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

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

General principlesstate and municipal administration include:

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

2. Democracy.

3. Responsibility.

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

8. Combinations of centralization and decentralization of management.

9. Publicity.

10. Legality.

11. Functional and industry-specific.

12. Double subordination.

13. Linear-functional.

14. Combinations of one-man management and collegiality.

15. Situational management for deviation, for disturbance, for forecasting disturbances.

16. Program-target.

17. Planning.

18. Science.

19. Delegation of authority.

Let's consider their content.

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

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

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

4. The principle of ensuring human and civil rights and freedoms demands from officials and employees of state and municipal administration bodies strict observance of human and civil rights and freedoms established by the Constitutions of the Russian Federation.

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

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

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

However, the next article of the Constitution statesthat "state power in the Russian Federation is exercised by the President of the Russian Federation, the Federal Assembly (the Federation Council and the State Duma), the Government of the Russian Federation, the courts of the Russian Federation." Thus, it turns out that state power is exercised by four authorities. What power the President exercises is not directly indicated in the Constitution. However, it can be concluded that the President, in accordance with the Constitution, exercises supreme power.

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

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

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

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

From the principle of federalism the following requirements:

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

A clear definition of the powers of federal bodies of state power, ensuring the protection of the interests of the Russian Federation as a whole and not limiting the independence of the constituent entities of the Russian Federation in resolving issues attributed to their jurisdiction,

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

7. The principle of democratic centralism is the most important principle of state and municipal management, which determines the content, forms and methods of activity of management bodies, managers and executives at all levels of management. WITH weaknessof this principlelies in the combination in state and municipal management of democracy as the sovereignty of the people, its initiative, the election of government bodies, their accountability to the population, ensuring the development of independence and creative activity of local self-government bodies with centralization as a priority of the interests of the majority, allowing a unified general state policy in the main issues of state and municipal administration, with the responsibility of each state and municipal body and official for the task entrusted.

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

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

Central bodies state administration outside the limits of its powers does not have the right to interfere in the activities of local government bodies. Such an approach ensures the implementation of centralism within the necessary, optimal limits, imparting an organized character to democracy, allowing it to solve general and particular problems. The main problem in the implementation of the principle of democratic centralismis the optimal combination, a measure of centralism and democracy. The main thing in this dichotomy is democracy, since it forms the basis of centralism.

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

8. From the principle of democratic centralism follows the principle of combining centralization and decentralizationstate and municipal government. Its essence is to ensure the coordination of state and local interests through a clear division of the competence of federal government bodies, government bodies of the constituent entities of the Russian Federation and municipal government bodies.

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

In state and municipal administration principle of publicity is a way of realizing direct and feedback between governing bodies and the population. Implementation of the principle of publicity ensures the growth of citizens' activity in the assessment, selection and promotion of personnel to governing bodies.

The principle of publicity it is especially important in increasing the responsibility of leaders, as well as increasing the demand of people for their assigned work.

Implementation the principle of publicity in management is closely related to the law of citizens' participation in state and municipal government, ensuring the inclusion of wide layers of citizens in state and municipal management, especially in cases of the need for open, comprehensive discussion and adoption of important management decisions.

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

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

Legality state and municipal administration is also important because in a number of cases, government bodies are endowed with the powers of independent development and adoption of generally binding rules of conduct.

Relationship of governing bodies with citizens and public organizations can be carried out strictly within the limits of their authority. Not a single state or municipal body carrying out management activities can itself change, expand or narrow the competence assigned to it.

11. Functional and industry principle combines two principles: industry and functional.

A) Industry management principle requires such an organization of management, in which homogeneous, organically related objects of management are assigned to the body of state or municipal government. For example, utilities, education, health care, culture, etc.

Industry organization state and municipal administration allows staffing the apparatus of governing bodies with specialists who know the theoretical and practical issues of the functioning of a particular sector of the economy, capable of making optimal decisions on the management of this sector.

