The main disadvantages of existing linear-functional structures municipal government connected 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. Blending managerial functions and direct economic activity. Many structural divisions of administrations, being legal entities, provide various paid services and earn the means for their existence, i.e. actually doing 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 the contradictions within the most innovative activity - between radical and improving its types are even more important. 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 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 of large organizational and administrative blocks in the structure of the administration, 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 effective system municipal government, reorganization of 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 of municipal activity;

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 the divisions of administration and job descriptions workers do not always give a clear idea of ​​the scope of the functions they perform, 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.

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. 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 Russian local self-government model. 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 adopted the Federal Law "On general principles organizations of 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, promote sustainable economic growth 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 existing system of legal regulation of the 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 was carried out by political scientists, 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, " fundamental problem the system of political administration becomes the ratio of centralization and decentralization”, 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 power, 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.

AT last years also published many monographs and articles on certain economic aspects of local self-government reform (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.

Graduate work consists of an introduction, three chapters, a conclusion and a list of references and references.

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 government controlled 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 by the population of issues of local importance, 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 participation 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 Organization of 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 the rule of law in their daily work, as well as to enforce 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, as well as 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 education and spending Money designed to ensure the tasks and functions assigned to the subjects of local self-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 for the activities of state authorities and local governments in the field of economic and social development of the respective territories, local budgets are the most numerous. Being the lower link of this system, they, figuratively speaking, represent its foundation, on the strengthening of which the strength and reliability of the entire system depends. 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 timeliness of payment of wages, the availability of electricity, water and heat in houses, i.e., in fact, all issues of life support for 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 management finances, control and audit bodies are needed to verify the expenditure of budgetary funds by the relevant budgetary bodies, as well as the reliability and accuracy of the data provided by the financial planning bodies.

Financial planning is one of the most important functions of financial management. The preparation and 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 on the basis of an analysis of the 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. On the stage advanced planning the main strategic directions and development priorities are determined. At the same time, long-term plans should be adjusted annually in accordance with the changes that have occurred.

The most important element of the financial management of local governments is the budget. The need to draw up local budgets is due to the presence of their own subjects of jurisdiction, requiring the implementation of economic activities. If local authorities were simply representatives of higher authorities, independent budgeting would not be necessary. Such authorities would work within the budget approved by a higher authority for certain needs, however, 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 - plans for financial activities approved by a regulatory act for a certain period, presented in the form of an inventory of expenses and incomes, grouped according to certain criteria. 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 directing to local budgets revenues from the use of municipal property, local taxes and fees, and other revenues of local budgets;

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

providing financial assistance and budget 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 dispose of the free balances of local budget funds formed at the end of the financial year as a result of an increase in revenues 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.

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

In the absence of a mandatory expenditure in the published budget, the supervisory authority requires the local council to pay this expenditure 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 items 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 the construction work started earlier and ongoing 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 amendments 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. Budget execution control by the prosecutor's office is subject to the principle of legality in relation to the municipality's own expenses (control of the expediency of decisions in the course of budget execution within the limits of local self-government bodies' own powers 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 for control over 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, the 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 in 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 jointly solve common socio-economic problems, becomes relevant. This can contribute to a conflict-free solution of many critical tasks taking 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. Formation economic fundamentals local self-government should proceed within the framework of budgetary federalism, covering the ties between the constituent entities of 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 revenue sources for municipal budgets that would ensure a stable income for the performance of the functions assigned to local self-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 share 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 local taxation system 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.

An analysis of the existing structure of local self-government bodies of various municipalities, the variety of forms of organization and implementation of local self-government allows us to distinguish several organizational models of local self-government 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 powers. (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. According to the law, the representative body has a certain minimum set exclusive powers that 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 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 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 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. Excessive use of various models of self-government without proper consideration of 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 walking distance 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

The Sredneakhtubinsky municipal district was founded in 1928 and is located in the southwestern part of the Trans-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 make up 55.3% of the total 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.

The production of agricultural products 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. In 2008, the volume of shipped goods of own production, performed works and services by own forces in manufacturing industries in actual prices amounted to 496 million rubles, which is 5.5% higher than in 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 capital 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 preschool institutions, 25 libraries, 23 club-type institutions, 2 museums and 70 sports facilities.

There are 161 shops, 3 markets, 31 catering establishments, 80 public service points in the consumer market.

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 cash income population 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 at the expense of personal income tax. Expenses amounted to 692.82 million rubles.

The main socio-economic indicators of the development of the Sredneakhtubinsky municipal district 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: preparation for organizing and holding elections of local government bodies of the Sredneakhtubinsky municipal district, to events related to the celebration of the 65th anniversary of the Victory in the Great Patriotic War, preparation for the "All-Russian population census of 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 funds of the local budget 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 housing for 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 features, they operate in the most adverse 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 of state support for the countryside greatly complicated their work. 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, improving the use of land, forest, water and mineral resources, improving interbudgetary relations between local governments different levels, development of agricultural and credit cooperation, 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 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 income tax from individuals.

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 on the ground. 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

Organizational structure - the most important factor activities of the 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 required volume managerial work, differ in the number and internal structure of the 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 is 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 individual divisions, and the emergence of new subdivisions ( 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. Solution to this challenging task 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 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 by periodically making changes to the organizational structures of local governments, as well as by creating 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” into 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. Cost-effectiveness can be achieved through various measures, incl. for a set of positions ( system administrator, information technology specialist, etc.), whose functions include the 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 of municipal enterprises and institutions, financing of municipal institutions, formation and placement of a municipal order;

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

) establishment of a print 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 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 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 the given 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 large 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);

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

administration apparatus.

From the point of view 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 to resolve 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: a general department (working with documentation), a 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, own accounting, a control apparatus etc.

The head of the 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, departments, 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, while the functions of sectoral divisions should be combined first of all. However, the association within the same 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 the 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 such an 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 employees 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 connection) and in functional subordination to the program manager (horizontal connection).

In the municipal management system, 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 decision-making rules, 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 unit 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 technical specifications for programs and projects, their analytical and legal support, expertise 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., 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 solve 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 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.

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, municipalities various countries, with few exceptions, share one common 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." one

Let us consider exemplary models of the organization of local self-government, which can be used as basic ones in determining the structure of local self-government bodies in each particular municipality, taking into account 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 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 one or another option of delegation of authority depends on the population of the municipality and the size of its territory, on the volume and complexity of issues of local importance 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 the presence of 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 big variety specific models of the organization of local self-government according to option 2, which differ primarily in the mechanism for the implementation of 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 the management of 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 (as a rule, 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, the treasurer, sheriff, etc. can be elected), or periodically formed acting body(conference) exercising control powers. List and present all modern variants structural organization local self-government bodies is hardly possible, 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 a municipality should 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 the implementation of local self-government, the implementation of the economic and social rights 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 executive state power.

The disadvantage of the first position is the actual conservation and even strengthening of the trend of concentration in the regional center of all more or less significant economic and social resources - the situation that has led to the last two decades 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 arise without some significant reason. It is easy to build something out of cubes, then break it down and build something else. And when it comes to 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 the new structure must comply with.

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 of the organization. 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 the general requirements for the organizational structure, then there is no doubt that in any case it should be:

transparent, that is, to be understandable and obvious to employees, citizens 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, the “inflation of the apparatus” and the strengthening of bureaucratic processes are simply unacceptable.

As for the special requirements for the organizational structure, they, as mentioned above, are determined by the goals of organizational 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 indicator on average in the country, for example, in the city of Volzhsky, the average age of the employees of the Administration is 36-48 years. All employees are required to undergo training at the labor inspectorate on labor law issues, also pass a qualification exam on the fire minimum, study the acts of the Civil Defense and the Ministry of Emergencies. Employees work under a fixed-term employment contract, with a 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 the identification and formalization of 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. At the same time, as a rule, provisions on divisions, job descriptions and other regulatory documentation are studied;

Personnel assessment, during which the key competencies of employees and their compliance with the 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 the successful implementation of organizational changes in the company, the active participation of senior officials is necessary. 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 the positive aspects of organizational changes, as well as to nip in the bud the 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 the practical solution of such a problem can face significant difficulties. These difficulties lie primarily in the fact that the economic effect of the transformation of the organizational structure is often formed not directly, but indirectly.

There is 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. one.

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-powerful) and public (self-administrative) 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 the efficient operation of government bodies.

At the same time, the level of legal security is insufficient, there are many problems with the implementation of the Federal Law of the Russian Federation No. 131-FZ 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 embedding of local self-government bodies, primarily rural settlements, into a single system of centralized state authorities, which does not correspond to the democratic principles proclaimed in the European Charter of Local Self-Government and the Constitution of the Russian Federation.

To solve these problems 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 Improving the Delimitation of Powers”;

ensure that the representative bodies of municipalities are registered with the tax authorities as legal entities;

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 staff 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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Attachment 1

Organizational structure of the Akhtubinsky rural settlement

Appendix 2

Proposed organizational structure of the Akhtubinsky rural settlement

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." one

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 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 one or another option of delegation of authority depends on the population of the municipality and the size of its territory, on the volume and complexity of issues of local importance 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 the presence of 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 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 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 the management of 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 (as a rule, 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 particular 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 it 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.

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.e., in fact, they are engaged in commercial activities. This business is risk-free, since it is conducted on the basis of municipal property, for the effective use of which there is no proper supervision. For this reason, some administrations from 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. Innovations cause a certain shift in balance in social systems 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 the contradictions within the most innovative activity - between radical and improving its types are even more important. 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 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 of large organizational and administrative blocks in the structure of the administration, 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 partially 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 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 and 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:

♦ development of a model and organizational project of reorganization;

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

♦ development of a package of regulations for various areas of municipal activity;

♦ 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 administration workers;

♦ preparation of a reserve of personnel for municipal government.

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

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

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 administrative 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.

Introduction

organizational executive committee

Relevance of the research topic.The relevance of the research topic is due to the fact that at present the efficiency of the state power is of great importance. Of great importance is the idea of ​​strengthening the mechanism of state power, which builds the executive vertical of relations between the federal center and the subjects of the Russian Federation.

No state can function successfully without a stable power vertical. The relationship between the center and the authorities of the regions, based on the principles of subordination, is an integral feature of the state.

The apparatus of state power continues and completes the organization of the mechanism of the state, making it ready and suitable for the practical implementation of the tasks and functions of the state. In each link of the state mechanism, the apparatus of state power brings life, a set of measures, means, forms and methods for real, practical activities. In the formation of statehood of any kind, the apparatus of state power acts as the first organizational means for the state to fulfill its goals.

The development of institutions of state power, and the very fact of maintaining the controllability of social processes are due to the demand for state institutions society, the extent to which these institutions meet the expectations of society. And in modern Russia, the issues of distribution of powers between the President of the Russian Federation and the system of presidential power, the Government of the Russian Federation and the system of executive power, the chambers of the Federal Assembly, control and judicial bodies are the central issue of discussions on improving the system of state power. However, the scattered and opportunistic nature of many proposals in this area does not make it possible to combine the "incompatible" within a single concept. At the same time, the key to modernizing the system of state power in Russia in order to strengthen Russian statehood is to achieve a new quality of state institutions.

