% (in comparable terms), 798.5 million rubles were disbursed.

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

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

161 stores, 3 markets, 31 enterprises operate on the consumer market Catering, 80 points of consumer services for the population.

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

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

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

In 2009, compared to 2008, the population's cash income increased by 25% and amounted to 1.3 billion rubles.

In 2008, the revenues of the consolidated budget of the Sredneakhtubinsky municipal district (including gratuitous receipts) were executed by 99.4% and amounted to 726.93 million rubles, including own tax and non-tax revenues were executed by 106.2% and amounted to 316.75 million rubles. rubles. Over 60% of the revenues of the consolidated budget of the district for 2008 was formed from income tax individuals. Expenses amounted to 692.82 million rubles.

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

Population - 57550 people;

The number of economically active population - 34803 people;

birth rate - 731 people;

Mortality - 941 people;

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

investment in fixed capital from all sources of financing per capita - 13,875 rubles;

The average per capita cash income of the population is 5596 rubles;

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

Agricultural production

Retail trade turnover per capita - 23,058 rubles;

the volume of paid services per capita - 4656 rubles;

the turnover of small enterprises per capita is 14,215 rubles.

The composition of the municipality of the Akhtubinsky rural settlement includes 4 settlements, in which a population of 1990 people permanently lives. In the summer, the population increases several times due to the population arriving in gardening associations and households used as seasonal ones.

On the territory of the Akhtubinsky rural settlement live:

participants of the Great Patriotic War - 16 people,

combatants in Afghanistan and the Caucasus - 9 people

pensioners - 304 people,

children - 393 people,

large families with minor children - 8,

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

13 trading enterprises, including: 1 cafe, 1 restaurant, 5 eateries.

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

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

8 horticultural associations;

1 KFH, agricultural production is carried out in personal subsidiary plots.

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

apartment building and 789 manor houses.

Over the past period, the main attention was paid to work with the population. During this period, the administration received 396 written and 240 oral appeals. 318 people were accepted at a personal reception. In our work, we strived to ensure that not a single appeal was left without attention. All applications and appeals were considered in a timely manner and all answers and explanations were given.

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

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

The administration keeps records of all land ownership and land use of citizens in paper form - economic accounting.

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

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

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

On February 2010, by decision of the Duma of the Akhtubinsky rural settlement, the emblem and flag of the Akhtubinsky rural settlement were approved, which were sent to the Heraldic Council for inclusion of this symbolism in the register of the Russian Federation and received approval in October.

The formation, approval, execution of the budget of a rural settlement, the exercise of the powers of local governments fully depend on financial security.

The administration of the Akhtubinsky rural settlement formed, checked and approved by the Rural Duma the Budget 2009, 2010.

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

Personal income taxes - 1 million 799 thousand.

Property taxes - 60 thousand rubles.

Land tax - 190 thousand rubles.

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

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

Gratuitous receipts - 4 million 327 thousand rubles.

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

including:

Personal income taxes - 2 million 397 thousand.

Property taxes -30 thousand rubles.

Land tax - 121 thousand rubles.

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

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

Gratuitous receipts - 1 million 589 thousand rubles.

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

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

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

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

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

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

In 2010, the administration of the Akhtubinsky rural settlement, in accordance with the legislation of the Russian Federation, provided assistance in providing certificates for social benefits for the purchase or construction of residential premises to three veterans. Currently, 9 families are on the waiting list to improve their living conditions - these are families that have the opportunity to participate in various programs.

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

Due to economic peculiarities, they operate in the most unfavorable conditions. They were most affected by the consequences of the period of "reforms". The collapse of large agricultural enterprises, a significant reduction in the level state support villages made their work very difficult. Legislators, generously rewarding them with the authority to solve existing problems, “forgot” to back them up with appropriate funding. For many of them, the possibilities of budgets do not exceed the amount of expenses for the maintenance of the administrative apparatus. Whereas today the rural settlements of the republic need hundreds of millions of rubles for the construction of roads, gas and water pipelines, housing, schools, and the development of social and industrial infrastructure.

So what hinders the growth of the taxable base and incomes of rural settlements. The experts of the district administration who are in charge of these issues named the following:

non-submission by notaries of data on the sale and purchase of land plots and households;

weak work of the tax authorities on claims work with arrears;

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

lack of a computer software package for accounting of rural residential buildings;

the establishment by the Tax Code of the Russian Federation of local tax benefits without providing compensation from the federal budget for shortfalls in local budget revenues.

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

Speaking about the problem of replenishing the budgets of rural settlements, it will be impossible to solve it until the entire system of their formation changes. The current principles of replenishing the revenue side do not work yet. Funds are deducted first to the federal budget, then to the republican and regional budgets, and practically nothing remains in the localities. Therefore, it is necessary to look for new ways to solve this old problem.

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

Reserves to replenish budgets today are available in every settlement. This is, first of all, the improvement of the use of land, forest, water and mineral resources, the improvement of interbudgetary relations between local governments of different levels, the development of agricultural and credit cooperation, the production and processing of agricultural products, and much more.

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

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

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

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

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

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

The problem of selling agricultural products grown by households and farmers still remains unresolved. It is unprofitable for consumer cooperation in the current conditions to do this. A market marketing infrastructure has not yet been created. There are practically no markets in rural settlements, there are few processing enterprises, trade and purchasing cooperatives in the field. And without guarantees of sales, the population lost incentives to transfer their household plots to the rails of market commodity production. In each rural settlement, one should strive to create a market infrastructure that could include trade-purchasing and credit cooperatives, shops, artificial insemination and slaughter stations, enterprises for the production services of households, etc.

.2 Administration of the Akhtubinsky rural settlement: structure, powers

The organizational structure is the most important factor in the activity of a local government, the form in which the process of municipal government is implemented.

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

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

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

The goals, objectives and functions of municipal government directly affect the structure of the local administration and serve as the basis for the allocation of independent units in its structure that are responsible for achieving specific goals and solving individual specific tasks. Accordingly, in order to achieve these goals, the relevant structural units are organizationally singled out or strengthened within the administration. Municipal entities that differ in the composition of the tasks to be solved and management functions, the necessary amount of management work, differ in number and internal construction executive bodies. The staff of the administration of a large urban district can have hundreds of employees and dozens of structural units, while the staff of the administration of a small rural settlement - only 5-7 employees, in the Akhtuba rural settlement the staff is 30 people.

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

Along with the above external factors it is necessary to highlight the internal factors affecting the structure of the administration of the settlement: personnel, equipment, management technology, labor organization. On the one hand, they influence the organizational structure of management, on the other hand, they themselves are determined by it. Thus, management personnel influence the management structure in terms of the redistribution of functions between departments and individual employees. But basically it is the management structure that determines the composition of positions and requirements for personal qualities workers. The introduction of information technology affects the structure of administration in terms of both reducing the number of employees of individual units and the emergence of new units ( information service). When forming the organizational structure of the administration, it is necessary to take into account both external and internal factors.