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

B) Functional principle as component functional-sectoral principleforms a requirement, in accordance with which the authority is entrusted to the management body to perform a certain function of state or municipal government.

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

12. The principle of double subordinationin state and municipal government means the requirement for subordination of a specific body to functional or industry competence general authority (government, administration) and the corresponding higher the governing body on issues of its competence.

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

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

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

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

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

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

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

14. The essence of the principle of combining one-man management and collegiality in state and municipal administration lies in the fact that in state and municipal administration, both one-man and collective administration is carried out. The choice of each of them is determined by the nature of the control object. So, in the management of the sector of the economy, principle of one-man management management, in accordance with which the management of the industry is carried out at the federal or republican level by the minister, at the regional, regional, city and district levels - by the head of a department or department.

This approach is determined by by the fact that, on the one hand, for the management of homogeneous objects that make up the industry, it seems possible to select a candidate with high professional knowledge and organizational skills for the position of the head of the industry. On the other hand, to make the leader responsible for the results of the industry.

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

This approach is defined by the circumstance that intersectoral management, on the one hand, requires a manager to have various professional knowledge, which is practically impossible for one person to master. On the other hand, if the minister makes an erroneous decision, then in this case the damage will be caused to one branch of the economy; an erroneous decision in cross-sectoral management will harm all sectors of the economy or most of them. The collegiality of making intersectoral management decisions significantly reduces the risk of making erroneous decisions.

The essence of the combination principle one-man management and collegiality also lies in the fact that in the implementation of one-man management, important fundamental issues of the activities of a state or municipal government body are discussed by specially created advisory bodies - collegia. The collegiums make decisions by the majority of their members in the form of decrees. The decisions of the board are enforced by legal acts of the head of the governing body.

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

At the same time, the chairman of the board reports on disagreements, and depending on the form of subordination to the President or the Government of the Russian Federation. The members of the board have the right to communicate to these persons their special opinion on the decision... This approach to the role of the board as a deliberative body gives its members a certain legal statuspositively influencing the efficiency of the decisions made.

15... The essence of the principle of situational management consists in the implementation of control of the object in the process of maintaining its functioning at a given level. In other words, this principle means control proceeding from the current situation in the object, which must be changed to bring the object to a given level.

Situational management principleprovides three types of control: by deviation, by indignation, by forecasting disturbance.

AND) The principle of contingency management by deviation means that the control body forms the control action only after the detection of the deviation that has arisen in the control object, for example, no pension is paid, or hot water has ceased to be supplied to the population. This control principle is the simplest and most widely used. As a rule, it requires significant expenditures of all types of resources, including the compensation of moral damage to citizens.

B) More perfect is perturbation contingency control principle... Such control provides for the identification of disturbances to the point where they can cause a deviation. Having determined the indignation that has arisen, the governing body takes the necessary measures in a timely manner to eliminate it and thereby does not allow the occurrence of a deviation. In our example, this can be the timely replenishment of the pension fund or the maintenance of the reserve heating equipment in working order. To meet these conditions, significantly less resources are required than to eliminate the deviation that has arisen.

C) The most effective is the principle of situational control for predicting disturbanceswhen conditions that can cause outrage are neutralized. Such management is carried out in our example by creating the necessary cash reserve in the pension fund or storing heating equipment in a warehouse (the so-called cold reserve), which is necessary to replace failed equipment without interrupting the supply of hot water to consumers with the help of a working reserve equipment (hot standby).

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

Targeted programs provide a complex of research, production, socio-economic, organizational and other activities, linked in terms of resources, performers and timing of implementation, that ensure an effective solution to clearly formulated goals.

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

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

17. Principle planning of state and municipal administration provides for the need to develop forecasts, programs and plans for social economic development the corresponding territorial entity, as well as the work plans of the governing body.

18. Principle scientific means the need, firstly, to implement the construction and improvement of state and municipal government based on the science of management; secondly, the performance of work to find optimal management solutions using scientific methods.