The degree of development of the topic.Currently, this topic is widely discussed in scientific circles, on the pages of monographs, textbooks, a lot of laws and by-laws are being published. This is due to new approaches to the understanding and place of public authorities in the modern Russian state, as well as to the reforms being carried out in this direction.

The problems of state authorities at the federal and regional levels are reflected in the works of S.A. Avakyan, A.P. Alekhina, I.S. Iksanova, M.A. Sahle, K.V. Cherkasov.

graduation goal qualifying work is to develop proposals on the issues of building the organizational structure of state authorities of the constituent entities of the Russian Federation on the example of the Executive Committee of the Tetyushsky municipal district of Tetyushi.

In accordance with the goal of the study, the following tasks:

1. Explore the essence of the organizational structure of public authorities of the constituent entities of the Russian Federation.

Consider the principles and approaches to the formation of the organizational structure of public authorities of the constituent entities of the Russian Federation.

To reveal the features of the formation of the organizational structure of state authorities of the constituent entities of the Russian Federation.

Give a general description of the activities of the Executive Committee of the Tetyushi municipal district of Tetyushi.

Analyze the organizational structure of the Executive Committee of the Tetyushsky municipal district of Tetyushi.

Develop proposals for improving the organizational structure of the Executive Committee of the Tetyushsky municipal district of Tetyushi.

Object of studyis the Executive Committee of the Tetyushsky municipal district of the city of Tetyushi.

Subject of studyis the organizational structure of public authorities of the constituent entities of the Russian Federation (on the example of the Executive Committee of the Tetyushsky municipal district of Tetyushi).

To solve the tasks set in the work, general scientific research methods: comparative and situational analysis, generalization methods, induction and deduction, classification, factor analysis, time series analysis, expert opinions, sociological and statistical methods.

The information base of the study was made up of legislative and regulatory legal acts the Russian Federation and the Republic of Tatarstan; reporting data of the Executive Committee of the Tetyushsky municipal district of the city of Tetyushi.

The structure of the final qualifying workconsists of introduction, three chapters, conclusion, list of references.

The first chapter examines the theoretical aspects of studying the organizational structure of public authorities of the constituent entities of the Russian Federation: the essence of the organizational structure of public administration, principles and approaches to the formation of the organizational structure of public administration, features of the formation of the organizational structure of public administration.

The second chapter analyzes the organizational structure of the Executive Committee of the Tetyushsky municipal district of Tetyushi.

The third chapter suggests directions for improving the organizational structure of the Executive Committee of the Tetyushsky municipal district of Tetyushi.

1. Theoretical aspects studying the organizational structure of public authorities of the constituent entities of the Russian Federation

1.1 The essence of the organizational structure of public authorities

The subject of the federation is a limited legal entity that has some features of statehood, which is part of a single federal state. The subjects of the Russian Federation meet the following criteria:

do not have sovereignty;

do not have the right to secession or secession;

citizens of any subject of the Russian Federation have equal fundamental rights and obligations on the territory of the Russian Federation;

the law of the subject of the Russian Federation cannot contradict the Federal Law;

subjects of the Federation are equal in the face of federal power.

The Russian Federation is a federal state that combines entities organized both on a national and territorial basis.

According to the Constitution of the Russian Federation, the subjects of the Russian Federation are republics, territories, regions, cities of federal significance, an autonomous region and autonomous districts.

The constitutional and legal status of a constituent entity of the Russian Federation is characterized by the following key points for all types of constituent entities of the Russian Federation: in accordance with Art. 5 of the Constitution of the Russian Federation, the republic has its own constitution and its own legislation, and the territory, region, city of federal significance, autonomous region, autonomous district has its own charter and its own legislation. The constitutions (charters) of the subjects of the Russian Federation fix the foundations of the constitutional system, the foundations of the legal status of the individual, the state structure, the electoral system, the system of state authorities of the subject of the Russian Federation, the procedure for changing the constitutions (charters) of the subjects of the Russian Federation; Each subject of the Russian Federation has its own territory within the borders of the subject of the Russian Federation. Borders between subjects of the Russian Federation can be changed with their mutual consent. The state power of a constituent entity of the Russian Federation extends only to its territory; the subject of the Russian Federation has its own system of state authorities.

The system of public authorities of the subject of the Russian Federation, according to Art. 77 of the Constitution of the Russian Federation, is established by the subject of the Russian Federation independently in accordance with the fundamentals of the constitutional order of the Russian Federation and the general principles of organization of representative and executive bodies of state power established by federal law. Such a federal law has not yet been adopted, and therefore the constituent entities of the Russian Federation should now be guided by the fundamentals of the constitutional system of the Russian Federation, which enshrine such general principles for the organization of public authorities as the separation of powers, the separation of local self-government from state power, and the secular nature of public authorities.

Each subject of the Russian Federation has the right to have its own symbols, flag, emblem, anthem, as well as the capital (center) of the subject of the Russian Federation.

The federal nature of the Russian state implies that state power in it is exercised by both federal bodies and bodies of the constituent entities of the Federation. There is a close relationship and interaction between these levels of state power, ensuring the unity of state power in the Russian Federation. At the same time, in order for federalism to be real, and power to be democratically decentralized, it is necessary to provide the subjects of the Federation with the opportunity to exercise state power with the help of their own bodies, the organization and activity of which would correspond to regional conditions and the general principles of delimitation of powers between the Federation and its subjects.

The creation of a mechanism of power in the constituent entities of the Russian Federation is one of the issues whose foundations require consolidation at the constitutional level - both in the Constitution of the Russian Federation and in the constitutions (charters) of the constituent entities of the Russian Federation. Naturally, the general federal foundations for the organization of state power in the constituent entities of the Russian Federation are enshrined in the Constitution of the Russian Federation, and the specific systems of authorities corresponding to them are enshrined in the constitutions (charters) of the constituent entities.

State power, being in its essence social, public, public, went along with society a difficult path of development, taking various forms.

The institution of power as a concept means education:

) not naturally occurring, but specially created by people;

) due to the emergence of any general, public needs, interests and to satisfy them;

) on the basis of official political (public) legal decisions, regulations;

) having the ability to exert an authoritatively controlling influence on society, individual social groups, relationships and processes.

A public administration body is a structure established in accordance with the established (official, legal) procedure, performing on behalf of the state any of its functions in accordance with its purpose, having organizational unity, its own competence (a range of issues that fall within its jurisdiction), powers (a set of rights and obligations), which he must implement and beyond which he must not go in his activities. The body of state administration may be an official or a specialized structure authorized by the state to implement power-management functions.

Bodies of state administration are a set of all subjects of state-administrative activity, including subjects of state power. They are created as a working mechanism of representative, executive and judicial authorities, i.e. the state apparatus that provides them the best organization and functioning. It is important to emphasize that state power and public authorities are not the same thing. The mechanism for revealing the will of the majority is referendums on the most important state problems, democratic elections.

The resources of state power can also be financial, economic, natural, demographic, social, informational, ideological, power. In the arsenal of the most important resources of state power is the right, which makes it possible to control influence, knowledge and competence, which determine the ability of persons vested with authority to make decisions. Resources make it possible to encourage and punish, stimulate and coerce, convince and use all methods, all means for dominating. Thus, state power and management as a way of its implementation is:

) the right and duty of state bodies to influence the totality of socio-economic relations in the country;

) the system of public authorities;

) the activities of persons vested with appropriate powers of authority.

In accordance with Art. 5 of the Constitution, the subjects of the federation have their own legislation, as well as a constitution (of the republic) or a charter (other subjects of the federation - territory, region, city of federal significance, autonomous region, autonomous district). Federal laws and laws adopted in accordance with them and other regulatory legal acts of the constituent entities of the Russian Federation are issued on subjects of joint jurisdiction of the Russian Federation and the constituent entities of the Russian Federation (Article 76, paragraph 2). Outside the jurisdiction of the Russian Federation, joint jurisdiction of the Russian Federation and constituent entities of the Russian Federation, republics, territories, regions, cities of federal significance, autonomous regions and autonomous districts exercise their own legal regulation, including the adoption of laws and other regulatory legal acts (Article 76, paragraph 4). It inevitably follows from this that each subject of the Russian Federation needs bodies that adopt such legislation.

But, besides the function of adopting legislation, these bodies also serve as representative bodies, that is, they are elected by the people; precisely because of this, the laws adopted by them are of a generally binding nature, as an expression of the state will of the people of the Russian Federation. This implies the implementation of the constitutional right of citizens of the Russian Federation to elect and be elected to public authorities (Article 32, paragraph 2 of the Constitution). Not a single law in the subjects of the federation can be issued if it is not considered and approved by the legislative (representative) bodies of this subject. Also, these bodies carry out certain control functions in relation to the executive branch (approval of the budget, the right to refuse confidence in the government, etc.).

In accordance with federal law No. 184-FZ of October 6, 1999, the legislative (representative) body of state power of a constituent entity of the Russian Federation is the permanent supreme and sole legislative body of a constituent entity of the Russian Federation. Its name, structure, number of deputies and their terms of office are established by the constitution (charter) of the constituent entity of the Russian Federation.

Executive authorities carry out a special kind state activities which is executive and administrative in nature. They directly execute acts of representative bodies of state power, decrees of the President of the Russian Federation, organize the execution of these acts or ensure their implementation by their own orders.

In accordance with Art. 77, par. 3 of the Constitution, within the jurisdiction of the Russian Federation and the powers of the Russian Federation on subjects of joint jurisdiction of the Russian Federation and the constituent entities of the Russian Federation, federal executive authorities and executive authorities of the constituent entities of the Russian Federation form a single system of executive power in the Russian Federation.

Federal executive authorities, in agreement with the executive authorities of the constituent entities of the Russian Federation, may delegate to them the exercise of part of their powers, if this does not contradict the Constitution of the Russian Federation and federal laws (Article 78, paragraph 2)

The executive authorities of the constituent entities of the Russian Federation, in agreement with the federal executive authorities, may delegate to them the exercise of part of their powers (Article 78, para. 3)

In accordance with federal law No. 184-FZ of 06.10.1999, a system of executive authorities is established in a constituent entity of the Russian Federation, headed by the highest executive body of state power of a constituent entity of the Russian Federation, headed by the head of the highest executive organ of state power of a constituent entity of the Russian Federation or the highest official of a constituent entity of the Russian Federation, if the constitution (charter) of the constituent entity of the Russian Federation establishes such a position. Legislative definition, organization scheme, structure, procedure for the activities of the executive authorities in the subject of the federation are determined by the legislative bodies of the subject of the federation.

As a rule, the executive power in the subjects of the Russian Federation is represented, firstly, by the highest official - the Head or President of the Republic, the Head of the Executive Committee or the Governor in other subjects of the federation. Secondly, this official appoints the Government (Cabinet of Ministers, Administration) - the highest body of executive power (such a body can be directly elected by the population), as well as executive bodies of special competence - ministries, departments, committees, etc.

The system of executive authorities includes their governments, ministries, state committees and other departments. As a rule, this system is headed by the President, Head of the Republic, Head of the Executive Committee, but may be headed by the head of government.

According to the nature of their powers, executive authorities are divided into bodies of general competence, in charge of all or many branches of executive activity (governments of the subjects of the Russian Federation), and bodies of special competence, in charge of certain branches or areas of executive activity (ministries). It is also necessary to distinguish between collegiate (government) and one-man (ministries and a number of other bodies) executive authorities. In accordance with Article 56 of the Charter of the Moscow Region, the Government of the Moscow Region is the highest, permanent, collegiate body of executive state power of the Moscow Region, endowed with general competence.