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

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

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

Both the number of employees in a separate unit and the number of administration units depend on the norm of manageability. In turn, the controllability rate depends on a number of factors Fig. 2.1

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

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

Focus on achieving goals.

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

perspective

Local self-government bodies should, while solving operational issues, simultaneously carry out work to determine the strategy, socio-economic development of the municipality. To this end, it is necessary to provide for a block of strategic management in the organizational structure, separating it from the block of operational and current management. In practice, this is achieved by the division of powers between the representative and executive bodies, as well as the creation of special units in the organizational structure of the administration that deal with the development strategy of the municipality.

Ability to develop (adaptability)

The need to develop the organizational structure is explained by the trend of constant changes in external conditions, emerging disproportions in the system of municipal government. Under these conditions, the organizational structure must be sufficiently elastic, able to adapt to the perception of corrective actions. In practice, this is achieved through periodic changes in the organizational structures of local governments, as well as through the creation of temporary target units (headquarters, commissions, committees).

Completeness

When building the organizational structure of the local administration, it must be taken into account that all stages of the implementation of management activities should be structurally provided:

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

task setting (identification of activity priorities);

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

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

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

The principle of complexity requires in the analysis of the structure to proceed primarily from the integrity of a particular function. This is especially important when the performance of the function is "divorced" by different structures or for the performance of this function it is necessary to involve several structural divisions of the administration, were as complete as possible, which is especially important for sectoral structural divisions.

Ability to develop (adaptability) Economy

Rice. 2.3 Principles of building organizational structures of local administrations

Individualization

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

economy

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

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

The powers of local governments of the Akhtubinsky rural settlement include:

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

) Creation municipal enterprises and institutions, financing of municipal institutions, formation and placement of the municipal order;

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

) organizational and logistical support for the preparation and holding of municipal elections, a local referendum, voting on the recall of a deputy, the head of the Akhtubinsky rural settlement, voting on issues of changing the boundaries of the Akhtubinsky rural settlement, the transformation of the Akhtubinsky rural settlement;

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

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

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

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

By decision of the rural Duma of the Akhtubinsky rural settlement, the population may be involved in the performance of socially significant work for the settlement (including duty) on a voluntary basis in order to resolve issues of local importance in the Akhtubinsky rural settlement.

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

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

The organization and logistical support for carrying out socially significant work is carried out by the administration of the Akhtubinsky rural settlement.

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

The vesting of local government bodies of the Akhtubinsky rural settlement with separate state powers is carried out by federal laws or the laws of the Volgograd region.

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

Financial support for certain state powers transferred to local governments is carried out only at the expense of subventions provided to the budget of the Akhtuba rural settlement from the relevant budgets.

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

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

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

2.3 Organizational structure of the Akhtuba rural population

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

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

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

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

Calculation of administration costs

Fig. 2.4 The process of forming the organizational structure of the Akhtubinsky rural settlement of the administration

The system-targeted approach in this case is that, based on the ultimate goals of managing the municipality:

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

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

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

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

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

The distribution of tasks between subdivisions of the local administration can be carried out according to several criteria:

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

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

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

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

head of Administration;

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

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

collegiate advisory bodies: collegium of administration, economic and other councils;

administration apparatus.

In terms of the above distribution of tasks and goals of activity, the structural units of the administration of the Akhtubinsky rural settlement are divided into four groups (Fig. 2.5)

Rice. 2.5 Types of structural units of the local administration

The jurisdiction of sectoral structural divisions includes issues related to the management of specific industries (areas) of municipal activity. These divisions perform the functions of customers for the performance of work and the provision of municipal services. Their main role is manifested at the stage of implementation of the goals and objectives of life support and development of the territory.

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

The creation of territorial structural units (districts in large cities, etc.) is associated with the need to bring local governments closer to the population and makes it possible to combine the centralization of the most important functions at the highest level of municipal government with an increase in efficiency in solving current issues. At the same time, it is important to prevent the fragmentation of the functions of municipal governments and the loss of advantages associated with specialization. To stimulate the initiative of territorial structural units, they may be granted autonomy within the framework of the cost estimate.

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

planning and coordination of work of all administration structures;

work with documentation (clerical work);

communication with the media, holding press conferences;

control over the execution of decisions;

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

material and technical, legal, personnel, information, financial support for the activities of the administration;

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

The chief of staff is usually equal in status to the deputy head of administration.

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

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

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

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

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

Collegium - an advisory body under the head of administration plays a special role in the work of the administration. It makes decisions on the most important issues of managing the municipality, with the exception of decisions that are within the competence of the representative body. The decision of the collegium, if necessary, issued resolutions and orders of the head of administration.

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

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

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

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

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

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

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

Constant monitoring of the existing state, established norms and relations in various areas of local life: analysis of the situation, fixation of disagreements and conflicts, organization of research.

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

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

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

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

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

The variety of current private tasks and goals of municipal government inevitably gives rise to contradictions between them, primarily due to the limited material and financial resources. Each division is aimed at solving its own problem and seeks to obtain the maximum resources for this. In this case, the entire control system often works inefficiently.

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

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

A mixture of managerial functions and direct economic activity. Many structural divisions of the administration, being legal entities, provide various paid services and earn money for their existence, i.e. essentially engaged in commercial activities. This business is risk-free, since it is conducted on the basis of municipal property, for efficient use which is not adequately supervised. For this reason, some administrations from municipal governments began to turn into financial and industrial groups by type of activity.

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

The structure of the Akhtubinsky rural settlement is shown in fig. 2.6

Rice. 2.6 Structure of the Administration of the Akhtubinsky rural settlement

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

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

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

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

) municipal electoral corps, as a base,

) an administrative council that came out of his womb,

) executive agency,

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

Starting from the 20s. this almost ubiquitous four-stage type of municipal structure was changed in a number of European countries, where, for the sake of economy and simplicity of design, they abandoned a special executive body, entrusting executive functions to the sole highest official of the municipality, or combining both administrative and executive power in a single representative body." 1

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

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

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

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

Option 3: all powers directly delegated by the population are exercised within the competence of an elected senior official (at the same time, the population retains control powers and exercises them through gatherings or by creating a special elected control body).

The application of this or that option of delegation of authority depends on the population of the municipality and the size of its territory, on the volume and complexity of local issues resolved by the population.

Practical experience allows us to identify the following main models of local self-government organization in these options: 2

Option 1

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

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

This option corresponds to the model of local self-government organization, in which the population elects both a representative body and the head of the municipality, who directly and single-handedly heads the executive bodies and has effective mechanisms for influencing the decisions of the representative body (the right of "veto"). Such a model is sometimes conventionally referred to as: "council -" strong "mayor".

Here is an approximate differentiation of competence in this model:

representative body (directly elected by the population):

makes binding decisions, including management

municipal finance;

regulates the process of managing the municipal economy;

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

education (overcoming the "veto" of the head of 2/3 votes).

