The textbook is dedicated to highlighting problems and prospects in the development of Russian statehood, increasing the role of local communities in solving pressing problems of local importance, based on a generalization of Russian legislation and international experience in this area. The publication meets the requirements of the Federal State Educational Standard for the discipline “Fundamentals of State and Municipal Administration” of the bachelor’s degree 081100.62 “State and Municipal Administration” and can be recommended as a manual for all students in specialized programs of professional and additional education.
The textbook is recommended by the Educational Institution of Russian Universities for education in the field of management in specialty 061000 “State and municipal management”.
Public administration as the basis of social production.
There are a large number of states in the world, each of which carries within itself the features of historical and sociocultural identity, forming as a national-state entity. In order to gain stability and opportunities for development, any national-state entity develops its own model, a management system aimed at reproducing and adapting this system to environmental conditions.
A person lives in a state and experiences all the shortcomings associated with the operation of the existing system of managing it. Knowledge of the mechanisms of operation of the public administration system allows a person to discover the causes of these shortcomings and influence their correction. The area of this knowledge comprises the discipline “Fundamentals of State and Municipal Administration”. The list of main tasks of this discipline includes:
consolidation in the human mind of the regulatory and legal framework for organizing the work of public authorities;
mastering methodological means of understanding and diagnosing problems in the field of state and municipal management;
generalization of experience in the formation of basic institutions that ensure the functioning of the system of state and municipal government.
Content
Introduction 6
Section 1. Methodological foundations for studying problems of state and municipal management 9
Topic 1. Public administration as the basis of social production 9
Topic 2. Main scientific schools studying the public administration system 20
Topic 3. Diagnostics of public administration systems 41
Topic 4. Methodology of research and organization of state and municipal administration 55
Topic 5. Comparative analysis of state and municipal government in foreign countries 73
Test questions for section 98
Section 2. Fundamentals of public administration in the Russian Federation 101
Topic 6. Structure of government bodies in the Russian Federation 101
Topic 7. Territorial organization of Russian society 112
Topic 8. Regional management in the public administration system 123
Topic 9. Organization of interbudgetary relations in the performance of government functions 148
Test questions for section 158
Section 3. Fundamentals of municipal government 160
Topic 10. Municipal education in the Russian Federation 160
Topic 11. Methods of organizing local self-government in the Russian Federation 178
Topic 12. Forms of social self-organization of the population.
Territorial public self-government 190
Topic 13. Financial and economic foundations of the organization of local self-government in the Russian Federation 199
Test questions for section 211
Section 4. Institutional foundations for the organization of state and municipal government 213
Topic 14. The role of state and municipal property in the implementation of the functions of state and municipal authorities 213
Topic 15. Electoral system of the Russian Federation 232
Topic 16. Personnel basis of state and municipal administration 248
Test questions for section 266
Section 5. Fundamentals of public administrative management 268
Topic 17. System of strategic and territorial planning 268
Topic 18. Organizational aspects of state and municipal government 282
Topic 19. Decision making in the field of state and municipal government 302
Topic 20. Forecasting as a function of state and municipal management 309
Test questions for section 322
Section 6. Educational and methodological support for the discipline “Fundamentals of State and Municipal Administration” 324
1. Student competencies formed as a result of mastering discipline 324
2. Contents of the discipline 327
3. Coursework topics 333
4. Questions for exam 337
5. Tests for sections of discipline 339
Conclusion 360
References 362
Regulatory documents 362
Books and other publications 365
Applications 375
Appendix 1. Distribution of powers of a subject of the Federation by functional blocks 375
Appendix 2. Distribution of issues of local importance between different types of municipalities 383
Appendix 3. Structure of federal executive authorities 394.
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THE GOAL OF PUBLIC ADMINISTRATION is the final or specific intermediate result of the development of society (or its subsystem), obtained in accordance with the programmed prospects for its development
1REVO OF GOALS - a system that ensures an organic relationship between goals and subgoals of varying complexity, level and content, aimed at achieving programmed changes
SETTING - activities to analyze social problems, identify the needs of the managed object and build a tree of goals, taking into account available resources and capabilities
PRINCIPLES OF PUBLIC ADMINISTRATION - scientifically substantiated and legally enshrined provisions in accordance with which the public administration system is built, operates and develops
1. Public administration system: concept and structure
The central concept of the “systems approach” is the concept of “system”. The term "system" is of Greek origin and means an organic whole made up of parts. This a set of interconnected and interdependent elements that form a certain unity. The concept of “system” denotes any complexly organized integrity, consisting of many elements and relationships between them, capable of transforming into different states. Indicative in this regard is the position of the prominent French sociologist C. Lévi-Strauss, who presented the system as a kind of “ensemble” of interconnected, interdependent and contradictory developing elements, a change in one of which necessarily entails changes in all the others, and therefore transforms the entire “ ensemble".
The conceptual apparatus of the study of social systems began to take shape since the time of Aristotle, but in its modern form it was formed only by the middle of the 20th century. In many ways, it was borrowed from cybernetics, the works of Norbert Wiener, and then became widespread in the field of humanities. This happened thanks to the scientific developments of A.A. Bogdanov, who introduced the concept of “social system” into scientific circulation and laid the scientific foundations for managing these systems; V.G. Afanasyev, who singled out the problems of systemic analysis of management into an independent scientific direction and presented management as a process of bringing the efforts of the subjective factor in accordance with the objective course of social development.
The ideas of Charles Barnard (based on a systems approach, he sought to create a holistic theory of the organization of management and business morality), L. Bertalanffy and A. Rapoport (studied the essence, patterns, functions and dynamics of self-organization of complex social formations, features of the functioning of open and closed systems), K.I. Varlamov (who presented a philosophical understanding of management as a special social phenomenon), D.M. Gvishiani (the subject of a comparative analysis of which was the patterns, principles, ways and features of rationalization of organizational activities), J. Kliru (proved that the behavior of a system is determined by its program, according to which this behavior can be reactive, adaptive or active), J. Lapierre (studied five main social subsystems - biosocial, ecological, economic, cultural and political), G. Lasswell (proved that by highlighting the simplest elements in the sphere of politics and management, one can get a substantive understanding of the quality of power, direction and target settings of its control influences), T. Parsons and R. Merton (founders of structural-functional analysis, researchers of motivational mechanisms in politics and management, phenomena of institutionalization of patterns of value orientations in various social systems), V.L. Romanov (developer concepts social and innovative public administration). In the scientific literature there are various interpretations of the Force, which, as a rule, do not contradict each other. Only definitions, according to calculations by V.A. Kartashov, there are at least forty. Their essence boils down to the fact that a system is an organized set of interconnected and interacting elements, the properties of which are qualitatively different from the sum of the properties that make up this set of elements. Each system has its own structure, its own structure from the point of view of the spatial and temporal arrangement of its constituent elements of character and the strength of the relationships that have developed between them. If you take out or change one of these elements, the entire set will immediately change.