In general, in the subjects of the federation, the highest administrative body of executive power is usually the Government or the Administration of the subject of the Russian Federation. In the Republic of Adygea, the Chechen Republic, the Chuvash Republic - this is the Cabinet of Ministers, in the Kabardino-Balkarian Republic and the Republic of Tatarstan - the Government is also the Cabinet of Ministers. In the Krasnoyarsk Territory, this body is called the Council of the Executive Committee. In the Republic of Dagestan supreme body the executive power is the State Council, headed by the Chairman; this Council forms the Government, which is chaired by the Chairman of the State Council. The Charter of the Republic of Kalmykia does not provide for such a body.

Such bodies can be formed either by the highest official himself, or with the participation of the Prime Minister (or Prime Minister), if he is another person, with the consent of the majority of the deputies of the legislative body.

In accordance with Article 118 of the Constitution, para. 3, the judicial system of the Russian Federation is established by the Constitution of the Russian Federation and federal constitutional law. The bulk of the courts in Russia are federal courts, and in accordance with Article 124 of the Constitution, courts are financed only from the federal budget and must ensure the possibility of full and independent administration of justice in accordance with federal law. Federal courts include: the Constitutional Court of the Russian Federation, the Supreme Court of the Russian Federation, the supreme courts of the republics, regional and regional courts, courts of cities of federal significance, courts of the autonomous region and autonomous districts, district courts, military specialized courts that make up the system of federal courts of general jurisdiction; The Supreme Arbitration Court of the Russian Federation, federal arbitration courts of districts, arbitration courts of constituent entities of the Russian Federation, which make up the system of federal arbitration courts.

The operation of federal courts on the territory of the subjects of the federation, as a rule, is indicated in their constitutions and charters, although not all courts are listed in these documents. Sometimes (Republic of Buryatia, Bashkortostan, Karelia, Mordovia, Tuva, Udmurtia, Krasnodar, Khabarovsk Territory, etc.) they mention only district and city courts, and sometimes (Republic of Khakassia, Chuvash Republic, St. Petersburg) - only the Supreme or Arbitration court). Nevertheless, all the same, these courts administer justice in all subjects of the federation, in accordance with the federal constitutional law "On the judicial system of the Russian Federation", and their competence, organization and activities are established by legislative acts of the Russian Federation.

The courts of the subjects of the Russian Federation include constitutional (statutory) courts, justices of the peace, who are judges of general jurisdiction of the subjects of the federation.

Thus, the specific outlines of the organizational structure depend on various objective and subjective conditions and factors, including the public functions of the state and the state policy pursued by it, internal conditions and factors of management itself (human potential, information support, democracy, management style), etc.

There are a large number of organizational grounds (standard modules) for creating all kinds of state government bodies, taking into account specific subjective and objective conditions and factors that can successfully solve management problems.

The principal scheme for building the organizational structure of power includes the following structural units:

management (for example, the minister, his deputies, the collegium of the ministry);

branch divisions (for example, heads of ministries);

functional branch divisions (for example, departments and departments of ministries, state committees);

support and service units (eg secretariat, offices, forwarding commissions).

Thus, the simplification and cheapening of the administrative apparatus is associated with the strictest observance of state staff discipline, which involves a certain procedure for establishing and changing the staff of institutions, organizations and enterprises.

2 Principles and approaches to the formation of the organizational structure of public authorities of the constituent entities of the Russian Federation

When designing the organizational structures of public authorities of the constituent entities of the Russian Federation, it is important to observe a number of important rules (principles) for their construction.

Focus on achieving goals:

the organizational structure should contribute to the achievement of management goals, which is ensured by establishing the rights and necessary full responsibility of each management link for achieving the tasks assigned to it;

balancing the tasks of the links of one level of management in relation to the tasks of a higher level;

rational division and cooperation between links and levels of management and their interaction.

perspective;

state authorities of the constituent entities of the Russian Federation should, while solving operational issues, simultaneously carry out work to determine a strategy related to the socio-economic development of the constituent entity of the Russian Federation;

in the organizational structure, it is necessary to provide for a block of long-term, strategic management, separating it from the block of operational and current management;

to divide powers between representative and executive bodies, and also to create special subdivisions in the organizational structure of the state authority of the constituent entities of the Russian Federation that deal with the development strategy of the constituent entity of the Russian Federation.

Ability to develop (adaptability):

the organizational structure must monitor and promptly respond to constant changes in external conditions, respond to the challenges of emerging disproportions in the public administration system;

under these conditions, the organizational structure should be sufficiently elastic, able to adapt to the perception of corrective actions;

the organizational structure should be receptive to periodic changes in the state authorities of the constituent entities of the Russian Federation, by creating temporary target units (headquarters, commissions, committees).

Complexity.

When building and improving the organizational structure of public authorities of the constituent entities of the Russian Federation, it is necessary to take into account the possibility of structural support for all stages of management activities;

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

setting goals (identifying activity priorities);

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

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

periodic monitoring and 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, first of all, 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 state authorities of the constituent entities of the Russian Federation. It is desirable that the issues assigned to the jurisdiction of one or another structural unit are as complete as possible, which is especially important for sectoral structural units.

Individualization:

the formation of an organizational structure should be based on taking into account the individual characteristics of a particular subject of the Russian Federation;

typical organizational structures can only be used as advisory and indicative;

adaptation of unified models to the conditions of the constituent entity of the Russian Federation, reliance on analysis and consideration of specific features give positive results.

Economy:

the organizational structure should ensure the effective and rational implementation of the public administration process, the ability to obtain the necessary results in an economical way;

by introducing positions (system administrator, information technology specialist, etc.), whose functions include analysis of the current organizational structure, functional and hierarchical division of powers;

remuneration of civil servants;

mechanization and automation of management processes in order to improve them.

The organizational structure of state authorities of the constituent entities of the Russian Federation is based on the principles of unity of command and hierarchical subordination. The process of forming the organizational structure of public authorities of the constituent entities of the Russian Federation 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.

Real public administration systems are distinguished by a wide variety of organizational structures. 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 subject of the federation is 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 public administration to specific management functions.

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

1.3 Features of the formation of the organizational structure of public authorities of the constituent entities of the Russian Federation

The process of forming the organizational structure of public authorities of the constituent entities of the Russian Federation 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.

The subject of public administration is the state as a whole, but this does not mean that all its bodies, enterprises, institutions and organizations are involved in governance. The organizational structure of public administration is certain composition, organization and sustainable relationship of people, technical and other means allocated and spent by society for the formation and implementation of state influence and maintaining the life of the subject of management.

As a system-forming element of the organizational structure of public administration, a state body is associated with the formation and implementation of state-administrative influence.

There are various characteristics of a public body:

Functional - a state body as a structure that performs certain functions of the state;

Legal - as a structure endowed with a certain competence (a set of functions and powers), state-power powers;

Sociological - a state body as a team of people allocated by society in the order of the social division of labor to perform tasks in the field of public administration and activities.

Organizational - a certain structure is considered from the standpoint of the organization of its elements and their relationships in connection with belonging to the state apparatus.

A state body is a formally created by the state structure of power, for the implementation of certain functions of the state and empowering it with the powers of the state. In this regard, it is necessary to distinguish between a state body that creates and implements management decisions, and state institutions, organizations and enterprises that implement and create material, social and spiritual products and services.

The basis of the organizational structure of public administration are the executive authorities. It is they who concentrate almost all administrative information and the most important means of state coercion. Therefore, the actual orientation of state administration, the state regime, etc. depends on the practical activities of the executive branch.

The specific outlines of the organizational structure depend on various objective and subjective conditions and factors, including the public functions of the state and the state policy pursued by it, internal conditions and factors of management itself (human potential, information support, democracy, management style), etc.

The state and placement (or position in the social system) of managed objects has a certain influence on the organizational structure of public administration. Traditionally, according to the object in public administration, the following governing bodies are distinguished:

management of economic processes;

management of socio-cultural processes;

for the management of administrative and political processes.

There are a large number of organizational grounds (standard modules) for creating all kinds of state government bodies, taking into account specific subjective and objective conditions and factors capable of successfully solving managerial tasks.

In the formation of a certain type of public administration structure, several organizational bases are used:

Linear base - a strictly formalized structure is created with a predominance of vertical subordination of state bodies in the form of a strict hierarchical pyramid, with the presence of strict one-man management and unity of management, stable and effective for carrying out power requirements. At given grounds When building a control body, feedbacks are weakly expressed, its narrow focus is observed, which reduces universality and efficiency.

Functional basis - state bodies are formed that are specially adapted to the conduct of specific management functions, which allows you to select highly professional specialists. Negative for this reason is the complexity in interfunctional coordination, which limits the advantages of specialization in the conduct of individual management functions.

Linear-functional foundation - a combination of the two previous foundations makes it possible to create a structure in which some bodies make and imperiously implement management decisions, while others provide them with advisory, statistical, coordinating and other information, which allows to increase the level of public administration.

Program-target basis - the creation of a structure is based on any goal (a set of goals), a comprehensive program, the implementation of which all elements of the structure and their interconnections are subject to, which contributes to the integration of intellectual, natural, industrial, information and other resources to solve pressing public issues . This foundation was developed at the end of the last century.

Matrix base - a type of structures associated, as a rule, with territorial administration. Combines linear and program-target management. Provides an integrated approach to management in a particular area and enables a flexible, quickly adaptable approach to actively developing and dynamic managed objects.

Typical external relationships have a certain formative influence on the internal organization of a state body. Each independent unit structure (organ) must have interconnections that could provide:

full responsibility of each management body for achieving the set goals or performing the management function;

balancing the goals of all links of a certain level of management in relation to the goals of a higher level;

complexity of performance (interconnection) of all management functions, both vertically and horizontally;

division and cooperation of actions between the links and levels of the state apparatus;

concentration of powers and responsibilities in solving each specific task due to the rational redistribution of competence at each level of management horizontally and delegation of powers vertically;

compliance of the organizational and economic mechanism for monitoring execution with the scope of competence in the field of responsibility and decision-making authority for each managerial task.

There is no single classification of state bodies in the field of public administration. However, there are some criteria that allow you to group controls. These criteria include:

Territorial scale of competence. On its basis, there are: federal (central) bodies, subjects of the federation and their local bodies, as well as local governments.

Subordination of organs to each other. This allows you to divide the organs into higher and lower.

The order of education. Such a basis classifies bodies into those formed (by a superior body within its competence) and elected (by the population or a representative body).

The nature and content of powers leads to the division of management bodies into bodies of general, sectoral and intersectoral (functional) competence.

The procedure for resolving issues of competence separates the bodies of collegial and sole management.

The source of funding serves as a way to single out budgetary bodies and non-budgetary, economically independent ones.

Various grounds for the formation of public administration bodies speak of many types of state bodies that differ from each other, but at the same time they all have many common features and properties.