Head of the municipality (directly elected by the population):

carries out direct management of the municipal economy;

independently forms executive bodies and appoints relevant officials;

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

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

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

Varieties of this model are determined, as a rule, by the scope of powers of the head of the municipality - primarily in his relations with the representative body.

The most typical way of forming a collegial representative body is the election of its members through single-member constituencies covering the entire territory of the municipality.

Option 2.

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

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

In the most typical cases, executive powers are exercised:

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

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

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

b) members of a collegial representative body (the “city commission/municipality” model).

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

In this case, it is also possible to have a senior official elected from among the members of the collegiate body and, as a rule, endowed only with representative functions and without any additional powers;

c) by a municipal official appointed by a representative body based on professional qualifications (the "council-manager" model).

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

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

Option 3

The third variant is most typical for small, small municipalities (usually rural ones), where the range of really resolved issues of local importance is insignificant. At the same time, all representative and executive powers directly delegated by the population are exercised in the competence of the elected senior official (headman).

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

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

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

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

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

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

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

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

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

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

An equally difficult problem is the formation of a financial and economic base capable of ensuring the real independence of local governments.

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

3.2 Proposals for improving the organizational structure of the Akhtuba rural settlement

There is no doubt that the need for organizational change cannot occur without some significant reason. It is easy to build something out of cubes, then break it down and build something else. And when we are talking about local self-government bodies, it is necessary to weigh everything carefully more than once and only then proceed (or not proceed) to changes. Serious organizational changes entail serious costs, both direct and indirect. Therefore, you must first predict whether the game is worth the candle.

Of course, the costs depend significantly on the scale of the changes.

The scale of organizational change is determined by the task to be solved. If we ignore the details, then in fact, the need to change the organizational structure of the governing bodies follows either from past or predicted changes in the external or internal environment, which new structure must match.

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

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

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

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

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

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

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

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

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

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

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

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

Organizational diagnostics;

Development of a new organizational structure;

Implementation of organizational changes.

At the same time, depending on the scale of changes in the organization, these steps can be performed iteratively. Let's consider in more detail each of the stages.

Organizational Diagnostics

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

As a rule, when initiating the process of organizational change, the main problems in the organizational structure that need to be addressed have already been identified, but the causes that cause them are far from always obvious. To identify the causes of problems, use the following tools:

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

Analysis of the organizational and functional model, during which conclusions are drawn about the rationality of the distribution of areas of responsibility of functions by departments and employees. In this case, as a rule, provisions on divisions are studied, job descriptions and other regulatory documentation;

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

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

Development of a new organizational structure

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

Organizational structure project;

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

Draft organizational - functional model;

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

Draft plan for organizational change.

The direct filling of these documents essentially depends on the goals of the transformations and organizational problems that need to be solved. These documents are the result of complex and painstaking analytical work of specialists. Here it is difficult to talk about some template techniques, the result of the work is determined by the task.

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

Implementation of organizational changes

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

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

Leadership willingness to change. As practice shows, for successful implementation Organizational changes in the company require the active participation of senior officials. In this case, the participation of the head of the Administration of the Sredneakhtubinsky district (Tikhonova V.A.).

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

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

Consistency in the implementation of changes. It happens that projects to improve the organizational structure of the organization are not completed for any reason: lack of resources, dissatisfaction with the staff, making “half-hearted” decisions, etc. However, in essence, this situation means the failure of the project, since the result will not be achieved. The abyss cannot be jumped over 99 percent.

Evaluation of the effectiveness of organizational changes.

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

There is another rather significant remark here. There may be any changes in the external environment of the organization that can negate all the organizational changes made.

Or, let's say, when introducing organizational changes, we suddenly find that the organization does not have such personnel and such a management team that are able to work effectively in the new conditions. And then the project, in fact, will fail.

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

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

All these factors and aspects of reforming the organizational structure are presented in Fig. 1.

Rice. 3.1. Components of the process of reforming the organizational structure

Conclusion

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

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

Despite the constitutional right of the local population to independently determine the structure of local governments, in fact it is established centrally throughout Russia.

The implementation of the powers of local governments is carried out on the principles of legality, transparency in the activities of local governments, strict consideration of the opinion of the population in the process of implementing municipal authorities, and the responsibility of local governments to the population.

In most cases, the powers of local governments are enshrined in sectoral federal laws without attributing them to the powers of a particular body.

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

representative and executive bodies function normally;

the structure of the executive and representative bodies of the rural settlement satisfies the conditions for the implementation of the tasks set;

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

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

Problems arise with regard to the financing of certain expenditure items in rural settlements.

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

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

To solve these problems it is necessary:

expand the legal framework;

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

To local governments:

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

ensure that representative bodies of municipalities are registered as legal entities for tax purposes;

create a system for informing residents of the Volgograd region about the activities of state authorities and local self-government in the implementation of the Federal Law "On the general principles of organizing local self-government in the Russian Federation";

develop and implement a program for the retraining of managerial personnel;

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

carry out attestation of the personnel of the Administration, on the basis of this, develop a program for retraining and advanced training of employees;

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

consider the issue of increasing the staff of the Administration of the rural settlement;

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

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Annex 1

Organizational structure of the Akhtubinsky rural settlement

Annex 2

Proposed organizational structure of the Akhtubinsky rural settlement

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Introduction

The system of local self-government occupies a special place in the state due to its socio-political nature - it provides a link between the state and the population. Therefore, the institution of local self-government is, on the one hand, an institution of power, on the other hand, a public institution.

In Russia, the system of organizing power in the localities had its own characteristics. historical predecessor The modern system of local self-government in the Russian Federation is considered to be the zemstvo, and then the system of local councils. Local authorities (both zemstvos and local councils) were part of the centralized system of state power. According to the Constitution of the Russian Federation of 1993, local self-government bodies became independent from state administration bodies. Exercising powers of authority, local governments have their own powers, which differ from the powers of state authorities. There are four main differences between local self-government bodies and state authorities.

1. Self-government, unlike state power, operates within the limits and on the basis of laws adopted by state authorities;

2. Self-government is possible only when a part of the public affairs in which it deals with (subjects of its jurisdiction) is strictly defined. This is its difference from the councils, where all levels of power were engaged in everything, and only the decision of the central authorities was final;

3. For the implementation of powers in the areas of jurisdiction, local self-government must have its own resources - an independent budget and municipal property;

4. This power requires mandatory representation of the population, i.e. she is elected.

In this paper, ways to improve the organizational structure of the executive body of local self-government of the administration of the Demsky district are considered.

The purpose of this work is to study the management system of municipal authorities on the example of the administration of the Demsky district and develop measures to improve it.

The tasks of the work are:

Theoretical study of the chosen problem, disclosure of the essence of the municipal government system;

Analysis of the management structure of the executive body of local self-government of the Demsky district;

Development of proposals for improving the efficiency of the organizational structure of the executive body of local self-government of the Demsky district;

The object of research work is the structure of the executive body of local government Demsky district.