Depending on the classification criterion, systems are divided into:
by the nature of interaction with the environment - open and closed (closed);
by structure - simple, complex and global;
by level structure - two-, three-, four-level and more;
by the nature of functioning - automatic, if control is carried out without a person, and automated, if a person is involved in control along with the technical component (ACS).
The system is characterized by many connections and relationships that unite individual components into a certain ordered integrity and give the latter the necessary stability and functionality. Connections can be rigid (for example, in technology: engine-transmission-chassis) and flexible (in biological, social, economic, political and other organisms); direct and reverse; reversible and irreversible; vertical and horizontal; subordinating and supporting; stimulating and inhibitory, etc.
The basic distinctive features of any social system, including management, are the following:
integrity is an integral characteristic of complex systems that have relative autonomy, self-sufficiency, and a certain independence in the environment;
expediency - compliance of the vector of development of the system with the model that acts as a goal for it;
the presence of an original, unique internal structure;
hierarchy - the constituent elements of the system are not located chaotically and arbitrarily, but in a strict order from higher to lower, from simple to complex, from subordinate to manager;
emergence - the sum of the properties of a system is not equal to the sum of the properties of its individual elements. All elements of the system occupy their special place and are in a state of constant dialectical interaction with each other. Each of them absorbs and transmits something to others, without which control of the system is impossible in principle. That is why the inability to have a systematic (voluminous) vision of state activity, the inability to “embrace” all the diversity of interacting elements of management activity certainly forms a false understanding of power and the state as a whole; 3 self-sufficiency - the ability to function autonomously, the authority to make independent decisions on internal problems under one’s own responsibility and relying on one’s own internal resources. The systems approach allows us to present public administration as a dialectical unity of many relatively independent subsystems. We are talking about the control and managed subsystems, the subsystem of the goals and functions of state power and control influence; subsystem of principles of public administration; subsystem of forms, methods and means by which appropriate management processes are ensured.
The governing subsystem is the people as the primary source and fundamental basis of state power in the country; the state as the bearer of power and the determining subject of management; their derivatives are the state apparatus, state bodies, officials, civil servants. An integral part of the subject of public administration are also some non-state structures, for example, scientific and educational centers created under government agencies, municipal government bodies, to which some state powers are transferred.
All of the listed entities are endowed with appropriate powers and bear legal, political and moral responsibility to society, the state and its citizens. The “managerial powers” of the state are determined those that it is not only a form of political organization and legal existence of society, but also a way of determining the general will and national interest, expressing and protecting the needs of people, and ensuring the goals of various social communities. Only the state has a legitimate monopoly on legislation and coercion with the help of a special apparatus that professionally ensures the implementation of the goals, objectives and functions of the state.
The managed subsystem includes everything about which and in connection with which state-administrative relations arise. The main components of the object of such influence are society as a whole, individual social structures, various socio-political, economic, social, cultural, spiritual and moral institutions.
The subsystem of interaction between managers and managed is a complex of management relations in which state interest is expressed and within the framework of which the goals, objectives and functions of the state are realized. They arise as a result of legally significant actions and events that require appropriate management regulation, and therefore targeted administrative, organizational and managerial actions, both on the part of the state and the object of application of management forces.
The structural analysis of the management system can be presented in another configuration - as a set of institutional, normative, functional, communicative and cultural-ideological subsystems.
Institutional a subsystem (a kind of material framework of the public administration system) consists of) social institutions, each of which, in turn, is a relatively independent system. It includes the state, political parties, socio-economic institutions and organizations, as well as the connections and relationships between them. The central place in this subsystem, naturally, belongs to the state. Public organizations and the media also play an active role, which significantly influence public opinion, and with its help have a corresponding impact on the state apparatus and its leaders.
Regulatory the subsystem consists of political, legal and moral norms, principles, views and traditions aimed at regulating the public administration system as a whole and each of its structural elements in particular. The central place in this subsystem is occupied by legal norms, which serve as the main regulator of public relations, ensure the functioning of not only government bodies and their powers, but also public associations, all individuals and legal entities.
Functional the subsystem is determined by the forms of state control influence, methods of exercising power, and the predominance of violent or non-violent methods of control among them. This subsystem is the basis of the state regime, which ensures the preservation of existing power. At the same time, the regime has a certain independence in relation to the constitutionally established structure of public administration, reflected in the institutional subsystem. Moreover, the ruling elite can go beyond the formally established legal order, modify the mechanisms of power, limit the activity of opposition forces by turning on the appropriate administrative resource or creating alternative structures “loyal to the authorities.”
Communicative a subsystem includes various forms, means and methods of interaction both within the system (i.e. between its subsystems) and outside it. At the internal level, it is determined by the relationships between the legislative, executive and judicial branches of government, state institutions and other subjects of management interactions (parties, social, ethnic or religious communities, people as individual factors), emerging in connection with their participation in the exercise of power.
Cultural-ideological the subsystem is formed from theories, ideas and views of participants in social life that differ in content. It is largely determined by the level of political, legal and moral culture of society and the government apparatus, and the predominance of humanistic or non-humanistic trends in it. Functionally, the cultural-ideological subsystem solves the problems of preserving and reproducing the existing model of public administration.