State bodies that are characterized by the same position and homogeneity of managerial functions are designated as "a link in the state-management system". Attribution of one or another state body to any link is possible on the basis (features, properties) of a certain coincidence of the legal status, structure and external relationships (with managed objects and within the framework of the subject of public administration). As a link in the organizational structure of public administration, one can consider: the President, the Government, ministries, departments, similar bodies of the subjects of the federation and executive bodies of local self-government.

The unification of state bodies in specific areas of interrelations, taking into account their specialization, forms their certain integrity in relation to the entire structure of public administration.

This integrity forms a corresponding subsystem of public administration. The defining features for attributing individual management bodies (links) to a particular subsystem are:

Competence, when it is formulated according to one leading feature (economy, production, services, a comprehensive development program, territory, state function, etc.).

Subordination. There are direct structural and functional connections between the organs of one subsystem, there is a subordination of organs.

internal organization. Each subsystem has an independent structure, isolated from other subsystems with an independent subsystem control center.

Stability, constancy of the subsystem, which allows it to act outside (in the control action on the control object and inside the structure) and be perceived by other subjects of control and managed objects as a specific whole.

Specificity of interaction. Each subsystem has only its own types of interaction with managed objects or other subsystems of state bodies. Subsystems can be vertical (federal executive authorities) and horizontal (territorial authorities of a subject of the federation, city, district).

The formation of a balanced organizational structure of public administration, the achievement of the integrity of subsystems and their effective integration into an organizational structure is ensured by the interconnections of its parts, including:

Relationships of construction, through which the establishment (creation) and transformation (change) of both the entire organizational structure and its subsystems, individual organs, their internal organization and composition take place.

Functional relationships that reflect the channels for the formation and implementation of internal management functions of state bodies and ensure the integrity of the structure and its components.

Relationships by type " Feedback”, allowing to constantly monitor the activity and expediency of the movement of individual links and bodies, subsystems, as well as to check their compliance with objective requests (whether or not certain government bodies are needed).

Information relationships that create conditions for the exchange of information between all components of the organizational structure of public administration.

Each state body has its own structure, which is understood as the totality of its divisions, positions, the distribution scheme between them of the functions and powers assigned to the body, as well as the system of relationships between departments and positions. The structure of any state body depends on its place in the organizational structure of state administration, the scope and content of its competence, and its role in managing social processes. The construction of the structure of the body is carried out from top to bottom, or on the basis of the staffing table. The structure of each state body should be adapted to effectively solve its main specific management tasks in conjunction with managed objects and ensure effective management of the activities of its own apparatus.

For this organizational structure of public administration:

Mobility. The numerical composition and the number of internal divisions are established according to the optimal criteria for manageability.

Profitability. The cost of maintaining the management apparatus and the costs of the management activities of its employees.

Efficiency. The timeliness of adoption, the quality and speed of execution of management decisions, the speed and quality of the passage of information, the complexity of internal and external relations of the state body.

Potential rate of controllability. The ability to cope with its goals is sufficient and can guarantee the necessary level of control over the relevant processes related to the scope of this body.

Structural subdivisions are created for the implementation by the governing link of the state body (management) of functions and powers. They themselves do not exercise the competence of the state body, but professionally ensure the activities of the management.

Within the framework of the volumes and types of management activities assigned to them, the units perform the necessary management actions. There are several approaches to defining the structure and building a unit:

with a horizontal structure, a large group of positions is created, headed by one leader (1 + 6);

with a vertical construction in the structure of the unit, small groups of positions are created with subordination to several managers, several sectors headed by the head of the department (1 + (1 + 2) + (1 + 2).

The optimal number for the unit is 7 people.

The vertical structure has many negative aspects, both objective and subjective:

increase in the time of passage of commands, information and their distortion;

the removal of the performer from the leadership reduces his performance;

weakness of horizontal connections between employees (coordination of efforts of employees);

the emergence of competition for influence on the implementation of the competence of a state body;

the probability of manifestation of the dominance of group interest over the interest of the state body, etc.

An important place in the organizational structure of the state body is occupied by the allocation and description of positions and jobs. There are certain differences between these concepts. According to the position, activities are carried out that, to one degree or another, but are directly related to the implementation of the competence of the state body, with the maintenance of the power of leadership. The position is described through managerial duties and powers for it, and it is performed. The performance of a position is measured by correlating the efforts of the employee with the competence of the state body and their influence on its implementation. Workplace represents the type and scope of activities for the maintenance and provision of management processes(maintenance of premises, Maintenance information systems, providing the necessary resources, etc.).

In building the structures of a state body, the same foundations are used as in building the organizational structure of public administration as a whole in relation to the features of the body: linear, functional, linear-functional, program-targeted. Additionally, a line-headquarters, when a division is created in the body for its intellectual and information support.

Thus, in conclusion of the first section, we can conclude that the organizational structure is the most important factor in the activity of a state authority of a constituent entity of the Russian Federation, the form in which the process of public administration 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.

2. Analysis of the organizational structure of the executive committee of the Tetyushi municipal district of Tetyushi

.1 general characteristics activities of the Executive Committee of the Tetyushsky municipal district of Tetyushi

The municipal formation "city of Tetyushi" is located in the southwestern part of the Republic of Tatarstan on the right bank of the Kuibyshev reservoir. The municipal formation "city of Tetyushi" borders on the municipal districts of the Tetyushsky municipal district: Monastyrsky, Lyashevsky, Narmonsky, Ivanovsky. On the eastern side, the border of the municipal formation "city of Tetyushi" with the Spassky municipal district runs along the river. Volga.

The distance from Tetyushi to Ulyanovsk is 90 km, to Kazan - 140 km, to Cheboksary - 220 km.

The city of Tetyushi is connected with the neighboring regional centers of Buinsk, Apastovo, Kamskoye Ustye by paved roads. The federal highway Kazan-Ulyanovsk passes through the territory of the municipality "city of Tetyushi" from north to south. Transportation of the population and goods is carried out by road and in the summer by water. The availability of water transport is ensured by the presence of the Tetyushi pier, which includes a cargo berth with a port crane and a berth for receiving passenger river vessels.

The total area of ​​lands of the municipal formation "city of Tetyushi" is 8142 hectares. On 97 streets of the settlements of the municipal formation "city of Tetyushi", which includes the following settlements: the city of Tetyushi, Pitomnik, the village of Lyubimovka and the village of Krasnaya Polyana, there are 3356 residential buildings, of which 84 apartment buildings Serves the management company Tetyushi Zhilservis LLC. More than 10 new streets have been set aside for the construction of houses for large families in the western microdistrict of the city.

The green zone in the municipality "city of Tetyushi" is 522 hectares or 6.4% of the total area, the preservation, reproduction and improvement of which is ensured by 2 institutions of the forest district - the State Budgetary Institution "Tetyushskoye Lesnichestvo" and the State Budgetary Institution "Tetyushles", as well as the Municipal Unitary Enterprise "Tetyushi- Zelenkhoz.

On the territory of the municipal formation "city of Tetyushi" there are local roads with a length of 115 km.

Transportation of passengers by road is represented by: Tetyushskoye ATP LLC and individual entrepreneurs. There are regular bus routes, intracity, suburban, intercity, interregional. The service "taxi" is provided by the companies - "Volga", "Taxi Plus".

The housing and communal complex of the municipal formation "city of Tetyushi" is represented by the following enterprises: OJSC "Tetyushi enterprise of heating networks", OJSC "Tetyushi-Vodokanal", LLC "Tetyushi Zhilservis", District Electricity of the net, gas service.

In the communication market, communication services are provided by the wire communication operator Tetyushsky RUES of the Buinsky ZUES OJSC Tattelecom.

Stationary trade enterprises operate in the city,
catering establishments, including canteens and cafes, there are several hotels. In the city of Tetyushi there are: 7 preschool institutions, 4 comprehensive schools, including the Cadet boarding school. Two secondary - special educational institutions: a pedagogical college and an agricultural technical school, 1 branch of a higher educational institution KSUI. There are two driving schools, a Center for additional education for children, a school of arts, a sport school for clay shooting, a children's youth sports school, a branch of the Kazan Youth Sports School "Batyr", a branch of the Central Sports School for Children's Sports School for Chess. R.G. Nezhmetdinov.

year in the Tetyushsky district was declared - the Year healthy lifestyle life.

The sports complex "Bars" is operating, children's and sports grounds have been built in many microdistricts of the city. The swimming pool is under construction. In winter, the city operates: 1 ski base in the southern microdistrict, 3 ice skating rinks on the territory of the technical school, the pedagogical college and at the Bars sports and recreation complex. Various sports are developing in the city of Tetyushi: volleyball, freestyle wrestling, national wrestling, football, athletics, cross-country skiing, clay shooting, table tennis, basketball, checkers and chess.

The provision of therapeutic and preventive care to residents of the city of Tetyushi is carried out by the Tetyushi Central district hospital. MTZ and SZ RT in the Tetyushsky municipal district coordinates the activities of: 1) Branch No. 39 of the Republican Center for Material Assistance, which performs the functions of assigning and paying benefits and compensations, housing and communal subsidies, accounting for social support measures provided to citizens and 2) SAUSO "Center social services for the population "Tetyushskoe radiance", which provides social services for the elderly and disabled, provides social, social, medical, socio-psychological, socio-legal and socio-economic services.

In the field of culture, the following operate: MBU "Tetyushskaya centralized club system", which includes the District House of Culture, Ludogovsky House of Culture, MBU "Museum of the History of the Tetyushsky Territory", Tetyushskaya Children's Art School, central Library, children's library.

State and municipal services to the population are represented by a multifunctional center, which houses: the Tetyush department of the Office of the Federal Service for State Registration, Cadastre and Cartography in the Republic of Tatarstan; department of the Federal State Institution "Land and Cadastral Chamber for the Republic of Tatarstan" in the Tetyushsky district; branch of the Federal State Unitary Enterprise "Rostechinventarization - Federal BTI" in the Republic of Tatarstan; MU "Chamber of property and land relations of the Tetyushsky municipal district of the Republic of Tatarstan".

On the territory of the municipality "city of Tetyushi" there are many historical and cultural territories of interest in historical, ethnic, cultural terms. Since 2007, archaeological research has been carried out on the archaeological monument of republican significance - the Tetyush second settlement under the guidance of Doctor of Historical Sciences A.K. Rudenko. From May 15 - 17, 2009, the first scientific and practical conference "Archaeology of the early medieval city of the Middle Volga and Cis-Urals" was held in the city of Tetyushi. On August 3 - 5, 2011, the second scientific and practical conference "Migrations and their role in the history of Eurasia" was held.

The development of cultural and educational tourism is still one of the leading activities of the museum. In 2013, the third tourist season was completed (beginning of May to November inclusive). The activities of the museum are aimed at working with individual tourists, small groups, and with organized groups. When meeting independent tourists, the museum acts as a tour operator - in fact, the host, providing, together with other local partners, its own tourist cycle, including the organization of cultural programs, entertainment, food, transport, etc. In the case of organized groups, the museum acts as one from the elements of external cultural and tourist programs (routes), working on a contractual basis with certain travel agencies. Geography of tourist attendance in 2013: Buinsk, Kamskoe-Ustye, Zelenodolsk, Moscow, Sochi, Kazan, Samara, Syzran, Germany, Holland, America, France, etc. The number of car tourists in Tetyushi and Dolgaya Polyana has noticeably increased. There are republican motor ship and bus tours.