The subject of research in this thesis is:

Typology of organizational structures of executive bodies of local self-government;

Compliance with the norms of manageability, optimization of the number of officials and structural units directly subordinate to the head of administration and his deputies;

The most typical (characteristic) structures that are directly subordinate to the head of administration;

The paper uses a descriptive method of analysis through which the main areas of activity of the local governments of the Demsky district are identified. As a result of the thesis work, measures were developed to improve the organizational structure of the executive body of local self-government of the Demsky district, the implementation of which will improve the activities of the local Administration.

The introduction shows the relevance of the chosen topic today, sets the goal and objectives of the work.

The first chapter of the thesis discusses theoretical questions building structures of local self-government. The questions of the choice of types of organizational structures, the principles of building the structure of local self-government bodies, the typology of governing bodies are disclosed. Theoretical aspects of elected authorities, authorities of general competence are considered.

The second chapter provides an analysis of the organizational structure of the executive body of local self-government - the Administration of the Demsky district of the urban district of the city of Ufa. The competence of the authorities in various directions, the general characteristics of the organizational structure, the analysis of the norms of manageability and the workload of the head of administration are considered. Conclusions are drawn based on the results of the analysis.

The third chapter outlines measures to improve the organizational structure of the executive body of local self-government of the Administration of the Demsky district of the Ufa urban district and a brief rationale for each of the proposed measures.

In conclusion, conclusions are drawn on the work done.

local government administration

SECTION 1. Theoretical foundations for the functioning of the local administration, as one of the local governments

1.1 LSG as an object of systematic research, options for the formation of local governments

The objective basis for applying a systematic approach is the study of local self-government as an integral system, representing a set of interrelated and interacting objects that determine the important values ​​of society.

The condition for applying a systematic approach is the compliance with the requirement that the forms of organization and methods of implementing local self-government correspond to the peculiarities of the state structure.

The unity of the system of local self-government is manifested in the fact that all elements are interconnected by relations of leadership, accountability, responsibility and control, i.e. there is a close organizational and legal relationship between the elements.

From the point of view of the public administration system, local self-government is not an element of it. At the same time, local self-government and state power are closely interconnected.

The system of local self-government is understood as a set of forms of direct expression of the will of citizens, local self-government bodies, territorial public self-government, other organizational and legal forms of local self-government, through which the population of the municipality exercises the power recognized and guaranteed by the Constitution of the Russian Federation, decides, based on their own interests, historical and other local traditions issues of local importance.

The elements of the local self-government system are direct (referendum, elections, gathering of citizens) and representative (local self-government bodies) forms of its organization and the population as a special subject.

Under the structure is understood (from the Latin. structura - structure, arrangement, order) a way of connecting elements united by a unity of purpose, interacting on the basis of the implementation of common management functions.

The structure of the institution of local self-government includes a complex of interrelated subsystems that ensure the exercise by the population of the rights to local self-government.

The LSG structure is usually hierarchical. The hierarchy is built on a linear basis. Top level hierarchy is the population - as a basic backbone element. The second level are deputies elected by the population, who form the Municipal Council. The third level is the local self-government bodies formed by the decision of the Municipal Council.

Based on the foregoing, one of the following options for the structure of local self-government bodies can be established in municipalities:

Option number 1.

The representative body of an urban and rural settlement is formed from deputies elected in municipal elections. The head of the municipality is elected in municipal elections and heads the local administration. The chairman of the representative body of the municipality is elected at its meeting.

Option number 2.

The representative body of an urban and rural settlement is formed from deputies elected in municipal elections. The head of the municipal formation is elected from the composition of the representative body and is its chairman.

The head of the local administration is appointed by the representative body of local self-government and exercises his powers on the basis of a contract signed by the head of the municipality. A candidate for the position of head of the local administration is presented by a commission appointed by the representative body of the settlement.

Option number 3.

The representative body of a rural settlement is formed from deputies elected in municipal elections. The head of the municipality is elected at the municipal elections or from the composition of the representative body, is its chairman and heads the local administration.

Option number 4.

In settlements with less than 100 voters, a representative body is not formed. The powers of a representative body are exercised by a gathering of citizens. The head of the municipality is elected by the citizens' assembly and is the head of the local administration.

Option number 5.

The representative body of a municipal district is formed from deputies elected in municipal elections. The head of the municipality is elected in municipal elections and is the head of the local administration. The chairman of the representative body is elected from among the members of the representative body.

Option number 6.

The representative body of a municipal district is formed from deputies elected in municipal elections. The head of the municipal formation is elected from the composition of the representative body and is its chairman.

The head of the local administration is appointed by the representative body of local self-government and exercises his powers on the basis of a contract signed by the head of the municipality. A candidate for the position of head of a local administration is submitted by a commission formed of representatives, one third of whose members are appointed by the representative (legislative) body of state power of the constituent entity of the Russian Federation, and two thirds by the representative body of the municipal district.

Option number 7.

The representative body of the municipal district is formed from deputies and heads of urban and rural settlements that are part of the municipal district. The head of the municipal formation is the chairman of the representative body of the municipal formation, is elected at its meeting from among the members of the representative body. The head of the local administration is appointed by the representative body of local self-government and exercises his powers on the basis of a contract signed by the head of the municipality. A candidate for the position of head of a local administration is submitted by a commission formed of representatives, one third of whose members are appointed by the representative (legislative) body of state power of the constituent entity of the Russian Federation, and two thirds by the representative body of the municipal district.

Option number 8.

The representative body of the city district is formed from deputies elected in municipal elections. The head of the municipal formation is elected from the composition of the representative body and is its chairman.

The head of the local administration is appointed by the representative body and exercises his powers on the basis of a contract signed by the head of the municipality. A candidate for the position of the head of the local administration is submitted by a commission formed from representatives, one third of whose members are appointed by the representative (legislative) body of state power of the constituent entity of the Russian Federation, and two thirds by the representative body of the city district.

Option number 9.

The representative body of the city district is formed from deputies elected in municipal elections. The head of the municipality is elected in municipal elections and heads the local administration. The chairman of the representative body of the city district is elected from among the deputies.

1.2 Organizational models of local self-government and the role of administration in them

In the structure of local self-government bodies, two components of the block can be distinguished: managerial and political.

The managerial component forms the organizational structure of the local administration. In addition to the obligation to execute the decisions of the representative body, it is endowed with separate state powers, and also has its own powers assigned to it by the charter of the municipality. The structure of the local administration depends almost entirely on the functions that it has to perform, and on the infrastructure that it manages.

The political bloc includes:

The method of electing the head of the municipality (by the population or from the representative body),

The nature of the electoral system in the election of a representative body (majoritarian, proportional, mixed or any other),

The mechanism for the formation of the local administration (by the head of the municipality, a representative body, hiring on a competitive basis, etc.),

Separation total amount powers of local self-government between various bodies. The formation of this component largely depends on the cultural and political characteristics of the territory. Despite the similarity of certain settlements, the traditions in them are significantly different, therefore, the political organization of local authorities will also be different.