19. Essence the principle of delegation of authority consists in the provision by the head of the management body to his immediate subordinate-deputies, non-cruel leaders of some of his rights and responsibilities for the independent solution of clearly defined issues by them, the responsibility for which remains with the head of the management body.

When delegating authority the decentralization of management is carried out, which contributes to timely decision-making, and also creates conditions for the head of the management body to focus on solving promising and other primary tasks. Employees to whom the head of the governing body has delegated some of their rights and duties are responsible for their implementation before the head of the body.

Management is a universal and necessary element of the world around us. In the broadest sense of the word, these are various ways of influencing the subject (subjects) on the object (objects) that change the position, behavior and properties of the subject (subjects). From this point of view, even the gravity of the planets of the solar system can to some extent be regarded as mutual multilateral control. However, management is most often understood not as spontaneous, but as a purposeful impact on the part of people (devices created by them) on those objects that are amenable to regulation. Not all objects, events, states can be controlled by people (for example, space). It is useless to apply management measures to an inappropriate object. Not all goals can be achieved in management (for example, in the field of weather management). Therefore, applying management measures, you need to set realistic goals.

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

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

Most often, the impact in management is understood as a one-line: subject - object. We usually see only these direct connections, but there are also feedbacks: the impact of the object on the controlling subject. It is very important to take these connections into account, especially in public administration: the reaction of the population to the administrative measures of state authorities and municipal administration can change and often does change management decisions. In addition, the subjects and objects of management in this process can change places: the object becomes a subject (subordinates demand that the boss, who has lost trust, leave his position, and they achieve this). Reverse influences can also be considered from the point of view of cybernetics as management, they may have a goal (as a result of a strike, the administration of an enterprise increases wages), but in state and municipal management, to characterize feedbacks (in the form of influences) the term "management" is not used, it means direct connections of a volitional, "command" nature.

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

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

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

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

The task of specific targeted regulation of social processes, i.e. orientation of economic development in a certain direction, political and spiritual processes, the implementation of specific measures - the development of transport, education, health care, culture, etc. solved by the application of public power, which is concentrated in the hands of certain institutions of the political system. First of all, this is the state, acting as a representative of society (state-organized society), although in practice the state usually represents, first of all, the interests of the social strata dominating in society. The state exercises state management of society. Acting on behalf of the people, it creates its own organs for governance: parliament, government, courts, etc.

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

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

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

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

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

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

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

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

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

Public power is a static phenomenon to a certain extent. In order for it to be used as a dynamic relation, i.e. for management, some fact (event, action, etc.) of public importance is needed. In this case, the subject of control acts as power, applying power for certain purposes. A management relation arises: an acting subject, an object and a managerial connection between them.

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

Society and municipalities are complex systems where the principles of not only cybernetics, but also synergetics operate. This means, in particular, that society and the municipality are governed in a structurally unstructured way. Bodies of the state and the municipality set the structure of management, but in addition to them, other factors (economic, social, ideological, etc.) act in society, the municipality, which also have an impact on management. In the case of structural management, information (including instructions and other management acts) is distributed in a targeted manner, according to a special structure and to a designated object. In case of structureless management, information, spreading freely or along random chains (through neighbors, former classmates, etc.), can influence the manager. For example, a subordinate wants to get a promotion, but he cannot directly influence the boss. Then structureless management is used: around the boss, for example, through the friends of his wife, a public opinion, which affects the manager, and the subordinate receives the desired reward. This is a joking example. In fact, many processes of social management in society and in the municipality have a structureless nature (movement work force, the upbringing of the younger generation, demographic processes - birth, death, etc.), and the state and municipal authorities can only partially influence them, and on some they cannot at all.

Researchers name various management principles and their unequal number (the largest, 14, was named by the French author L. Fayol). The overwhelming majority of them are applicable, sometimes with some peculiarities, to state and municipal administration, while others need rethinking. As a result, the following principles of state and municipal administration are formed.

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

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

3. Unity of management on a certain range of issues and the specificity of performers. With many managers giving instructions on the same issue, confusion arises, and without a specific designation of the executor, orders are not carried out.