Local self-government of the Tetyushsky municipal district is a form of exercise by the population of its power, which ensures, within the limits established by the Constitution of the Russian Federation, federal laws, and in cases established by federal laws, the laws of the Republic of Tatarstan, independent and under its own responsibility, the decision by the population directly and through local governments of issues of local importance based on the interests of the population, taking into account historical and other local traditions.

The legal foundations for the organization and implementation of local self-government include issues of local importance:

) formation, approval, execution of the budget of the Tetyushsky municipal district, control over the execution of this budget;

a) establishing, changing and abolishing local taxes and fees;

) possession, use and disposal of property owned by the municipality;

) organization within the boundaries of the municipal district of electricity and gas supply to settlements;

) road activities in relation to highways local significance outside the boundaries of settlements within the boundaries of the municipal district, as well as the exercise of other powers in the field of the use of roads and the implementation of road activities in accordance with the legislation of the Russian Federation;

) participation in the prevention of terrorism and extremism, as well as in minimizing and (or) eliminating the consequences of manifestations of terrorism and extremism in the territory of the Tetyushsky municipal district, etc.

legal basis local self-government are generally recognized principles and norms of international law, international treaties of the Russian Federation, the Constitution of the Russian Federation, federal constitutional laws, the Federal Law "On the General Principles of the Organization of Local Self-Government in the Russian Federation", other federal laws, other regulatory legal acts issued in accordance with them of the Russian Federation (decrees and orders of the President of the Russian Federation, resolutions and orders of the Government of the Russian Federation, other regulatory legal acts of federal executive bodies), the Constitution of the Republic of Tatrstan, laws and other regulatory legal acts of the Tetyushsky district, the Charter of the Tetyushsky municipal district, municipal legal acts of the municipal district on issues of local importance of an interdistrict nature, decisions taken at local referendums of a municipal district.

On issues of local importance, the population of the municipal district directly, local self-government bodies and local self-government officials adopt municipal legal acts. On the issues of exercising certain state powers transferred to local governments by federal laws and laws of the Republic of Tatarstan, municipal legal acts are adopted on the basis of and in pursuance of the provisions established by the relevant federal laws, laws of the Republic of Tatarstan. The system of municipal legal acts includes:

) Charter of the Tetyushsky municipal district;

) legal acts adopted at a local referendum (gathering of citizens), normative and other legal acts of the representative body of the municipal district;

) legal acts of the head of the municipal district and officials of local self-government, provided for by the Charter of the Tetyushsky municipal district.

According to Article 37 of the Federal Law “On the General Principles of Organization of Local Self-Government in the Russian Federation” dated October 6, 2003 No. 131-FZ, a local Executive has the rights of a legal entity. 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 structure of the local administration may include sectoral (functional) and territorial bodies of the local administration.

In accordance with the Charter, the Executive Committee of the Tetyushsky municipal district is the executive and administrative body of local self-government. The activities of the Executive Committee are managed on the basis of unity of command by the head of the Executive Committee of the Tetyushsky municipal district.

The Executive Committee of the Tetyushsky Municipal District is the executive and administrative body of the local self-government of the District.

Location of the Executive Committee: Russian Federation, 422370, Republic of Tatarstan, Tetyushsky district, Tetyushi city, Sverdlova, 67.

Table 2.1.1. Powers of the Executive Committee of the Tetyushsky municipal district

Name Authority in the field of planning, budget, finance and accounting - ensures the development of the draft budget of the District, draft plans and programs for the integrated socio-economic development of the District; - organizes the implementation of the budget of the District, the implementation of plans and programs for the integrated socio-economic development of the District; - ensures the preparation of reports on the implementation of the budget of the District, reports on the implementation of plans and programs for the integrated socio-economic development of the District; - organizes the collection of statistical indicators characterizing the state of the economy and social sphere of the Region, and the presentation of these data to state authorities in the manner prescribed by law; - ensures equalization of the levels of budgetary security of settlements at the expense of the District budget. In the field of municipal property management, relationships with enterprises, institutions and organizations on the territory of the District in accordance with established by the Council District in the order within its powers - manages property that is in the municipal property of the District, resolves issues on the creation, acquisition, use, disposal and lease of objects of municipal property; - in cases determined by the decision of the Council of the District, prepares and submits for approval (approval) of the Council of the District proposals for the alienation of municipal property, including its privatization; - creates municipal enterprises and institutions, determines the goals, conditions and procedure for their activities, approves their charters, provides funding for municipal institutions, maintenance of their buildings and structures, arrangement of territories adjacent to them, resolves issues of reorganization and liquidation of municipal institutions and enterprises, appoints basis and dismiss their heads from their positions; - concludes with enterprises, organizations that are not in municipal ownership, agreements on cooperation in economic and social development District; promotes the creation of enterprises of various forms of ownership in the area of ​​public services; - forms and places the municipal order; acts as the customer of works for the needs of the District using the District's own material and financial resources provided for this in the field of territorial planning, land use and other natural resources, environmental protection - develops and submits for approval by the Council of the District draft documents for the territorial planning of the District, other urban planning documentation for the District and ensures their implementation; - carries out planning and organization of rational use and protection of lands owned by the municipality of the Region; - provides and withdraws, including by way of redemption, in the manner prescribed by law, land within the Area; - informs the population about the environmental situation, informs the relevant authorities about the actions of enterprises, institutions, organizations that pose a threat to the environment and violate the legislation on nature management; - organizes inter-settlement activities for the protection environment; - organizes and carries out environmental control of industrial and social facilities in the Area, with the exception of facilities, the environmental control of which is carried out by federal executive authorities; - organizes the disposal and processing of household and industrial waste; - creates, develops and ensures the protection of health-improving areas and resorts of local importance in the area in the field of construction, transport and communications; - ensures the creation of conditions for housing construction in the area; - ensures the maintenance and construction of public roads between settlements, bridges and other transport engineering structures outside the boundaries of settlements within the boundaries of the Area, with the exception of public roads, bridges and other transport engineering structures of federal and republican significance; - creates conditions for the provision of transport services to the population and ensures the organization of transport services for the population between settlements within the boundaries of the Area through the creation of municipal transport organizations or the involvement of private and other transport enterprises and organizations in transport services to the population on a contractual basis; - approves or coordinates routes, traffic schedules, stops for public transport serving the population between settlements within the boundaries of the Area; - ensures the improvement of places reserved for public transport stops outside the boundaries of settlements within the boundaries of the Area; - creates conditions for providing settlements with communication services in the field of housing and communal, household, commercial and other services; - organizes electricity and gas supply to settlements within the boundaries of the Area; - creates conditions for providing the settlements that are part of the Area with public catering, trade and consumer services; - organizes library services for settlements (provision of library collector services); - organizes the provision of ritual services and ensures the maintenance of inter-settlement burial places in the field of education and health care - organizes the provision of additional education and free public pre-school education in the Area, and also organizes children's recreation during the holidays; - keeps records of children subject to compulsory education in educational institutions that implement educational programs basic general education; - ensures the organization of the provision of emergency medical care on the territory of the Area (with the exception of sanitary and aviation), primary health care in outpatient clinics and hospitals, medical care for women during pregnancy, during and after childbirth in the field of protecting the rights and freedoms of citizens, ensuring the rule of law, protecting the population and territory from emergencies - ensures compliance with laws, acts of state authorities and local self-government, protection of the rights and freedoms of citizens; - Appeals in accordance with the established procedure, including in court or arbitration court, acts of state authorities and state officials, enterprises, institutions, organizations that violate the rights of local self-government; - ensures the organization of the protection of public order by the municipal police in accordance with federal law; - provides, within its powers and in accordance with the established procedure, timely notification and informing the population about the threat of occurrence or the occurrence of emergency situations; - ensures the implementation of measures to ensure the safety of people at water bodies, the protection of their life and health; - provides organizational and logistical support for the preparation and holding of a local referendum, voting on issues of changing the boundaries of the District, transforming the District in the sphere of execution of certain state powers transferred to local governments of the District by federal laws and laws of the Republic of Tatarstan - exercises certain state powers transferred to local governments District, in accordance with federal laws and laws of the Republic of Tatarstan; - keeps records and ensures the proper use of material and financial resources transferred for the exercise of state powers; - submits reports on the exercise of transferred state powers in the manner prescribed by the relevant federal laws and laws of the Republic of Tatarstan; - provides additional use of material resources and financial resources at the disposal of local governments of the District for the implementation of certain state powers transferred to them, in accordance with the decisions of the Council of the District

Personnel Policy Department The Executive Committee implements the following priority areas of personnel policy:

creation of a holistic personnel management strategy that defines a system of principles, rules, norms, methods focused on achieving the goals set by local governments and the municipal body of the municipality of Tetyushi (hereinafter referred to as local governments);

ensuring the process of optimal conservation, use and development of human resources to improve the efficiency of local governments through the use of effective personnel technologies.

The basic principles of personnel policy, which allow for a holistic, result-oriented, and flexible impact on all personnel processes in the organization:

the principle of legality and social security, which implies strict observance of laws and municipal legal acts in the construction and implementation of personnel policy;

the principle of consistency, according to which the personnel policy is considered as an integral, dynamically developing system, covering all areas of personnel management and all categories of employees. This system is aimed at the formation and effective use of the personnel potential of local self-government bodies;

the principle of unity and equal opportunities, which affirms equal opportunities for representatives of all social, class, national groups in the selection, placement and rotation of personnel, as well as the use of uniform approaches to personnel management in all structural divisions of local governments, since the main criterion for evaluating an employee is his compliance with professionally important skills to the requirements of the workplace;

the principle of team unity, which determines the focus on employees who are ready to work in a team (cohesive work collective) to obtain a common result and able to reconcile their interests with the interests of the team;

the principle of complementarity of roles in the organization, which implies such a selection and placement of personnel in local governments so that the positive qualities of one employee are harmoniously complemented by the positive qualities of another, thereby creating a single efficient, competent and efficient management team.

The goal of the personnel policy of the Executive Committee is to create and develop an integral system of personnel management to ensure high-quality and efficient solution of the tasks facing local governments through the maximum implementation of human resources.

The main tasks that are consistently solved in the course of the implementation of the personnel policy are:

formation of a highly professional staff through the system of personnel selection, personnel rotation, as well as the creation and replenishment of a database of personnel resources of local governments;

creation of optimal conditions for achieving compliance with the requirements of the workplace to new or changed circumstances of the social and labor environment through an adaptation system;

organization of events to stimulate employees in order to better solve problems by creating an effective motivation system;

creation of conditions for strengthening executive discipline and increasing the responsibility of employees for the performance of their official duties through the performance monitoring system;

increasing the level of professional competence of employees of local governments through the system corporate training;

introduction of the norms of ethics of behavior of employees through the system of formation of corporate culture.

The structure of the staff of the Executive Committee of the Tetyushsky municipal district for the last 3 years is presented in table 2.1.2.

Table 2.1.2. Personnel structure 2012-2014

Name of indicators change 20122013% to 20122014% to 2013 Headcount Persons 908594.489104.7 Including: Men Persons 353188.634109.6 Women Persons 555498.255101.8 Average payroll Person 858094,184105

In 2012, only 90 people worked in the Executive Committee of the Tetyushsky municipal district, the average number of employees was 85 people, since 3 people worked part-time, and 2 people were sent for off-duty training.