Analysis of the existing structure of local governments in various municipalities, the variety of forms of organization and implementation of local government allows us to identify several organizational models of local government, depending on the political component.

Each model is a combination of elements of the local self-government system - the representative body "Municipal Council", the executive body "Administration" and the highest official "Head of Local Self-Government".

Scheme of the model "Strong Head of Local Government - Municipal Council"

The head of local self-government is called "strong" due to the fact that he independently forms the administration, single-handedly manages its activities; organizes the work of the Municipal Council, signs the acts adopted by the Council. Under the Law, the representative body has a certain minimum set of exclusive powers, which can be extended. In this model, the Municipal Council performs only law-making and control functions. Such a distribution of functions limits the activities of representative bodies, excluding from it the administration, which is carried out by the Administration under the leadership of the Head of Local Self-Government. In addition, the Head of local self-government may decide on individual issues that fall under the jurisdiction of the Municipal Council.

In another model, the Head of Local Self-Government is called "weak", since he is elected from among the deputies of the Municipal Council. Its "weakness" lies in its complete control and accountability to the Municipal Council. The head does not have the right to impose a "veto", the limits of his rights to form the administration and manage it are limited by the decisions of the Municipal Council, whose powers have been significantly expanded, and in addition to law-making and control functions, they can also include administration.

Scheme of the model "Weak head of local self-government - Municipal Council".

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

There are municipalities in which the head of local self-government is not provided. The Council has legislative and executive powers. The head of the executive branch is the manager, who is appointed by the council and can be removed by the council.

The tasks of the manager are the formation of the administration, the management of the daily work of the administration, the development of the budget.

Scheme of the model "Municipal Council - Head of Administration (manager)".

The next model is based on the election of a number of local government officials and a combination of representative and executive functions.

Scheme of the model "City Commission - head of local self-government"

At the same time, not deputies of the representative body are elected, but heads of bodies and structural divisions of the local administration. The powers of the representative body are exercised by the commission, which includes all elected officials. Decisions are made collectively by deputies. Each deputy heads a department of administrative management. The head of local self-government is elected by deputies from among its members and has chairmanship and representative powers and purely organizational functions within the commission.

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

Based on the considered models, it is possible to build mixed models in relation to local conditions.

The impossibility of building a unified version is understandable from the point of view of democracy and the historical diversity of economic conditions in Russia. However, the subjects of the Federation, choosing different models of local self-government, do not provide uniformity even on their own territory. Excessive use of various models of self-government without due regard for objective conditions reduces its effectiveness and creates legal confusion. Mannapov R.G., Ryabov V.M. The modern mechanism of municipal government. - Samara: Samara Press House, 2005. - S. 58-61.

1.3 Elements of the structure of local governments

The representative body of the municipality is a collegiate body of local self-government that represents the interests of the population of the municipality and has the exclusive competence to make a number of decisions on its behalf.

The number of deputies of the representative body of the intracity territory of the city of federal significance is determined by the charter of the municipality and cannot be less than 10 people.

The organization of the activities of the representative body of the municipal formation in accordance with the charter of the municipal formation is carried out by the head of the municipal formation, and if the specified official is the head of the local administration, by the chairman of the representative body of the municipal formation, elected by this body from among its members.

The head of the municipality is the highest official of the municipality and is endowed by the charter of the municipality in accordance with the Federal Law "On the General Principles of the Organization of Local Self-Government in the Russian Federation" with his own powers to resolve issues of local importance.

The head of the municipality is controlled and accountable to the population and the representative body of the municipality.

Local administration - is the executive and administrative body of the municipality. (to be discussed below).

The supervisory body of the municipality (chamber of control and accounts, audit commission, and others) is formed to control the execution of the local budget, compliance with the established procedure for the preparation and consideration of the draft local budget, a report on its implementation, as well as to monitor compliance with the established procedure for managing and management of municipal property.

The election commission of a municipal formation organizes the preparation and holding of municipal elections, a local referendum, voting on the recall of a deputy, a member of an elected body of local self-government, an elected official of local self-government, voting on issues of changing the boundaries of a municipal formation, transformation of a municipal formation. Voronin A.G. Fundamentals of municipal management. / Voronin A.G., Lapin V.A., Shirokov A.N. - M., 1997. - From 182-183.

1.4 Administration of the municipality

As mentioned above, the local administration is the executive and administrative body of the municipality. Different dictionaries interpret the meaning of the word "administration" in different ways, for example:

	Encyclopedic Dictionary "Constitution of the Russian Federation" In the constitutional law of Russia, the name of the executive authority of such subjects of the federation as territories, regions, autonomous regions, autonomous districts, cities of republican significance. The Decree of the President of the Russian Federation “On the Basic Principles of the Organization of State Power in the Subjects of the Russian Federation” dated October 22, 1993, which approved the relevant Regulations, used the term “administration (government) of the subject of the federation”. In many subjects of the federation (for example, Moscow), administrations have been renamed governments or given other names. In accordance with the current Constitution, the subjects of the federation listed above, adopting their statutes, themselves establish a system of their executive bodies within the framework of the general principles of organization of representative and executive bodies of power established by federal law(Article 77). The composition of the administration (government) is formed by the head of the administration (government). The administration has fairly broad powers, it interacts with the representative (legislative) body of the subject of the federation. The Constitution of the Russian Federation of 1993 does not use the term "administration" in relation to the subjects of the federation.
	Big Law Dictionary ADMINISTRATION (from lat. administ-ratio - management) - 1) in a broad sense, all the activities of the state (its executive and administrative bodies) for management; 2) in the Russian Federation, the most common official name of executive authorities at the level of the territory, region, autonomous region, autonomous district, district, city; 3) in the USA and some other presidential republics, the name of the cabinet under the head of state.

Modern Economic Dictionary

ADMINISTRATION (from lat. administratio - management, leadership) - 1) management of a company, enterprise, organization, management apparatus; circle of persons authorized to carry out operational management, act as legal entity, officially represent the organization, institution. It is customary to refer to the administration of an enterprise or company as the head of the company (president), his deputies (vice-presidents), executive directors, chief accountant, leading (top) managers. Directors (presidents) of the company, top managers of the company are hired by the founders or appointed from among themselves, other administrators are invited to work by already appointed directors. On industrial enterprises administration also includes the management of workshops, sections (administrative and managerial personnel). There are functions performed by the administration of the company, and the duties of the founders, owners of the company: the full responsibility for management decisions and their results lies with the administration, however, the owners, founders pay for the debts of the company, formed due to errors of administrators, managers; 2) in the broad sense of the word: executive and administrative bodies of the state, including at the level of territories.

However, all definitions are similar in one thing, that the administration is a managerial and administrative body.

In accordance with the Federal Law, the local administration is vested with the authority to resolve issues of local importance and state powers transferred to the municipality. The obligatory presence of a local administration is stipulated by the Federal Law. The presence of a local administration should also be provided for by the charter of the municipality. The statute should also fix the competence of the local administration.