Thus, public administration can be presented as a rather complex phenomenon in terms of content and structure, which:
Firstly, wears subject-object character, expresses the relationship between the subject of public administration (the state) and the managed objects (society and its subsystems). Only together do they form a system of “purposeful, organizing and regulatory influence of the state on social processes, consciousness, behavior and actions of people” 2. Society (and all its subsystems), as an object of management influence, forms a “social order” to the state and at the same time is a social space for power and management activities. The effectiveness of this activity ultimately depends on society, its needs and interests, resources and real opportunities.
It was from such methodological positions that, for example, the American scientist D. Easton built his “timeless and independent of socio-economic and social determinants” model of public administration. He presented public administration as an organic “set of interrelated activities of state management institutions and political elites that influence the adoption and implementation of political and public management decisions. D. Easton described the process of functioning of this system as a process of interaction of three elements: “input” - “conversion” - “output”. The “input” includes external economic, cultural, social and other impulses from society - various orders and demands of society regarding material well-being, culture, education, working conditions, etc. Then these impulses, in accordance with certain principles, are “understood and processed in the process of political conversion” and only after that they reach the “output” in the form of specific decisions - laws, decrees, regulations, programs, decisions, political slogans. In this case, there is both a direct connection from society to power, and a reverse connection - from power to society. The most effective system is one that is capable of responding to the challenges of the time in a timely and effective manner, responding flexibly and adequately to the needs and interests of society, competently formulating goals, making timely decisions and efficiently implementing them;
Secondly, public administration is the process of awareness, legal registration and practical implementation by the state of socially significant goals, needs and interests of society. This shows socio-political nature public administration, which can be presented in the form of the following logical diagram: “society” - “state” - “state policy” - “goals and objectives of public administration” - “public administration resources” - “public administration functions” - - “principles of public administration” - “forms and methods of public administration” - “means and resources of public administration” - “society”;
Thirdly, the public administration system is presented as a rather complex, multi-level, hierarchically structured set of elements (subsystems) ontological nature. This is a collection of dynamically developing and constantly changing elements, each subsequent element is subordinated and serviced by the previous one. Between these elements (subsystems) there is a consistent and fairly strict determination (cause-and-effect interdependence). If one element of the system is changed, updated or destroyed, then corresponding changes (adequate transformations) will certainly occur in all other elements of the system.
The goal changes - the tasks, forms and methods of solving them change.
As soon as the goal of restructuring the party-Soviet management system was set, the tasks of accelerating socio-economic development, expanding openness, recognizing pluralism, and forming market relations were immediately set. The forms of political activity have also changed - congresses of councils, alternative elections, live broadcasts of congresses and meetings of the Supreme Council, political discussions and television debates, rallies, processions, etc. appeared. The need to strengthen federal relations required a change in the procedure for forming the Federation Council, the introduction of the institution of plenipotentiary representatives of the President in federal districts, and a change in the procedure for electing governors.
The tasks of forming a market economy immediately gave rise to new social institutions, management units and forms of legal regulation. It was necessary to carry out denationalization and corporatization, develop new forms of management, ensure the inviolability of private property, legalize the freedom of movement of goods, money and labor, form antimonopoly committees, support services for small and medium-sized businesses, tax authorities, etc.
New forms, even emerging spontaneously in the depths of social life, require appropriate legal support and state support, protection and stimulation, protection from unlawful interference;
fourthly, public administration is a product of the human mind, it is subjective phenomenon expressed in the thoughts, feelings, actions and actions of specific people, structures and social communities. Moreover, all these elements are in a certain integrity, which can be expressed by the following scheme: “goal” - “information” - “knowledge” - “resources” - “ideas and concepts” - “decisions” - “managerial actions" - "result" - "goal". The presented system I includes the basic logic of public administration activities.
And lastly: public administration is a constantly changing and continuously improving phenomenon. IN in our country, the development of public administration is characterized by the modernization of state power; reforming the administrative-territorial structure of the country; optimization of the powers and jurisdiction of federal, regional and municipal authorities; rationalization of the structure and de-bureaucratization of the executive branch; personnel strengthening and the creation of a new regulatory framework for the civil service.
To date, as part of the Administrative Reform:
redundant and duplicating functions of executive authorities were analyzed, ways of streamlining the powers of the apparatus, standardizing government functions and services, and regulating the activities of officials were outlined;
the legal mechanism for the development and implementation of state policy in the form of federal and regional target programs and priority national projects has been determined;
At the federal level, a three-tier structure of public administration has been formed, in which law-establishing functions are separated from control and supervisory and administrative functions. Similar work to reform the executive power system is taking place in the constituent entities of the federation;
control and inspection activities are being optimized, the issuance of licenses and quotas is being streamlined, incentives for small and medium-sized businesses are being strengthened, monopolism and unfair competition are being suppressed more strictly, etc.;
the departmental subordination of numerous unitary enterprises and government institutions has been clarified, a more reliable and transparent legal framework for the effective management of enterprises and public sector institutions has been created;
basic principles, assessment indicators and technologies for assessing the performance of federal and regional (subjects of the Russian Federation) ministries, services, agencies and officials have been formulated;
the implementation of the Federal Target Program “Electronic Russia” has begun, designed to ensure more effective interdepartmental information interaction, the construction of a unified information vertical for state and municipal administration, and increased accessibility of public services for citizens and business entities;
The reform of the civil service system continues, decisions have been made to switch to a contract system of service activities in accordance with official regulations. An exhaustive list of prohibitions and restrictions on the civil public service is presented and normatively established. The number of employees in the central offices of federal ministries and departments has been significantly reduced. A new procedure for stimulating civil servants based on specific results of their activities has been approved, and the system of providing social guarantees to persons holding certain positions in the civil service is being improved. All this should ensure high efficiency of the public administration apparatus, increase the attractiveness of the public service, and stimulate the influx of the most trained and worthy specialists into public authorities.
2. Direct and backward connections in the public administration system
The issue of forward and backward connections in the public administration system deserves the closest attention. Some researchers see direct connections as rigid and despotic (a strong hand), without which, in their opinion, it is impossible to ensure effective management of social processes. Others argue that in direct “top-down” connections the arbitrariness of the egoistic “I want”, “I think so” reigns, which is ignored by reasonable control influence, and “bottom-up” feedback is predominantly chaotic and random in the form of endless requests , suggestions, demands, complaints, etc.