In 2013, the average number of employees was 85 people, which is five people less than in 2012. It was 80 people, which is five people less than in 2012. Since 4 people worked part-time, and 1 person was sent to break from production.

In 2014, the headcount was 89 people, which is 4 people more than in 2013. The average headcount was 84 people.

An increase in the number of personnel indirectly indicates the solvency of the organization.

Personnel categories Change 201220132014 Payroll Persons 908589 - managers Persons 999 - chief specialists Persons 181819 - specialists of the 1st category Persons 373436 - heads of departments Persons 262425

From the above table 2.1.3 it can be seen that there is a fluctuation in the number.

In 2013, compared to 2012, the number decreased, but by 2014, there is an increase in the number. All these fluctuations are associated with staff turnover.

Table 2.1.4. Analysis of the social structure of personnel

Classification 201220132014- by educationHigher Higher-by gender: female65%65%65%Age: 21 to 60 years 22 to 60 years 23 to 60 years of experience 3 to 40 years 2 to 42 years 1 to 45 years

Table 2.1.4 below shows that the main category of personnel are specialists with higher education, age category are represented by employees aged 23 to 60 years, according to the length of service - from 1 year to 45 years.

Figure 2.1.1 shows that:

% - managers;

% - chief specialists;

% - heads of departments.

% - managers;

% - chief specialists;

% - heads of departments.

Figure 2.1.3 shows that:

% - managers

% - chief specialists

% - heads of departments.

Of the number of employees in 2012, 10 people are young people over 30 years old, 80 people are over 40 years old, of which 10 women are over 50 years old and 15 men are over 55 years old. The organization employs 30 pensioners, including 17 men and 13 women. Of the pensioners, 10 managers, 19 specialists - all these are specialists with extensive work experience, with high qualifications. All employees in the organization have higher education.

Of those employed in 2013, 10 people are young people under the age of 30, 75 people are over 40, of which 10 are women over 50 and 15 men over 55. The organization employs 30 pensioners, including 16 men and 14 women. All of them are specialists with extensive experience, highly qualified and with a long track record. All municipal employees have higher education, which testifies to the high qualification of employees.

Of the employees in 2014, 12 people are young people under the age of 30, 77 people are over 40 years of age, of which 12 are women over 50 and 16 men are over 55 years of age. The organization employs 32 pensioners, including 17 men and 15 women. All of them have extensive experience and good skills in this area. All municipal employees have higher education, which indicates high knowledge and professional skills.

The level of education of the employees of the Executive Committee of the Tetyushsky municipal district is shown in Figure 2.1.4.

Rice. 2.1.4. The level of education of the employees of the Executive Committee of the Tetyushsky municipal district

According to Figure 2.1.4, the percentage of higher education among specialists is lower than that of department heads and their deputies. Thus, the category “chief specialists” is represented by the following structure: 97.4% with higher education, 1 person or 2.6% with incomplete higher education. The category "leading specialists" has the following structure: 86.67% with higher education, 6.665% with incomplete higher education, and 6.665% with secondary specialized education. Among specialists of the 1st category, the educational level is lower: only 66.67% have higher education, and 33.23% of employees have only secondary specialized education.

The rather high share of workers with higher education in the category of "chief specialists" in comparison with other categories is explained by the fact that more high positions higher requirements are imposed by law, therefore, among employees of lower positions, we are seeing a significant decline in specialists with higher education.

In total, for the Executive Committee of the Tetyushsky municipal district, the share of employees with higher education is 93.42% (71 people), with incomplete higher education 2.63 percent (2 people), and with secondary special education 3.95 (3 people).

In the course of the study, an analysis of human resources was carried out by age composition and length of service.

According to the age composition of the employees of the Executive Committee of the Tetyushsky municipal district, the following results were obtained: more than half of the employees, namely 52.64 percent, are people under 30 years old. Employees aged 30 to 40 make up 13.16%, 40 to 50 - 26.32%, and over 50 only 7.88 percent.

According to the length of service in this organization, the following zones were identified: - work experience up to 5 years - "Renewal"; - work experience from 5 to 15 years - "Maturity"; - over 15 years - "Aging".

In general, for the Executive Committee of the Tetyushsky municipal district, the age structure of the entire contingent of employees was: "Renewal" - 65.8%, "Maturity" - 19.74 percent, "Aging" - 14.47%. For further forecasting and management of staffing needs, the ratio of these groups relative to the group of workers with experience from 5 to 15 years was determined as the most effective and pivotal for the activities of enterprises. For the group of employees as a whole, this ratio was 3.3 - 1.0 - 0.7 in 2014.

It follows from the obtained ratios that in relation to the "Maturity" group, the "renewal" group is significantly (3.3 times) larger - 64.49% and is almost equal in size to the "mature workers" group "aging".

This trend is good because there are few people of pre-retirement age in the Executive Committee of the Tetyushsky municipal district, that is, it will not face the problem of a mass retirement of workers.

In the categories of “specialists”, the distributions are different, but the general trend towards the predominance of young employees remains, that is, it can be said with confidence that specialists of the “Renovation” stage predominate in the structure of employees of the Executive Committee of the Tetyushsky municipal district.

In general, the ratios obtained, both general and by category, indicate the predominance of young workers, and an insufficient layer of mature workers who have sufficient experience in this industry (this is largely due to their outflow to work in more prestigious and highly paid jobs, after they have gained the necessary experience).

Table 2.1.5. Distribution of specialists by length of service

Chief SpecialistsLeading SpecialistsSpecialists of the 1st category"Renewal"77.1%66.7%100%"Maturity"14.3%20%"Aging"8.6%13.3%

A large number of new employees (who have worked for less than 5 years) may indicate that there are some shortcomings in the organization's activities: low wages, lack of knowledge necessary to perform the work.

We will analyze the compliance of the existing professional education of municipal employees with the requirements of paragraph 3 of Art. 8 of the Law of the Republic of Tatarstan "On Municipal Service in the Republic of Tatarstan", according to which the highest, main and leading municipal positions can be occupied by persons with higher professional education corresponding to the direction of activity, employees for senior and junior municipal positions must have secondary vocational education in the required specialization ( specialty) or education that is considered equivalent.

Profile education will be considered education in the specialty "State and municipal management". In general, at the time of the study, only 6 people have specialized education, which is only 3.95%. That is, most of the employees of the Executive Committee of the Tetyushsky municipal district do not work in their specialty.

The distribution of municipal employees with higher professional education by areas of training (specialization) is shown in Figure 2.1.5.

Rice. 2.1.5. Profile of education of employees of the Executive Committee of the Tetyushsky municipal district

This figure clearly shows that 25 percent of employees are engineers by profession (19 people); 21.06 percent of employees (16 people) have an economic education, humanitarian (including pedagogical) - 12 people, i.e. 15, 79; legal - 14, 48 (11 people); 1 doctor (1.31%); 1 specialist agriculture and 10 others (13.16%).

According to the data presented, the share of municipal employees who are graduates in the fields of "jurisprudence", "state and municipal administration" is insufficient and inadequate to the modern tasks solved by the municipal service.

Great importance is attached to the personnel component in local self-government bodies. Therefore, it should be included in the estimated indicators and constantly monitored to make the necessary adjustments and introduce control actions.

In general, when studying the personnel potential of municipal employees of the Executive Committee of the Tetyushsky municipal district, the following conclusions were made.

2.2 Study of the organizational structure of the Executive Committee of the Tetyushsky municipal district of Tetyushi

In this paragraph, we will analyze the organizational structure of the Executive Committee of the Tetyushsky municipal district of the city of Tetyushi.

The main purpose of the analysis of any organizational structure of the Executive Committee of the Tetyushsky municipal district of Tetyushi is the analysis of the economic and managerial efficiency of this structure.

Main goals:

determine the type of organizational structure, its advantages and disadvantages for a given municipality;

analyze the distribution of functions between departments;

analyze the compliance of powers with the functions performed.

As a result, it is expected to get a complete picture that reflects the organizational structure, functions and goals of each unit, to identify possible problems and develop ways to solve them.

The analysis consists of two stages:

stage. Determining the type of organizational structure.

stage. Direct analysis of the organizational structure.

Stage 1. At this stage, it is necessary to determine the type of organizational structure - as can be seen from the diagram in Figure 2.2.1, the organizational structure of the Executive Committee of the Tetyushsky municipal district of Tetyushi belongs to the linear-functional type. In this regard, it can be said that, on the one hand, the workload is distributed evenly and is insignificant for the head of the Executive Committee, the units perform specific functions in their field of activity, but on the other hand, the responsibility for the decisions taken is not always sufficiently accurately defined, conflicts between units are possible for the use of public funds. It should also be noted that only a small part of the divisions participates in the formation of the revenue side of the budget (CUMI), while the rest can be considered only cost centers.

Stage 2. At this stage, it is necessary to consider each unit separately, analyze its functions from the point of view of the functional approach and the powers available for their execution. With regard to this example, it can be noted that:

The divisions perform a wide range of functions within their competence;

units have the necessary powers to perform their functions;

each division is responsible within its competence;

the number of employees varies greatly from department to department - some departments need additional staff, while others may need to reduce the number of staff.

Consider the goals facing the Executive Committee of the Tetyushsky municipal district of Tetyushi and its subdivisions, make a tree of goals, it is presented in Appendix 2.

Based on the analysis carried out, the following conclusions can be drawn:

the main goal of the Executive Committee of the Tetyushsky municipal district of Tetyushi can be divided into three main areas: economic development, socio-cultural development of the municipality and the effective functioning of the Executive Committee;

within each direction there are specialized divisions;

each unit has specific goals, groups of goals and sub-goals;

each division has sufficient powers to achieve its goals.

Not all units are located in accordance with their tasks. Moreover, there is no unit responsible for health development.

Some subdivisions of the Executive Committee of the Tetyushsky municipal district of Tetyushi are separate legal entities and have a significant staff in comparison with other departments. Let's take a closer look at these divisions.

The Department of Education also includes the Economic Department of the District Department of Education - a total of 10 employees.

These divisions are separated into separate legal entities with one goal - to be able to independently represent their interests, however, as legal entities, they need an accountant. In addition, in the staff of each such division (except KUMI) there is an information technology specialist, which is not necessary, since the structure of the Executive Committee has an Information Technology Department, whose responsibilities include maintenance of workstations and software.

Consider the structure of the Executive Committee of the Tetyushsky municipal district in terms of performance. We single out units that are able to generate income for the municipal budget, and units that only spend budget funds. If you look closely at the structure of the Executive Committee of the municipal formation Tetyushsky municipal district, it is clear that only KUMI can bring income to the municipal budget, since this unit is engaged in the management of municipal property, i.e. leasing, privatization, sale, etc. e. The rest of the units, due to the specifics of their activities, cannot contribute to the formation of budget revenues (Department of Culture, Department of Education, etc.), or are engaged in the redistribution of budgetary funds (Department of Finance).

Now let's analyze the Executive Committee of the Tetyushsky municipal district on the main elements of building an organization (centralization, departmentalization, distribution of labor, the scale of manageability, hierarchy, levels of management).

Centralization. This structure of the organization is centralized, since there is a concentration of the rights to make key decisions, the concentration of power at the top level of management.