Part 8 of Article 37 of the Federal Law determines that the structure of the local administration is approved by the representative body of the municipality on the proposal of the head of the local administration.

The head of the local administration directs its work on the principles of unity of command. This is precisely what the executive body of the municipality fundamentally differs from the executive bodies of state power, which, according to general rule must make their decisions collectively. The general rule provided for by the Federal Law establishes that the head of the local administration is the head of the municipality elected by the population. But there is an exception to this rule, according to which the head of the local administration can be appointed under a contract. This appointment is carried out by the representative body of the municipality on a competitive basis, while the term of office of the appointed head of administration is established by the charter of the municipality. Based on the results of the competition, a contract is signed with the head of the local administration.

Competition for the position of the head of the local administration is held in the manner prescribed by the representative body of the municipality. It should reflect the following information:

1) the duration of the competition (date, time and place of the meeting of the competition commission)

2) a draft contract to be concluded with the head of the local administration;

3) the conditions of the competition, including information about the persons who are admitted to it;

4) information on the composition of the tender committee;

5) requirements for a person who is entitled to hold such a position (age, education, work experience, other information that is established by regulatory legal acts, including the Federal Law "On the Fundamentals of Municipal Service in the Russian Federation" and the law of the constituent entity of the Russian Federation governing the issues of municipal service).

The competitive commission is formed by the representative body of the settlement. In an urban district or municipal district, two thirds of the composition of the competition commission are appointed by the representative body of the relevant municipality, and one third by the legislative body of the subject of the Russian Federation on the proposal of the highest official of this subject.

The draft contract is approved by the representative body of the settlement, and for urban districts and municipal districts - by the representative body in terms of the exercise of powers to resolve issues of local importance, and by the law of the subject of the Russian Federation - in terms of state powers transferred to the bodies of the municipality.

The federal law determined that the charter of the municipal formation for the settlement, the charter of the municipal district and the law of the subject of the Russian Federation may establish additional requirements for candidates for the position of head of the local administration. When preparing a draft contract, it is also necessary to be guided by the requirements of Articles 57 and 59 of the Labor Code of the Russian Federation, which determine the essential terms of the contract.

After passing the competition, the representative body of the municipality must appoint the head of the local administration from among the persons represented by the competition commission, and the head of the municipality is obliged to conclude a contract with such a person. When considering part 6 of Article 37 of the Federal Law, the question arises: one or more persons can be nominated by the competition commission based on the results of the competition for appointment to the position of head of the local administration. A literal reading of this part suggests that the commission can and must propose to the representative body of the municipality at least two candidates for appointment, which selects the head of administration from the candidates submitted by the competition commission. The head of the municipality concludes a contract with an already appointed person.

The head of the local administration is subject to all the restrictions that are established for municipal employees. The head of the local administration is accountable to the head of the municipality, the representative body of the municipality.

The powers of the head of a local administration may be terminated not only in connection with the expiration of the term of office, but also ahead of schedule, similar to what happens with the early termination of the powers of the head of a municipality. In addition, powers may be prematurely terminated at the initiative of the representative body of the municipality or the highest official of the constituent entity of the Russian Federation in cases where the head of the local administration violates the terms of the contract. For its part, this contract can be terminated by the head of the local administration himself, if the terms of the contract are violated by the bodies of the municipality or state authorities of the subject of the Russian Federation.

When preparing the structure of the local administration, it is necessary to proceed from the tasks that the administration should solve and which should be contained in the charter of the municipality, taking into account the possibility of forming sectoral (functional) and territorial bodies of the local administration.

Heads of structural subdivisions of the local administration have the right to issue their own legal acts in the form of orders. True, for this it is necessary that the powers of these leaders be recorded in the charter of the municipality.

The main powers of the local administration are of an executive nature, as they relate to almost all issues of the life of the municipality, including budget execution, the creation of municipal enterprises and institutions, participation in the creation of business entities, and the organization of executive work to address issues of local importance. At the same time, it must be borne in mind that the administration is not obliged to carry out all the work on solving issues of local importance by itself. A significant part of it can be performed by organizations created in the form of municipal enterprises or institutions, part of the work can be carried out on the basis of civil law contracts concluded by the head of the local administration with commercial organizations. For example, no municipality, with rare exceptions, will solve the issues of organizing energy supply without concluding such an agreement on its own.

The local administration independently plans the organization of its activities, which is formalized by legal acts of the head of the local administration.

It is these provisions that make the local administration one of the most important bodies of local self-government, despite the fact that it is the third level of LSG bodies.

However, let's return to the topic of the graduation project, which sounds like "Optimization of the organizational structure of the local government on the example of the Administration of the Demsky district." Consequently, administrations can be different: urban, rural, district. What is their difference. First, you need to find out what is the difference between urban and rural settlements.

From the point of view of the author of the course project, there is no fundamental difference between urban and rural settlements. The only difference is in the composition of the settlements that will be included in the settlement. An urban settlement may include rural settlements and one city or urban-type settlement, while a rural settlement may include only rural settlements.

The local self-government bodies of settlements are independent in resolving issues within their competence and are not subordinate to the local self-government bodies of the district. In this regard, the municipal district cannot establish mandatory regulations for settlements. All their relationships should be built on the basis of agreements.
The key point in this matter is a clear delimitation of the range of issues to be resolved at the district level and at the level of urban and rural settlements. According to the plan of the federal legislator, these issues should not intersect, however, in practice this turned out to be difficult to implement.

At the same time, in connection with the delimitation of powers, each type of municipality has its own exhaustive list of powers; municipalities of the first level are not entitled to resolve issues within the competence of settlements, unless they are transferred to it by the settlement by agreement.

Based on the foregoing, it becomes clear that the structure of the administration of urban and rural settlements differs depending on the amount of authority vested in them and the composition of each municipality. That is why, as we will see below, the structure of the administration of urban and rural settlements is similar. The difference lies in the status of the divisions. If there are departments in city administrations, then in rural administrations there are mainly sectors for solving various issues.

Section 2. Analysis of the organizational structure of the local government on the example of the administration of the Demsky district of the urban district of the city of Ufa

2.1 general characteristics organizations

According to the Charter of the urban district, the city of Ufa, the urban district of the city of Ufa of the Republic of Bashkortostan (hereinafter referred to as the urban district) is a municipal entity whose local governments exercise powers by decision established by the Federal Law "On the General Principles of Organizing Local Self-Government in the Russian Federation" (hereinafter referred to as the Federal Law) issues of local significance of the settlement and issues of local significance of the urban district, and may also exercise certain state powers transferred to local governments by federal laws and laws of the Republic of Bashkortostan. The urban district is divided into administrative districts: Demsky, Kalininsky, Kirovsky, Leninsky, Oktyabrsky, Ordzhonikidzevsky, Sovietsky.

The structure of local governments is:

* the representative body of local self-government, called the Council;

* the head of the city district, called the chairman of the Council;

* administration of the urban district (executive and administrative body of the urban district), referred to as the Administration;

* the control and accounting body of the city district, called Audit committee urban district.