Additional difficulties in organizing direct and reverse government-administrative relations arise in the conditions of a federal state. In Russia, for example, a well-founded rejection of the strict vertical subordination of state authorities and local self-government led to a “parade of sovereignties”, to the fact that some federal subjects and their leaders began to consider themselves free from the legislative acts of federal bodies. As a result, the threat of the collapse of the state loomed. Enormous difficulties arose with the collection of taxes, financing of the state apparatus, the army, and the implementation of social programs. As soon as the rejection of hierarchy and subordination began to be mechanically transferred to the system of executive power, the state immediately lost the ability to govern.
But no matter how we interpret public administration, if the control action does not reach the controlled object and does not affect a person’s life and his activities, then such management loses all meaning. All its elements begin to act separately, contradictory, destroying each other in competition. The art of governance consists precisely in ensuring that, through diverse and intelligently combined institutions, forms, procedures and social technologies of direct and feedback (including a multi-party system and parliamentary opposition, independence of local authorities, a free press, non-governmental organizations and other components of civil society) ensure highly efficient functioning of the managed system.
Direct connections -- This is the impact of a managing subject (body, official) on an object. These connections predominantly represent top-down influence (for example, an order with the expectation of its strict and unconditional execution). Although the control action can also be horizontal, coordinating. Direct connections can be permanent, temporary and episodic, soft (conducting) and active, command and even forceful. It’s good when direct connections are natural, as they say, “invisible.” It is much worse when they manifest themselves in the form of strict administration, all kinds of assaults and rush jobs, announcements of special situations, the introduction of direct presidential rule and external managers, etc. Something similar was inherent in the system of the party-Soviet leadership, which most often generated not enthusiasm, but rejection and irritation.
Feedbacks -- this is the reaction of an object to the managerial impulses of the subject in the form of certain actions (agreement and submission or disagreement, disobedience and even opposition) and relevant information (about the behavior of the object, about the perception and execution of “management commands”). This, according to F. Lewis, is “a basic reaction to what is heard, read or seen.” A manager who cannot provide feedback will very soon find that the effectiveness of his management actions drops sharply. In the end, he will find himself isolated and constantly deceived.
Feedback can be active and passive, consensus and conflict, continuous and “ragged,” constant and cyclical. The most effective management is one whose feedback loops are based on cooperation, interaction, reliance on initiative from below, mutual responsibility, etc. It is worse when these connections are passive, and even more so actively protesting, and are expressed in strikes, demonstrations, pickets, and hunger strikes. They indicate serious failures in management and can even lead to a management crisis as a whole.
The question of the relationship between forward and backward connections is also problematic. There are possible discrepancies here:
a bias towards direct connections leads to authoritarian bureaucratization of management, a decrease in its rationality and authority. A convincing example of this is the Soviet system of centralized party-state management, based on monopolism, all-encompassing planning and total control over all social relations, mobilization methods and bureaucratic means of control;
a bias towards feedback is a direct path to anarchy and disruption of the system of management. Evidence of this is the experience of radical reforms (take as much sovereignty as you can swallow) during the years of B.N.’s presidency. Yeltsin. A distorted understanding of democracy and the market, naked administration, personal ambitions and the struggle for leadership, the lack of clear programs for socio-economic and political transformations brought the country's economy to decline, people to mass impoverishment, the USSR to collapse, and Russia was brought to the brink of ethnic clashes and social decay , intellectual and moral degradation, as well as complete disregard for the rule of law in favor of the ruling elites.
A fundamentally different result can only be achieved by a state that, not in words, but in deeds, is focused on legal legitimacy, democratic transformations, civilized market relations, respect for public opinion; only that power is dynamic and flexible, which intervenes only in those areas where its presence is socially justified, politically necessary, socially and economically effective.
In the public administration system, it seems possible to distinguish two types of feedback: objective and subjective.
Object feedback reflects the level, depth, and adequacy of the controlled objects’ perception of the control influences of the control subject. After all, each control component needs to know in a timely and reliable manner how its activity is perceived and translated into real actions, whether its ideas and plans, requirements and settings are included in the managed object and specific performers. The state must know how adequately and with what mood society reacts to adopted laws and regulations, how taxes, licenses and quotas actually work, how justified are the tariffs and justified its investments and monetary activities, how effective are control and supervisory measures, etc. . The art of management consists precisely in receiving high-quality feedback information in a timely manner and, on its basis, making appropriate decisions and achieving the effective functioning of the facility.
Untimeliness, bias, incompleteness and inconsistency of feedback significantly complicate the activities of the subject of management. It is almost impossible to manage effectively in such an environment.
At the same time, of course, no one cancels the independence of the object. Although it is clear that this independence is relative. The opposition of the state to society is unacceptable. Authoritarianism and totalitarianism, on the one hand, and boundless liberalism, on the other, are equally dangerous and threaten with tragic consequences. Absolutization of power, artificial opposition of the interests of some to the detriment of others, unhealthy competition between managers and the governed are unacceptable. The state is not something external to society and those above it. This is not just a political superstructure. This is a form and means of self-organization of people, a kind of basis (foundation) above which the country rises as an integral social organism.
Yes, society is a kind of arena and subject for the application of state forces. But this does not mean at all that society is assigned the role of a passive executor of its will, that the state is created only for coercion and domination, to satisfy the power ambitions and needs of the economically dominant classes, ruling elites and officials. A modern democratic legal social state is created in the name of ensuring the functioning of society as a single whole, to maintain proper law and order in it, ensure defense and national security, protect life, health, rights, freedoms and dignity of a person.
Subjective feedback-- these are relationships and connections that characterize the expediency and rationality of the internal organization and activities of the subject of public administration as a whole, as well as all its subsystems and components. Subject feedback is hierarchical, multi-level and multi-element.
Forms of subjective feedback - reports, acts of control checks and audits, information and analytical notes, reports on the progress of implementation of previously made decisions, content analysis of documents and press publications, expert assessments and sociological measurements, etc. This kind of information is especially significant in practice management. Moreover, in conditions of a federal structure of the state and division of power, in conditions of democratization of public relations and increasing the importance of municipal government.
3. Typical and unique in public administration
The systemic nature of public administration, which objectively connects all its components into a single dynamically developing integrity, requires the allocation in management, on the one hand, of the general, typical and universal, and on the other hand, of the individual, individual and unique.