Departmentalization. Functional departmentalization is clearly visible in the Executive Committee, specialized works are grouped around resources. Yes, financially economic management manages money, the archive - documents, KUMI - municipal property, etc.

The distribution of labor. The division of work occurs according to the levels of the hierarchy, both in general and in separate parts, i.e. vertical specialization. Work in the Executive Committee does not represent a staged division of work, due to the fact that there is no end product.

control scale. In this case, at the highest levels of management, there is a wide range of controllability. So, the head of the district has 7 people in direct subordination (three of them are deputies and four heads of departments); the first deputy head subordinate to 5 heads of departments. At lower levels, the scale of manageability is much smaller, averaging 3-4 people. For example, in subordination to the chief architect of the district, 2 leading specialists and one chief specialist are subordinate.

Hierarchy. Top managers in the District Executive Committee include: the head of the district and his first deputy. Middle managers include other deputy heads of the district and heads of departments that are directly subordinate to the head of the district and his first deputy, for example, the head of the financial and economic department and the deputy head of the district for life support. The lower-level managers include the heads of departments who are subordinate to the deputy heads of the district: the head of the economic department, main architector district, head of the department of culture, etc.

Management levels. There are 4 levels of management in the Executive Committee. The first is the interaction of the head of the district and employees directly subordinate to him (the first deputy, the head of the department for managing affairs, etc.). The second level is the interaction of the first deputy and the leaders subordinate to him (deputy head for social issues, chairman of KUMI, etc.). The third level is the interaction of the deputy heads of the district and the heads of departments reporting to them (for example, the chairman of the KUMI and the head of the department of property relations). And the fourth level is the interaction of department heads and specialists of these departments.

Based on the second point, the following conclusions can be drawn. An analysis of the organizational structure of the Executive Committee showed that it belongs to the mechanistic type of structures and is linear-functional. The head of the Executive Committee is the leader, who exercises general leadership. The Council of Deputies of the District Executive Committee controls and directs the activities of the Executive Committee. The subdivisions that have the status of a legal entity have a complex structure that needs to be reviewed.

The main problems identified as a result of the analysis of the organizational structure of the municipality of the Tetyushsky district is the lack of a unit responsible for the development of healthcare. Also, the organizational structure is irrational, because some of the units are not located in their field of activity.

3. Development of proposals for improving the organizational structure of the executive committee of the Tetyushsky municipal district of Tetyushi

In order to resolve the problems indicated in the second subsection, the following recommendations:

the structure of the Executive Committee should be transformed in such a way that each subdivision is located in its own area of ​​responsibility - this facilitates the work of the Deputy Head of the Executive Committee, does not overload him with unnecessary tasks;

it is necessary to create a unit responsible for the development of health care;

it is necessary to reconsider the structure of the subdivisions deduced into separate legal entities.

Improving the organizational structure of management takes the form of a search for an alternative solution between the centralization and decentralization of power functions. The desire to find an acceptable agreement between centralized and decentralized management leads to the need to create such a management system, which is characterized by a centralized development of enterprise improvement and economic policy with decentralized operational management.

An acceptable model for the Executive Committee of the Tetyushsky district at present could be a scheme of the organizational structure of management using the concept of strategic business units. The organizational structure of management is based on the model of a diversified organization focused on strategic management. This approach assumes the decentralization of the management of organizations.

The scheme of the new organizational structure of the Executive Committee of the Tetyushsky municipal district is presented in Appendix 2.

The application of this model will solve the following problems:

Create a modern organizational management structure that adequately and promptly responds to changes in the external environment.

Implement a strategic management system that promotes efficient operation organizations in the long term.

Release the management of the association from daily routine work related to the operational management of the research and production complex.

Increase the efficiency of decisions made.

The top level of management in this model can be represented by a typical management structure or other organizational and legal form. With the transition to a new management structure, the functions of top management change significantly. Gradually, it is freed from the operational management of subdivisions and focuses on the problems of strategic management of the economy and finances of the association as a whole.

A feature of this organizational structure is the allocation of strategic business units within the organization and giving individual production and functional units the status of profit centers. These subdivisions represent a direction or a group of directions of scientific, industrial and economic activity with a clearly defined specialization, their competitors, markets. Each independent unit must have its own purpose, comparatively independent of the others.

An independent business unit can be a branch, a branch, a group of shops or a separate shop, that is, it can be located at any level of the hierarchical structure. Responsibility for each direction rests with one manager - the director. The director is responsible for the strategy, he must be ready to defend, within his powers, interests in the field of technology, production, capital investments. At the same time, when distributing resources between various independent units, the plan of each of them should be specified in order to balance the interests of the organization as a whole.

In our model of the organizational structure of management, independent business units represent the middle level of power through which strategic management is implemented, at the lower level of management there are profit centers created on the basis of production and functional divisions of the organization. Operational management of production is realized through these centers. All centers can be divided into two groups: those included and not included in the independent economic units.

Profit centers included in the composition of independent divisions should be structural divisions by redistribution (workshops, sections, functional services) closely interconnected in the technological chain in one of the main areas of activity. From this group, it is possible to single out separate legally independent entities.

Centers that are not part of independent business units can be divided into two groups:

-subsidiaries of an organization with legal independence;

-subdivisions directly subordinate to the management of the organization, operating on a cost-benefit basis.

Transformation into legally independent organizations is expedient in relation to subdivisions that have a relatively separate technological process, which can be separated territorially and property without prejudice to the main organization. And if they are able to ensure their activities on the terms of commercial calculation and self-financing.

In the direct subordination of the organization, it is advisable to keep the units whose activities are vital to ensure the normal functioning of the organization as a whole.

The proposed way to improve the organizational, management structure will allow the District Executive Committee to increase management flexibility, quickly respond to changes in demand and other environmental factors, increase employee interest in entrepreneurial activities, and save jobs.

Assessing possible ways to improve the organizational structure, we can focus on one more structure. Here it is important to take into account the fact that the development of a new or improvement of the old organizational structure of the management of the Executive Committee of the Tetyushsky district must be carried out taking into account the essential principles of this type of organization. As the main principles in the development of the management structure, we take the following provisions:

Purposefulness of activities of municipal employees of the Executive Committee. To implement this principle, it is necessary to determine the strategic goal, decompose it into the goals of a lower level of management, determine the target functions, as well as the responsibility and authority of the leaders of these levels of management in achieving the goals.

Balance of interests and responsibilities of the main participants in the socio-economic development of the region. This involves matching the benefits and obligations of the participants, while achieving both general and individual goals.

The principle of "50/50": this should be the ratio of the working time of managers at various levels to perform the function of reproduction and the function of developing their management object. This requires a clear organization, regulation and planning of all aspects of the activities of the Executive Committee and its divisions.

Focus on innovative development. According to this principle, the activities of the employees of the Executive Committee should be aimed at a systematic search and organization of the implementation of the results of scientific and technological progress in their areas of activity.

Result orientation. It means checking the functions, actions of the employees of the Executive Committee according to the criterion of improving the welfare and quality of life of the population of the district.

When improving the organizational structure of the management of the Executive Committee of the Tetyushsky district, it is important to have the right balance of powers and responsibilities, a clear regulation of the activities of managers and executors. Let's carry out the distribution of management decisions by levels, because this is the most important and responsible part of improving the structure.

First of all, consider the top level of control. It is recommended to make the first deputy head of the Executive Committee of the district directly subordinate to the head of the Executive Committee of the district, and not through the council of the Executive Committee, as it is now. This will allow the head of the Executive Committee of the district to directly control and more quickly receive all the necessary information about the status of the most important areas of activity of the Executive Committee. Thus, the head of the Executive Committee of the district will be able to quickly manage the activities of the Executive Committee and make vital decisions, which greatly increases its flexibility to the effects of the external environment.

It is proposed to abolish the post of Deputy Territorial Security Officer and instead create a functional security unit, such as the Security Service. This unit will combine the entire security complex and will report directly to the head of the Executive Committee of the district, which will allow him to more quickly resolve security issues.

It can be proposed to introduce the position of Deputy Head of the Executive Committee for Financial and Economic Activities, to whom it is recommended to transfer the functions of the financial and economic management department, which will be subordinate to the economic, budget and accounting departments. This transformation is necessary for two reasons:

1)this will make it possible to relieve the first deputy head of the Executive Committee of the district, leaving at his disposal, mainly, industrial and property issues;

2)this will distinguish between financial and economic activities, as well as significantly increase the role of financial and economic issues in the management of the Executive Committee by moving them up the hierarchical ladder.

Thus, a more flexible structure for managing the production and financial complexes will be created.

For the proposed organizational structure of the Executive Committee of the Tetyushsky municipal district of Tetyushi, we calculate the coefficient of efficiency of the organizational management structure:

1.The coefficient of efficiency of the organizational structure of management:

To E = P P/G At , (3.1)

where R P - the final result (effect) obtained from the functioning of the organizational management structure; Z At - management costs (wage fund, expenses for the maintenance of premises, purchase and repair of office equipment, reception and transmission of management information).

Q1 2015

To E \u003d 98309.91 / 213717.27 \u003d 0.46

2. Link ratio:

To SW = P ZVF /P ZVO , (3.2)

where P ZVF - the number of links in the existing organizational structure; P ZVO - the optimal number of links in the organizational structure.

KZV = 6/8 = 0,75

Thus, the implementation of the considered proposals for improving the management structure of the Executive Committee of the Tetyushsky municipal district will allow it to more successfully organize its activities through a rational combination of centralization and decentralization, through the effective distribution of responsibilities, powers and roles between structural units and their heads, as well as through taking into account specific principles and the use of modern methods of building organizational structures.

3.2 Legal support of the organizational structure of the Executive Committee of the Tetyushsky municipal district of Tetyushi

The development of the organizational structure of the Executive Committee of the Tetyushsky municipal district would not make much sense if it were not presented in the form of appropriate legal support, i.e., the formation of the organizational structure should end with the development of a draft regulatory document. The most common such documents are the Code of Ethics, the Corporate Code, the Code of Corporate Culture, the Code of Conduct, etc.

Main normative document, which is designed to resolve all issues and has a certain legal significance, is the Code of Conduct for employees, since corporate culture cannot develop without targeted, systematic and scientifically based assistance.

Code organizational behavior(hereinafter referred to as the Code) is a set of ethical principles and moral norms on which the professional activity municipal employees of the Executive Committee of the Tetyushsky municipal district.

Employees of the Executive Committee of the Tetyushsky municipal district observe ethical principles in all aspects of their activities.

The Code defines uniform standards of conduct in the Executive Committee of the Tetyushsky municipal district, moral standards, which should be guided by a municipal employee in the performance of official duties established by labor contracts concluded with them.

The Executive Committee of the Tetyushsky municipal district is guided by the following ethical principles:

·honesty;

· a responsibility;

·justice;

·transparency;

· compliance with the law;

· observance of human rights;

· mutually beneficial cooperation;

· respect for the local population;

· respect for the environment.

The Executive Committee of the Tetyushsky municipal district expects that its partners will also comply with these principles.

The ethical standards of the Executive Committee of the Tetyushsky municipal district regulate the following main areas of relations: relations with employees, customers, business partners, government agencies and the public. These ethical standards also apply to all areas of activity of the Executive Committee of the Tetyushsky municipal district, both on the territory of the Republic of Tatarstan and abroad.