Council of the city district of Ufa:

may exercise its powers in the event of election of at least two thirds of the established number of deputies of the Council.

The meeting of the Council is considered competent if more than 50 percent of the number of elected deputies are present at it. Council meetings are held at least once every three months.

The newly elected Council meets for the first meeting no later than on the fifteenth day from the date of election of the Council in the competent composition. If the day of the first meeting of the Council coincides with a non-working holiday or with a day off rescheduled when a weekend and a non-working day coincide holidays, the first meeting of the Board is held on the following business day.

The council consists of 36 deputies.

18 deputies of the Council are elected in single-mandate electoral districts (one electoral district - one deputy), formed on the basis of the average representation of voters per single-mandate electoral district. Elections of deputies of the Council in single-mandate electoral districts are carried out on the basis of a majoritarian system of relative majority.

18 deputies of the Council are elected from a single city constituency. The list of candidates must consist of eighteen territorial groups of candidates corresponding to the territories of single-mandate electoral districts formed in accordance with paragraph 2 of this clause. The mandates of deputies elected in a single city constituency are distributed in accordance with the Code of the Republic of Bashkortostan on elections between lists of candidates nominated by political parties (their regional branches or other structural divisions), in proportion to the number of votes received by each of the lists of candidates.

The Council has the rights of a legal entity.

The term of office of the Council is 4 years.

The Council is accountable and controlled directly by the population of the urban district.

The head of the Administration is a person:

appointed to the position of the head of the Administration under a contract concluded based on the results of a competition for filling the specified position. The term of office of the head of the Administration is limited to the period of exercising the powers of the Council of the corresponding convocation (until the day the Council of the new convocation begins its work), but cannot be less than two years.

The terms of the contract for the head of the Administration are approved by the Council in the part related to the exercise of powers to resolve issues of local importance, and the law of the Republic of Bashkortostan - in the part related to the exercise of certain state powers transferred to local governments by federal laws and laws of the Republic of Bashkortostan.

The following additional requirements are imposed on the candidate for the position of the head of the Administration:

the presence of citizenship of the Russian Federation;

availability of higher professional education;

work experience in the position of head, deputy head of the organization, government agency, a local self-government body, the head of their structural subdivision for at least five years or at least three years of experience in municipal or public service;

reaching the age of at least 25 years;

knowledge of the Constitution of the Russian Federation, federal laws, decrees of the President of the Russian Federation, resolutions of the Government of the Russian Federation, the Constitution of the Republic of Bashkortostan, laws and other regulatory legal acts of the Republic of Bashkortostan, this Charter and other municipal legal acts in terms of the powers exercised by the head of the Administration;

the state of health, allowing to exercise the powers of the head of the Administration, determined by the medical commission;

the absence of a criminal record or punishment that excludes the possibility of performing official duties;

full legal capacity of a citizen;

lack of close relationship or property (parents, spouses, children, brothers, sisters, as well as parents, children, brothers and sisters of spouses) with persons holding a municipal position, or municipal employees replacing a position associated with direct subordination or control of one of them to another.

The procedure for holding a competition for filling the position of the head of the Administration is established by the Council. The procedure for holding a tender should provide for the publication of the conditions of the tender, information about the date, time and place of its holding, the draft contract no later than 20 days before the day of the tender.

The total number of members of the competition commission in the municipality is established by the Council.

When forming a competition commission in the city district, two thirds of its members are appointed by the Council, and one third - by the State Assembly - the Kurultai of the Republic of Bashkortostan on the proposal of the President of the Republic of Bashkortostan.

A person is appointed to the position of the head of the Administration by the Council from among the candidates presented by the competition commission, based on the results of the competition, by a majority of votes from the established number of deputies of the Council.

The contract with the head of the Administration is concluded by the Chairman of the Council.

According to the Regulations on the Administration of the Demsky District of the Urban District of Ufa, the Administration of the Demsky District of the Urban District of the City of Ufa of the Republic of Bashkortostan (hereinafter referred to as the District Administration) is a territorial body of the Administration of the Urban District of the City of Ufa of the Republic of Bashkortostan (hereinafter referred to as the Administration of Ufa), exercising executive and administrative powers by decision issues of local importance within the competence established by the head of the administration of the Ufa City District on the territory of the Demsky District of Ufa.

The district administration is included in the structure of the administration of the city of Ufa, which is approved by the Council of the City District of the city of Ufa of the Republic of Bashkortostan on the proposal of the head of the administration of the city of Ufa. The district administration is created, reorganized and liquidated by the decision of the Council of the City District of Ufa in accordance with the law.

The district administration in its activities is guided by
The Constitution of the Russian Federation, the Constitution of the Republic of Bashkortostan, laws and other regulatory legal acts of the Russian Federation and the Republic of Bashkortostan, the Charter of the Ufa City District of the Republic of Bashkortostan (hereinafter the Charter of the city of Ufa), municipal legal acts, as well as these Regulations.

The powers and organization of the activities of the district administration are determined by the Charter of the city of Ufa and these Regulations.

The district administration is headed by the head, who is appointed and dismissed by the head of the administration of Ufa on the terms of a fixed-term employment contract.

During the absence of the head of the district administration (vacation, business trip, illness, etc.), his duties are performed by the first deputy or one of the deputies in accordance with the distribution of duties.

Appointment and dismissal
deputy heads of the district administration, heads of divisions of the district administration are made by the head of the district administration in agreement with one of the deputy heads of the administration of Ufa for supervised issues and the deputy head of the administration of Ufa for personnel in the manner established by the administration of Ufa;

Recruitment and dismissal of other employees of the district administration is carried out by the head of the district administration independently;

The district administration is a legal entity, has an independent balance sheet, a personal account of the recipient of funds, a current account for accounting for extra-budgetary funds in bank institutions, an official seal depicting the coat of arms of the Republic of Bashkortostan and other seals, stamps, letterheads with its name.

The district administration may exercise rights and bear obligations, act as a plaintiff and defendant in court without a power of attorney in accordance with the legislation of the Russian Federation and the Republic of Bashkortostan.

The district administration does not have the right to establish other legal entities.

The district administration is given municipal property on the right of operational management.

The activities of the district administration are financed from the budget of the urban district of Ufa in accordance with the approved budget.

The structure and maximum number of employees of the district administration is approved by the head of the administration of Ufa.

Employees of the district administration replace municipal positions of the municipal service in accordance with the Law of the Republic of Bashkortostan "On the Register of Elected municipal positions and municipal positions of the municipal service in the Republic of Bashkortostan” and are municipal employees.