It should be taken into account that we often equate the concepts of “unity”, “unification” (templating) and “typicality”. It is believed that the more standardized cements and templates in the system, the stronger, more stable, stable and reliable the system. Experience shows that this is far from the case.
there are many examples of this. The Soviet system was saved neither by centralized planned management, nor by uniform staffing and nomenklatura approaches to solving personnel issues. neither command-mobilization methods of work, nor ideological monopoly. Many experts are not at all sure that the appointment of governors based on recommendations from one control center (the Presidential Administration) will strengthen the unity of society and ensure the expected qualitative progress in the public administration system.
Template and typical are not the same thing. Typical is not unification and cliché, but the selection of the most general and decisive in what constitutes the essence of the phenomenon. The typical captures the most essential thing that is hidden in the depths of the management system. This is something common that is qualitatively inherent in many phenomena. Taking into account the typical and unique, inter-budgetary relations are built; the legal framework for state and municipal administration is created at the federal, regional and local levels; the subjects of exclusive and joint jurisdiction of the Federation and its subjects are determined.
Many believe that in conditions of democracy and self-government, the typical generally becomes redundant and can be discarded as a legacy of a totalitarian system of government. With this approach, different phenomena are mixed: the right (freedom, initiative) to creative search and the obligation (necessity and discipline) to act expediently. Expediency forces us to turn to the typical, i.e. to those methods, forms, methods and means with the help of which similar problems have already been solved in the past in relation to this specific situation. We must rely on the knowledge and experience that has been tested and become part of public practice. Everything constructive and promising should be studied, generalized and, through propaganda, put into practice. Including in the practice of public administration.
True, identifying and using the typical in public administration has its own characteristics.
Firstly, one should take into account those limiters of an objective nature, which “tighten” the system of public administration: the enormous scale and complexity of the control object; the activity of civil society institutions and the constant increase in the effectiveness of self-government mechanisms; contradictory interests and multidirectional efforts of various subjects of social action; strict procedural and legal regulation of the functioning of the state machine.
Secondly, hierarchical pyramidal structure subject of public administration, which means an unequal reflection of the diversity of the managed object at different levels, floors and links of the management pyramid. As the level increases, there is a kind of enlargement and a kind of generalization of controlled social processes, the isolation of the most essential and significant in them. Naturally, in all its details, in all its diversity and complexity, these processes appear only at the primary level. At the federal national level, only the most important, basic ones are seen, playing a decisive role in ensuring the functioning of society or an industry.
The validity of this conclusion is confirmed by the experience of monetization of benefits, which our state carried out not so long ago at the federal level. Bringing to a common denominator (i.e., finding what is typical and mutually beneficial for everyone) the capabilities of the state, federal subjects, local governments and the interests of war and labor veterans, pensioners, disabled people and large families turned out to be an extremely difficult management task. And not only for the Ministry of Health and Social Development, but for the President and Government of the country. Only thanks to competent and decisive actions of the authorities, public organizations, businesses and citizens was it more or less successfully resolved.
Another example is no less indicative, but from the sphere of housing construction management at the city level. It turns out that in market conditions it is not easy for the authorities to find a “common language” with the owners of private houses regarding the conditions for their resettlement and the allocation of new plots of land for urban and housing construction. How dramatically and with what difficulties the Moscow authorities resolved similar issues in the Severnoye Butovo area. The mayor's office, the district administration, the courts, the prosecutor's office, the Ministry of Internal Affairs, the Public Chamber, the media, and individual politicians found themselves in the conflict zone. Finding a mutually acceptable solution took a lot of time and required serious tension. A typical and, most importantly, mutually acceptable solution was found, which helped to “resolve” the conflict situation.
Is it really possible to talk about the wisdom of those managers who initiated and made decisions on growing corn in the Far North, on the development of pig farming in the Muslim regions of the country, and sheep farming in places where there are no pastures and appropriate management skills, when, in order to please the political ambitions of the fighters against drunkenness, the fighters against drunkenness were uprooted the most valuable vineyards?
A national management decision sets a typical model for solving a certain problem. Then this model must be implemented by specific government agencies in specific conditions, taking into account specific circumstances and characteristics. It is in this way that the movement from the general and typical through the particular to the specific and individual takes place. And vice versa. Moreover, all components of the state-political, socio-economic and spiritual-moral mechanisms of government participate in this “movement”.
What does all this mean? First of all, that in public administration, along with the typical, an equally important place is occupied by the unique, those. singular, original, inimitable. Management is not rigid connections or conveyor belts technologies, within which monotonous and strictly regulated operations are performed. In most cases, participants in management processes are faced with situations that do not allow the use of templates and ready-made recipes. We have to create new models, look for original forms of practical actions.
It was in a situation of uniqueness that privatization and denationalization of state property was carried out in our country, a market financial and banking system was built And tax system, insurance medicine, private school, etc. were formed. In many respects, it seems to us that many mistakes in managing reforms are connected with this. Life is constantly changing, and this means that in management we must constantly look for new solutions, each time we must comprehend what is happening in a new way, preserve the most valuable, creating the original, and not destroy the unique.
The history of public administration, unfortunately, is rich in examples when the unique is perceived with caution, mistrust and great difficulties. Many undertakings, initiatives and innovative forms have remained unclaimed. That is why A.N.’s reforms “didn’t work” at one time. Kosygin in industry and agriculture. The existing planned system openly rejected them. The control system, programmed according to predetermined schemes and templates, was constantly fighting with someone and something, debunking revisionism, “defending” the purity of the worldview, etc. All the reforms carried out, as a rule, were not distinguished by deep conceptual thought, harmony and promising consistency. As a result, the national economic complex plunged into a state of tension, instability, internal stagnation and external conflict. This became the objective basis for future restructuring and market reforms.
It all depends on how deeply the subject of management is able to comprehend the diversity of objective reality and take it into account in his practical activities. Without going to extremes. The art of management lies in giving objective reality a configuration that, on the one hand, would allow the total power of the state to be used as efficiently as possible, and on the other hand, would contribute to the intellectual strengthening of this power through initiative, creativity and a responsible attitude to the affairs of society. The first part of this formula requires the skillful distribution of goals, objectives and functions of public administration along the hierarchical pyramid of government bodies and government positions, while the second part requires the creation of a system of more reasonable stimulation of the creative potential of the subjective factor.