The main wealth of the Executive Committee of the Tetyushsky municipal district is the knowledge and skills of employees.

· The Executive Committee of the Tetyushsky municipal district regards human life as the highest value.

· The Executive Committee of the Tetyushsky municipal district recognizes the labor rights of workers as an integral part of human rights. In its activities, the Executive Committee of the Tetyushsky Municipal District observes the rights of employees in the field of labor established by law, recognizes the right of an employee to a decent remuneration for the results of work, helps prevent any form of discrimination and forced labor, supports their participation in resolving fundamental issues of development of the Executive Committee of the Tetyushsky Municipal District.

· The Executive Committee of the Tetyushsky Municipal District recognizes employees as the most important asset and promotes the disclosure of professional and personal abilities, empowers employees through personnel development, creates conditions for professional and career growth, training, maintaining efficiency, and creating incentives for efficient work.

· The Executive Committee of the Tetyushsky municipal district encourages the labor traditions of the team, labor dynasties that contribute to the retention of personnel, increase discipline and productivity, and the effectiveness of educational work in the team.

Ethical standards of behavior of a municipal employee

An employee of the Executive Committee of the Tetyushsky municipal district seeks to acquire and demonstrate the following qualities:

· commitment to the goals of the Executive Committee of the Tetyushsky municipal district a;

· the ability to interact with colleagues on the basis of the principles of mutual assistance, humanism, recognition of the value of a person as a person, his right to freedom, development and manifestation of his abilities;

· the desire to solve problems honestly, objectively and without conflict;

· respect for the traditions of the Executive Committee of the Tetyushsky municipal district, its veterans;

· readiness and ability to transfer their knowledge and experience to young employees of the Executive Committee of the Tetyushsky municipal district, the desire to assist their colleagues in improving their professional level;

· respect for the traditions and way of life in the locations of the structural subdivisions of the Executive Committee of the Tetyushsky municipal district, the desire to help people in difficult life situations.

Municipal employees of the Executive Committee of the Tetyushsky municipal district adhere in their actions and decisions to the following ethical standards:

· Honesty and Integrity in Performing official duties. The employee refuses to receive improper benefits (receipt of gifts, rewards, benefits, advantages, etc. from third parties) for the performance of his official duties.

· Correct behaviour. An employee of the Executive Committee of the Tetyushsky municipal district is friendly and polite in communication and does not allow tactless actions and statements that degrade the dignity of a person.

· Loyalty. The Executive Committee of the Tetyushsky municipal district considers it unacceptable to discriminate against people on such grounds as: race, religion, gender, age, nationality, disability, party affiliation, social origin, language and property status.

· Discipline and responsibility. The fulfillment by the employee of his duties should be an internal need, and the fulfillment of the obligations assumed - the rule without exceptions and references to external circumstances.

Actions that are unacceptable in the behavior of employees of the Executive Committee of the Tetyushsky municipal district.

Forbidden:

· Be under the influence of alcohol or drugs;

· Smoking is not in specially designated areas;

· Use the property of the Executive Committee of the Tetyushsky municipal district for personal purposes. Theft is unacceptable in any form.

Additional Ethics for Leaders

Managers are responsible for organizing the effective work of their employees and are the benchmark for standards of conduct.

The work of the leader additionally requires compliance with the following standards:

· constant search and use of new opportunities to improve the efficiency of the subordinate unit;

· promptly informing employees of a subordinate unit about the adopted activity plans, development directions of the Executive Committee of the Tetyushsky municipal district, and the results of activities;

· providing all subordinate employees with equal opportunities to realize their potential in the course of their work;

· support for a transparent system of motivating employees, taking into account both the results of the work of the Executive Committee of the Tetyushsky municipal district, and the individual contribution of the employee to their achievement;

· exclusion from management practice of intimidation, aggression and unreasonable, illegal and unfair decisions;

· creating a work environment that promotes compliance with this Code. Ensuring, under his leadership, the participation of employees in the activities implemented by the Executive Committee of the Tetyushsky municipal district, aimed at studying and observing the provisions of the Code.

Conflict of interests

Conflicts of interest may damage the objectivity of judgments and opinions of employees and officials of the Executive Committee of the Tetyushsky municipal district. The Executive Committee of the Tetyushsky Municipal District strives to avoid any conflicts of interest. If such conflicts cannot be avoided, employees and officials should report this to their superiors and should not participate in decision-making on relevant issues.

Confidential information

Information openness for an employee implies the following principle: to say no more than what is asked.

The Executive Committee of the Tetyushsky Municipal District prohibits all officials and employees from using confidential information and has developed a detailed procedure to prevent insider transactions and leaks of insider information.

The circle of employees who have the right to communicate with the media is limited. Only authorized persons may make official comments to the press.

Implementation of the Code

Compliance with the terms of this Code is the responsibility of employees, about which an appropriate entry is made in labor contract concluded between the employee and the Executive Committee of the Tetyushsky municipal district. Each employee, upon hiring, should be given the opportunity to familiarize himself with the text of the Code.

Each municipal employee must be prepared to independently stop the violation of which he became aware.

If a municipal employee does not have the opportunity to stop the violation of this Code on his own, he can inform his immediate supervisor or authorized persons about the fact of the violation.

Such reporting is morally acceptable if more than one of the following conditions is met:

· if the violation of ethical standards causes serious damage to the employee / employees or the Executive Committee of the Tetyushsky municipal district;

· if the whistleblower is genuinely seeking to prevent or stop the harm, rather than taking advantage of the situation for personal gain;

· if the information about the violation is true

If an employee has questions about the correct behavior in situations regulated by these standards, or he is faced with a situation related to violation of the standards, the employee can contact:

· to your immediate supervisor;

· to the department of personnel management;

· to the head of the Executive Committee of the Tetyushsky municipal district.

Thus, a properly developed Code of Corporate Conduct for Municipal Employees will become an indispensable assistant to managers at all levels, improve the moral and psychological climate in the team and help new employees quickly adapt to the corporate culture of the Executive Committee of the Tetyushsky Municipal District. In addition, any attempt to formulate the basic principles of the organization's culture will provide a basis for its further improvement. The next steps may be, for example, more detailed recommendations on the behavior of certain groups of employees, or the development of the Code in terms of the behavior of the entire organization as a whole in relation to the external environment.

Conclusion

At the end of the thesis, the following conclusions can be drawn.

Firstly, any state carries out its various activities through state bodies, each of which is part of the state apparatus. It is customary to call them a set of bodies, institutions and organizations exercising state power in society. The apparatus of the state is not a mechanical combination of its organs, but an ordered, organized, integral system. The meaning of this orderliness lies primarily in the fact that each body of the state performs well-defined managerial functions, has its own field of responsibility. A state body is a part of the state apparatus endowed with state powers and exercising its competence in the manner prescribed by it. AT modern society the nature of the functions of state bodies is determined by the constitution and other legislative acts.

The organization and activities of the state apparatus are directly carried out on the basis of a number of principles, which are understood as guiding ideas, the principles underlying its creation and functioning, and manifested both in the activities of the state apparatus as a whole and in its separate parts, structurally separate units. Most of these principles are enshrined in the Constitution of the country, or in other laws and regulations, where they can be developed and supplemented.

The rule of law implements the principle of separation of powers, state bodies belonging to different branches of government exercise their powers independently, interacting with each other and balancing each other.

The federal structure of the state involves the allocation of state bodies of the Russian Federation and state bodies of the subjects of the Federation. State bodies can be divided into those elected by citizens and formed by other state bodies (the prosecutor's office, courts), they are individual and collective.

Thus, modern public service The Russian Federation is a legal matter that is in constant motion: it changes, is supplemented, there is a search for new tools in resolving existing problems, and new ones are being developed. regulations regulating state-service relations.

Secondly, the organizational structure is the most important factor in the activity of the state authority of the constituent entity of the Russian Federation, the form in which the process of state administration 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 principles of building organizational structures can be refined, and the forms and methods of using these principles can change due to changing external conditions, goals and objectives. However, the basic principles must be observed, as they express general requirements for the organization of public administration.

The organizational structure of the state authorities of the subject of the Russian Federation is based on the principles of unity of command and hierarchical subordination. The process of forming the organizational structure of state authorities of a constituent entity of the Russian Federation 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.

Real public administration systems are distinguished by a wide variety of organizational structures. 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 is 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 public administration 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.

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

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 connections and relationships along the horizontal of management, i.e., to coordinate the activities of different links and organizational units in the performance of common tasks;

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

Thirdly, 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 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 the Executive Committee, who has to deal with many coordination issues.

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

In general, when studying the personnel potential of employees of the Executive Committee, the following conclusions were made.

An analysis of the structure and number of employees of the Executive Committee of the Tetyushsky municipal district made it possible to identify the following personnel situation:

1. In general, for the Executive Committee of the Tetyushsky municipal district, 93.42% of municipal employees have higher education, 2.637% - incomplete higher education, 3.95 - secondary special
2. In the areas (specialization) of higher professional education, 25% of municipal employees are engineers by profession, 21.06% have economic education, 15.79% - humanitarian, 14.48% legal, 15.78% have other specialties (of which 1, 31% doctor, 1.31% agricultural specialist, etc.).

In the course of familiarization with the work of the Executive Committee, one of the important personnel problems We see the imperfection of personnel structures.

Fifthly, the analysis of the organizational structure of the Executive Committee showed that it belongs to the mechanistic type of structures and is linear-functional. The Executive Committee is led by the head of the Executive Committee, who exercises general leadership. The Council of Deputies of the District Administration supervises and directs the activities of the Executive Committee.

The main problems identified as a result of the analysis of the organizational structure of the Executive Committee can be summarized as follows:

the organizational structure is irrational, because some of the units are not located in their field of activity: the Information Technology Department is located in the field of economic development, although it should be attributed to the area of ​​effective functioning of the Executive Committee; Department for physical education, Sports and Youth Affairs and the Commission on Juvenile Affairs in the area of ​​the effective functioning of the Executive Committee, while they should be attributed to the area of ​​socio-cultural development;

there is no unit responsible for the development of health care;

only one department in the Executive Committee can contribute to an increase in the revenue side of the budget;

entities that have legal personality have a complex structure that needs to be reviewed.

Sixth, in general terms, the proposed transformations of the organizational structure boil down to its restructuring in the direction of reducing the number of management levels, overcoming the workload of top management managers, clearly delimiting the functions and responsibilities of departments, preventing duplication of authority, as well as optimizing the functioning of the structure and accelerating the communication flow between higher and lower divisions of the Executive Committee. As a result, this led to significant changes in the vertical of management, new divisions and positions appeared, for example, the position of Deputy Head for Financial and Economic Management was introduced. At the same time, some of the existing units and positions were abolished, for example, the position of Deputy Head for Security and Civil Defense was abolished, and his duties were transferred to the head of the organized department of the security service.

In general, it should be noted that the directions for improving the organizational structure of the Executive Committee should be based on the strategic plans being developed, taking into account the upcoming changes in the socio-economic and economic orientation of the region in the coming years.

List of used sources and literature

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Tags: Research and improvement of the organizational structure of public authorities of the constituent entities of the Russian Federation and local governments Diploma Management