Certification and qualification exams for municipal employees holding the positions of deputy heads of the district administration and heads of divisions of the district administration are held in the city attestation commission. The rest of the employees are in the attestation commission created by the head of the district administration with the obligatory participation of a representative of the city attestation commission

Head of the district administration:

On the basis of unity of command, manages the activities of the district administration;

organizes and controls, within its competence, the implementation of decisions of the Council of the City District of Ufa and the head of the administration of the city of Ufa on the territory of the district by all enterprises, institutions, organizations, regardless of their organizational - legal form as well as citizens and officials;

acts without a power of attorney on behalf of the district administration, represents its interests in all organizations;

ensures the targeted and rational spending of the Ufa budget funds allocated to the district administration for the fulfillment of the tasks and functions assigned to it, the implementation of the established powers;

distributes duties between his deputies, heads of departments and employees of the district administration and establishes the degree of their responsibility for the assigned field of activity;

resolves issues of hiring and dismissal of employees of the district administration, concludes labor contracts with them;

applies incentives and disciplinary measures to employees of the district administration in accordance with labor legislation and legislation on municipal service;

develops the structure, estimate of the district administration, submits them for approval by the head of the administration of Ufa. Develops and approves staffing, regulations for the work of the district administration in agreement with the head of the administration of Ufa,

approves regulations on divisions of the administration and job descriptions of employees of the district administration;

considers petitions and, in accordance with the established procedure, makes proposals to the head of the administration of Ufa on awarding citizens and organizations with state and other awards and conferring honorary titles on them;

ensures timely consideration of individual and collective proposals, applications and complaints of citizens, legal entities;

at least 2 times a year submits a report on its work to the head of the administration of Ufa;

issues resolutions and orders of the head of the district administration, signs official documentation within its competence;

opens and closes personal and other accounts of the district administration, performs operations, signs financial documents;

exercises other powers in accordance with the legislation, municipal legal acts.

Official name:

Full: Administration of the Demsky District of the Urban District of the City of Ufa of the Republic of Bashkortostan.

Abbreviated: Administration of the Demsky district of Ufa

Location: Russian Federation, Republic of Bashkortostan, Ufa city district.

Postal address: 450024 Ufa, st. Ukhtomskogo, 3

The structure of the Administration of the Demsky district of the urban district of the city of Ufa:

2.2 Diagnosis of the organizational structure of the administration of the Demsky district

According to the above, the organizational structure of the administration of the Demsky district refers to the linear-functional (traditional) organization of the organization - this is the most common approach (see Fig.). In this case linear control supported by special functional support services,

Rice. Linear functional organizational structure of management

created on a resource basis (personnel, finance, etc.).

Among the shortcomings of a linear-functional construction are disagreements between line and functional employees. Line employees often oppose the work of functional experts; disagreements that may arise may result in a misinterpretation of the information received from experts, which is transmitted by line employees to direct executors.

Many textbooks call a linear-functional construction functional. This is due to the fact that the functional construction of the organization in its purest form is a rather rare phenomenon.

The basis of linear-functional structures, which belong to the hierarchical type, is the so-called “mine” principle of construction and specialization management process by functional subsystems of the organization (marketing, production, research and development, finance, personnel, etc.). For each of them, a hierarchy of services (“mine”) is formed, penetrating the entire organization from top to bottom (Fig.).

Many years of experience in the use of linear-functional management structures have shown that they are most effective where the management apparatus performs routine, frequently recurring and rarely changing tasks and functions. Their advantages are manifested in the management of organizations with a mass or large-scale type of production, as well as in the costly type of economic mechanism, when production is the least susceptible to progress in the field of science and technology. With such an organization of production management, an enterprise can function successfully only when changes in all structural divisions occur evenly. But since this is not the case in real conditions, there is an inadequacy of the response of the control system to the requirements of the external environment.

The situation is aggravated by the loss of flexibility in the relationship between the employees of the administrative apparatus due to the application of formal rules and procedures. As a result, the transfer of information is hampered and slowed down, which cannot but affect the speed and timeliness of the adoption management decisions. The need to coordinate the actions of different functional services dramatically increases the amount of work of the head of the organization and his deputies, i.e. top echelon of management.

The shortcomings of the linear-functional management structure are exacerbated in practice due to such business conditions under which there is a mismatch between the responsibilities and powers of managers at different levels and departments; manageability standards are exceeded, especially among directors and their deputies; irrational information flows are formed; excessively centralized operational management of production; the specifics of the work of various departments are not taken into account; there are no regulatory and regulatory documents necessary for this type of structure.

Section 3. Improving the organizational structure of the local government on the example of the administration of the Demsky district

The main directions for eliminating the shortcomings described above can be as follows:

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

2. Creation in the structure of the administration of large organizational and administrative blocks, the leaders of which are fully responsible for the implementation of municipal policy in the relevant areas, for the achievement of its ultimate goals. Such blocks can be: a block of economics and finance, a block of municipal real estate management, a block of urban economy, a block of social policy, a block of public security, etc. These issues have been partly addressed in previous chapters. The creation of large blocs can significantly reduce the burden on the head of administration to address current issues, allowing him to devote most of his time and energy to the tasks of strategic management.

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

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

...

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

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

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

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

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

In view of the foregoing, the reorganization of municipal government structures is a complex and complex task.

Like any other organization, the local administration is a social system. A social organization (unlike a professional one) is not development-oriented; its main criteria are stability and immutability. Any attempts to change the state of social organization are perceived as threats to existence and, if possible, are rejected. Innovation calls in social systems a certain shift in balance and consequences that cannot always be foreseen. Therefore, special methods for activating innovative processes are required.

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

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

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

2. Creation in the structure of the administration of large organizational and administrative blocks, the leaders of which are fully responsible for the implementation of municipal policy in the relevant areas, the achievement of its ultimate goals. These can be blocks of economics and finance, municipal real estate management, urban economy, social policy, public security, etc. These issues have been partly addressed in previous chapters. The creation of large blocs can significantly reduce the burden on the head of administration in dealing with current issues, allowing him to devote most of his time and energy to the problems of strategic management.

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

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

development of a model and organizational project of reorganization;

development of the regulatory framework for the activities of the local government;

development of a package of regulations for various areas municipal activities;

development of regulations on the main organizational and administrative blocks;

description of organizational procedures and functional links of the entire space of interaction between various management structures, main jobs and preparation of job descriptions;

retraining and advanced training of employees of the administration;

preparation of a reserve of personnel for municipal government.

Questions for self-control

1. What factors influence the formation of the organizational structure of the local administration?

2. How is the distribution of tasks and functions between the structural units of the local administration?

3. What types of organizational management structures are used in municipal government?

4. What are the basic principles for building the organizational structure of the administration?

5. What stages does the process of forming the organizational structure of the administration include?

6. What are the main types of structural units of the local administration?

7. What are the main directions for improving the organizational structures of local administrations?

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

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

The formation of a rational organizational structure of local self-government bodies is a necessary but not sufficient condition for their effective work. Equally important is the organization of the activities of municipal authorities, embodied in plans, regulations, instructions, and organizational procedures. Any model of the management structure must be supported by a system of functional links between structural links.

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

The elimination of these shortcomings requires a clear organization, regulation and planning of all aspects of the activities of the municipal government and its structural divisions.