4.
The construction of the organizational and functional structure of any management system begins with defining its goals. Let us recall that a goal is a mental anticipation of the result of some effort, some type of human activity. This is a product of a subjective reflection of objective reality with access to the desired final result.
The purpose of public administration is this is the final or specific intermediate point on the path to achieving a certain state of society (or its subsystem) in accordance with the programmed prospects for its development.
Goal in management -- This is an ideal, internally motivating motive for activity in the name of satisfying urgent needs and interests. Another thing is how these goals are focused on people and how they take into account the resources and opportunities available in society. The latter, unfortunately, is often forgotten, giving rise to social wastefulness, political arrogance of the authorities, corruption and irresponsibility.
The situation changes significantly with the transition to democracy, which, based on broad civic activity, gives the goal-setting process greater objective validity and rationality. Even though non-democratic regimes can also carry out quick and fairly effective reforms, they are able to ensure high rates of economic growth, concentrating in one direction all the socio-political, financial, intellectual and material and technical resources at their disposal. But more often than not, all these economic achievements are short-term and, by and large, do not concern the interests of the broad masses of workers.
According to the Constitution, the Russian Federation has been proclaimed a democratic legal social state, the goal of which is a society with a decent life and free human development. The construction of such a society is considered as the main direction of the domestic and foreign policy of the Russian state, as its main strategic goals. In an expanded version, this goal is V.V. Putin formulated in his Address to the Federal Assembly RF back in May 2003. In the foreseeable future, he said, our country must take its rightful place among truly strong, economically advanced and influential states.
We finally realized that the strategy of the modern state is not idealistic missionaryism in the name of a bright future for all humanity, but to promote the material and spiritual development of its people. The main goal of public administration should be presented in a different version - maximum satisfaction of people's needs and the formation of a civilized way of life, the creation of appropriate conditions for a quiet life and creative activity of people, the formation of rational relations between an individual, the state and society.
The implementation of this goal can be ensured by solving a number of tactical and strategic tasks:
a) formation of a capable civil society;
b) building a state that ensures a safe and decent life for people;
c) the establishment of free and socially responsible entrepreneurship;
d) strengthening the fight against corruption and terrorism;
e) modernization of the Armed Forces and law enforcement agencies;
f) strengthening Russia’s position in international affairs.
The main characteristics of the goals of public administration can be presented as follows:
1) the goals of public administration in their essence and basic sources are objective in nature. The source of their emergence is society. They originate “from below”, come from the needs and interests of the people and therefore are objective in nature. Interests can be very different - national and regional, national and class, economic and political, domestic and foreign policy, general and private, public, corporate and personal. And all this cannot but be taken into account in the process of making and implementing government management decisions.
And this, despite the fact that the future, which lies in management goals, is unknown, hidden, alternative. We know what happened in the past and can study and evaluate it accordingly. But what will happen can only be predicted. Therefore, without scientific understanding and appropriate modeling of the future, no effective management is possible. The validity of Auguste Comte's formula - "to know in order to foresee, to foresee in order to manage" - has not been disputed by anyone and is unlikely to be disputed. Foresight, forecasting, programming and planning of social processes are indispensable elements not only of the goal-setting mechanism, but also of the entire management system;
public administration goals are subjective in form and external expression. This is a product of conscious choice and mental anticipation of the future. Goals are recognized and formulated by people, put forward by civil society institutions, and normatively enshrined by government bodies in relevant management decisions;
public administration goals are distinguished by their hierarchical and systematic nature. There are main, basic, global goals, and there are secondary, subordinate goals. The complexity of managerial goal setting lies in the fact that from a huge variety of possible options for forward goals, it is necessary to select those that are realistic and must certainly be implemented.
The classification and hierarchization of goals has not only scientific, but also great practical and applied political, socio-economic and moral meaning. For example, Marxism, with its materialist understanding of history and the division of society into a base and a superstructure, clearly considered goals of an economic nature as leading state goals. Economics seemed to be a concentrated expression of politics and the decisive basis for solving almost all problems of social life. That is why it is not surprising that five-year and current economic plans were the focus of attention of the party and state leadership, and were not always aimed at an effective and socially oriented solution to economic problems. Very often plans were an end in themselves and were implemented for the sake of these plans themselves.
Of course, without a strong and constantly developing economic base, no goals and objectives can be achieved. However, gross economic indicators, profits and gains cannot be the main goal of the state, the main guideline for its management activities. Economics is a basic and very serious factor in management, but it is still only a means to achieve the main thing. And the main thing is the person, as stated in the Constitution of the Russian Federation - the highest value of a democratic rule-of-law state 7 .
In the modern world, only states that have chosen a democratic form of organization of power and have learned to use planning principles in state regulation of market relations have achieved a high standard of living and social protection for those in need. How can one not recall in this regard Alexis von Tocqueville, who wrote that “democracy does not provide people with the most qualified government, but it produces what the most capable governments often cannot create, namely, all-pervasive and irrepressible activity, super-powerful force and inseparable it gives off energy that can work miracles, no matter how unfavorable the circumstances.” Therefore, people need to be taught democracy, it is necessary to constantly revive democratic ideals and cleanse morals, gradually introducing citizens to the affairs of government, ridding them of inexperience in these matters........
Pages: | | | | | |
State and municipal administration. Chirkin V.E.
M.: Yurist, 200 3. - 320 s.
The textbook is intended for introduction to the specialty of students studying in the specialty “state and municipal management”. This is a comprehensive publication that covers various management structures and processes, examines issues of management efficiency, the relationship and originality of various management institutions, and the relationship between state and municipal management.
For university students studying in the specialties “State and municipal administration”, “Jurisprudence”. It will be useful for government employees.
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CONTENT
PREFACE 1
Chapter 1 - STATE AND MUNICIPAL ADMINISTRATION: SOCIAL ACTIVITY, BRANCH OF KNOWLEDGE, ACADEMIC DISCIPLINE 1
§ 2. Necessity, possibilities and limits of state and municipal government 9
§ 3. Administration and management in state and municipal administration: State and municipal administration - science and art. 13
§ 4. State and municipal management as a branch of knowledge and academic discipline 22
Chapter 2 - THE STATE AS A MANAGEMENT SYSTEM 25
§ 1. State, state formation, territorial autonomy and administrative-territorial division 25
§ 2. State power and public administration 31
§ 3. State apparatus and civil service 35
§ 4. Regulatory norms in public administration 42
§ 5. Institutions of direct democracy in government 47
Chapter 3 - PUBLIC ADMINISTRATION: PERSON, COLLECTIVE, SOCIETY 48
§ 1. Public administration and people 49
§ 2. Public administration and collective 51
§ 3. Public administration and society 54
Chapter 4 - TERRITORIAL LEVELS OF PUBLIC ADMINISTRATION 57
§ 1. Territory and management 57
§ 2. General government 57
§ 3. Public administration of a subject of the federation 59
§ 4. Public administration and territorial autonomy 61
§ 5. Public administration, administrative-territorial units and municipalities 62
Chapter 5 - FUNCTIONS OF THE STATE AND PUBLIC ADMINISTRATION 63
§ 1. Functions of the state 63
§ 2. Public administration in the economic sphere 65
§ 3. Public administration in the field of social relations 71
§ 4. Public administration in the administrative and political sphere 75
§ 5. Public administration in the field of culture and ideology 80
§ 6. Public administration and the sphere of personal life 81
§ 7. Intersectoral public administration 82
Chapter b - PRESIDENT OF THE RUSSIAN FEDERATION IN THE SYSTEM OF STATE ADMINISTRATION 83
§ 1. The role of the President of the Russian Federation in public administration 83
§ 2. Powers and activities of the President of the Russian Federation 84
§ 3. Early release of the President of the Russian Federation from office and his responsibility 89
Chapter 7 - LEGISLATIVE POWER IN THE SYSTEM OF STATE ADMINISTRATION 91
§ 1. The role of the legislative branch in public administration 91
§ 2. Structure, powers and order of activity of the Russian parliament 93
§ 3. Legislative process 99
§ 4. Forms of parliamentary control 102
Chapter 8 - EXECUTIVE POWER IN THE SYSTEM OF STATE MANAGEMENT 102
§ 1. The role of executive authorities in public administration 102
§ 2. Composition, procedure for formation and resignation of the Government of the Russian Federation 103
§ 3. Powers of the Government of the Russian Federation and its activities 105
§ 4. Responsibility of the Government of the Russian Federation 109
Chapter 9 - JUDICIAL POWER IN THE SYSTEM OF STATE ADMINISTRATION 110
§ 1. The role of the judiciary in public administration 110
§ 2. Judicial system in Russia 112
§ 3. Constitutional principles of justice 115
Chapter 10 PROSECUTOR'S OFFICE IN THE SYSTEM OF STATE ADMINISTRATION 116
§ 1. The place and role of the prosecutor’s office in public administration 116
§ 2. Prosecutor's supervision 118
Chapter 11 - MUNICIPAL PUBLIC AUTHORITY AND LOCAL SELF-GOVERNMENT 119
§ 1. The concept of local government 119
§ 2. Fundamentals of local government 122
Chapter 12 - SUBJECTS OF RESPONSIBILITY, POWERS AND COMPETENCE IN LOCAL GOVERNMENT 150
§ 1. Subjects of reference 150
§ 2. Powers and competence of local governments 152
Chapter 13 - INSTITUTIONS OF DIRECT DEMOCRACY IN LOCAL GOVERNMENT 153
§ 1. Municipal elections 153
§ 2. Early recall of a deputy of a representative body and an elected official of local government 157
§ 3. Local referendum 158
§ 4. General meetings (gatherings) of citizens 160
§ 5. People's law-making initiative 161
§ 6. Individual and collective appeals of citizens to bodies and officials of local government 162
§ 7. Territorial public self-government 163
Chapter 14 - BODIES AND OFFICIALS OF LOCAL GOVERNMENT 164
§ 1. The role of local government bodies and officials in society 164
§ 2. Representative bodies of local government 165
§ 3. Elected officials of local government 169
§ 4. Executive bodies of local government 171
§ 5. Municipal service 172
Chapter 15 - RESPONSIBILITY IN STATE AND MUNICIPAL ADMINISTRATION 174
§ 1. Offenses and liability 174
§ 2. Responsibility of state and municipal bodies, organizations serving for offenses in the field of state and municipal administration 175
§ 3. Responsibility of non-governmental organizations and persons not in state or municipal service for offenses in the field of state and municipal administration 178
ANNOTATION
The manual shows the system of state and municipal government, the state of the economy, the modern system, trends and directions of development of Russia as a whole and its regions, the role of methods for managing the development of regions in the process of establishing the regional economy in the new economic space.
Based on the study of socio-economic processes occurring in Ulyanovsk
region, some proposals have been made aimed at increasing economic activity and the socio-economic standard of living of the region's population.
This work has an educational purpose, which is to introduce new material into educational work and help students, masters and graduate students in mastering this complex and pressing problem.
The textbook is an electronic version of the book:
Romanov, V. N., Kuznetsov V. V. System of state and municipal management: textbook / Ulyanovsk: Ulyanovsk State Technical University, 2008. –153 p.
TABLE OF CONTENTS
Introduction
Part one. Public administration
The nature and essence of public administration
State: forms of government, forms of government, functions
State power and public administration: the relationship of concepts and principles of organization
Federal Assembly of the Russian Federation: formation procedure, legal basis
activities, structure and powers
System of government
Federal executive authorities: organizational and legal forms, structure, powers
Federal districts of the Russian Federation
Legislative (representative) authorities of the subjects of the Federation
Information systems and social management
State and social sphere
Questions on public administration
Part two. Local government
Formation, principles, essence of local governments
History of the development of local self-government in Russia
European models of self-government development
Organizational foundations of local government
Features of the functioning of a representative body of local self-government
Financial and economic foundations of local government
Social components of local government
Regulation of activities in regions and municipalities
Assessment of the activities of municipal bodies
Conclusion
Questions about local government
List of topics for student research work
Topics of coursework in the discipline “Public and Municipal Administration”
Literature and other sources for use in research work and writing term papers
Introduction
Modern management of territories and regional economies is based
on the concept of active participation of the state in it not only as a state-
a regulator that sets the “rules of the game” in the market and implements the regulatory mechanism, but also as an owner state in a market economy, its subject. However, to date, state regulation of the economy in Russia has not yet fully developed. There are separate laws and regulations to regulate certain areas of the economy and social sphere, but there is no scientifically based program for the development of the country and its regions. There is no code for state regulation of socio-economic development.
The lack of strategic development documents does not allow planning the main directions, factors and resources of development. This has led to the fact that over the past 15–20 years, the countries of the “golden billion,” while RUSSIA was “engaged” in reforms, have basically completed the fourth technological stage
revolution associated with the intellectualization of production, and began to
creating a new type of post-industrial society. World market size
science-intensive products today amount to 2 trillion \300 billion dollars. Of this
39% of the total is in the USA, 30% in Japan and 16% in Germany. Share
Russia is only 0.3% of the world level. Production of knowledge-intensive
products are provided by only 50 macrotechnologies, the seven most developed
countries, possessing 46 macro-technologies, hold 80% of this market. USA
annually receive about $700 billion from the export of high-tech products,
Germany – 530, Japan – 400 billion dollars.
Our country, according to scientists, should have 8–12% of this market, or $500–600 billion per year. Priority macro-technologies can be: aviation, space, shipbuilding, nuclear energy, special chemistry and metallurgy, biotechnology, special mechanical engineering, telecommunications and communications, microelectronics. The country has its own scientific school in these areas. Russia, occupying one sixth of the earth's landmass, is one of the richest countries in the world. Our country is home to 3% of the planet's population; 35% of the world's resources and more than half of the energy raw materials are concentrated on its territory. With a summary estimate, each Russian turns out to be 3–5 times richer than an American and 10–15 times richer than any European. Russia is the only country in the world that is self-sufficient for intensive socio-economic development.
The 21st century is characterized by the acceleration of all processes, including the process
management quality. Significant scientific contribution to the development of the theory of transformation
progress towards a new quality of management of regional development, for example, was introduced by
scientific forces of the Russian Academy of Public Administration (RAGS). Professional
rubbish Yu. Alekseev reduces the main provisions of the recommendations developed to
three directions:
1) the quality of life of the population of the region and its individual structures is intended to become the main task of the sphere of management;
2) the quality of the socio-economic development of the territory should be based on modern advanced theories that promote the most effective use of the created potential of the territories and its sustainable development;
3) quality management should be built on modern theories
management, which should contain the latest technologies, tools -
resources and management resources necessary to ensure the quality of life in
settlements of territories: management qualifications, monitoring of the current state and analysis.
In this work, based on the study and analysis of statistical data, scientific works and monographs of leading Russian specialists who have been dealing with macroeconomic problems and problems of the regional economy for a long time, the task was to show the current state of the economy,
trends and directions of development of Russian regions, the role of the state in management
understanding the processes of regional economic development in the new economic
space.
Since the abandonment of the centralized system of territorial management, the issue of division of powers and financial support for the regions to fulfill their powers remains not fully resolved. The question is, of course, broader. Obviously, we should talk about the right to own property and the system of distribution of income received from the use of this property. Quite a lot of research confirms the insufficiency of local budgets to ensure the implementation of the powers of local authorities. As a result of this policy, regions are further differentiated according to basic macroeconomic indicators. Academician A. Granberg, a great authority on the distribution of productive forces, notes that such huge internal differentiation is unique to one state; it even exceeds the gap between the countries of the “golden billion” and the rest of the poorest part of humanity.
The message is brought to the attention of the population through the media that
capitalist social system provides more efficient use
use of property and, therefore, it must be privatized.
Over the past decade, theoretical studies have appeared both in Russia and abroad confirming the controversial nature of this statement.
The SEPIN program proposed by Professor S. Melnikov -
socio-economic support for the interests of the population of the territories - implies new attitudes towards property and income. He rightly believes that the population of this territory, with sufficient information and
creating an adequate structure for managing the property owned by him, will work for himself with maximum efficiency to ensure his social, economic interests and in the interests of self-development.
An analysis of the functioning of large and medium-sized enterprises, enterprises of housing and communal services, energy, agricultural production and, in general, socio-economic processes occurring in the Ulyanovsk region, allows us to assert that without the right of ownership
property located in a given territory and the income received from the use of this property, the population cannot ensure normal socio-economic functioning and development.
Academician V.I. Kushlin writes that the question of the future type of social and economic development has been brought back to the conceptual plane. If
the previously existing imbalance in the distribution of resources and economic potential seemed natural and reflected the contribution to global development accordingly.
living peoples, then recently it has caused not only bewilderment
among nations lagging behind in terms of consumption, but also active protest.
Director of the Institute of Globalization Problems, Professor M. Delyagin, develops this idea from the point of view of the need for the practical implementation of the principles of economic efficiency and social justice.
He believes that the principle of efficiency is not opposed to the principle of social justice in the long term, which is most important when analyzing the development of mankind; the principles do not reject, but mutually imply each other.
In addition to general theoretical issues, this textbook examines issues of management technology for cities, municipalities and regions.
Elements of planning are beginning to be introduced into the practice of managing these structures. Professor Kazantsev substantiates the need for forecasting
planning and planning of socio-economic development of regions and the country in
in general. But today we cannot yet talk about high quality and effectiveness
of these documents: there is no uniformity in design, there is often no clear difference between the conceptual, strategic plan and the territorial development program, there is no linkage of development plans by levels of government: municipal authorities, cities, regions. The documents developed are often illegitimate and do not contain the fact of public consent; the planned development programs are not supported by resources and do not fully take into account the influence of external factors. The “pyramid of management functions” presented in this textbook is designed to help students, masters, graduate students and practical management workers clearly divide the purpose and content of each stage of planning and, in general, making management decisions on the life of territories.
Electronic version of the book: [Download, PDF, 925.22 KB].
To view the book in PDF format, you need Adobe Acrobat Reader, a new version of which can be downloaded free of charge from the Adobe website.
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