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

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

6. The constancy of management personnel. The turnover of leaders and executors is harmful to the business.

7. Fairness in relation to superiors, subordinates, employees of the governing body. Rewards and punishments should be proportionate to the deed and be regarded by the team as reasonable and fair.

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

9. Remuneration for managerial labor. This work should be paid in accordance with its social utility, quantity and quality.

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

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

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

Thus, state and municipal administration is a special kind of social activity for the purposeful use on the basis of the law and other legal acts of public authority by a special group of people (bodies, officials), carried out on a professional basis. This leads to the establishment of direct and command connections, binding the object, but general rule taking into account feedbacks, object - subject. Under the influence of feedbacks, the actions of the subject can change.

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

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

Different methods are used to achieve different goals. Technical management of road traffic by the state security inspection road traffic or the activity of the administration of the municipal formation on the repair of the school is not at all the same as the management of society through the adoption of laws by parliament or the approval of the budget of the municipal formation by its representative body. Management through the adoption of judicial decisions differs from the management carried out by the head of the department of the administration of the municipality, the activities of the Ombudsman are not at all the same as the protest of the prosecutor against an illegal decision of the local government, etc.

In the management system, its goals are of paramount importance. There are specific goals (organizing activities for the repair of a local road), and there are goals of a global order, which should be consistent with universal values \u200b\u200b(freedom, democracy, social justice, etc.). The goals must be realistic and achievable. It is useless to engage in managerial activities if the goal is impossible in itself.

Management objectives determine the essence of management decisions: the choice of actions by which the objectives should be achieved.

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

Management stability is essential to success. Not rush jobs, but persistent consistent work brings results. From this point of view, it is necessary to calculate in advance the effectiveness of management: achieving the best results in the shortest possible time with the least expenditure of material resources and management energy. Effectiveness is not related to the quantitative side of management: too much management (excess management) is just as bad as lack of management (little management).

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

Timing matters. Management task must be resolved in time. Otherwise, it may turn out that its solution is belated and simply no longer needed. one

Institutions that are not of a public nature can be used in state and municipal administration. In the countries of Muslim fundamentalism (Saudi Arabia, Oman, etc.) crucial role religious norms play a role in government. In some countries, public associations are used for management (for example, many functions of control over labor protection have been transferred to trade unions in Russia, in France, business unions may carry out arbitration in trade cases, etc.).

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

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

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

The influence of the subject (body, official, etc.) on the control object generates feedback. The subject of management receives information about the behavior of the object, about the implementation (non-fulfillment) of management "commands". It is collected in the receptors of the control system. Such receptors can be bodies or officials directly exercising control, think tanks. A system that runs smoothly gives planned and even information. In case of failures, regardless of whether they occur in the field of direct or feedback, the information has a spasmodic, uneven nature, distortions take place. In the receptors, the selection and transformation of information takes place, the separation of the essential from the insignificant, the generalization of the material for the conclusion that the controlling subject makes.

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

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

Feedbacks are especially valuable in determining the quality of management. It is from the object that information about the correct understanding and execution of "commands" or data indicating failures or deficiencies in the control system comes from. It happens that the managed object not only misunderstands the "commands" (for example, due to insufficient qualifications of personnel, due to communication failures), but distorts feedbacks, sends false information to the managing subject (most often this is due to hiding shortcomings in the work ). Disadvantages can be hidden for a long time and, if the situation becomes more complicated, lead to a management crisis, or even to collapse, accompanied by the liquidation of institutions, mass dismissal of officials, and bringing them to justice, including criminal liability. Therefore, the constant control of the managing subject for the objectivity and accuracy of the data in the feedback process is important. If distortion of feedbacks is detected, their content should be taken appropriate measures.

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

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

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

QUESTIONS

the final state exam in the specialty "State and Municipal Administration"

State and municipal administration.

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

Economic theory

Control - the function of organized systems of various nature (biological, technical, social), ensuring their integrity, that is, achieving the tasks they face, preserving their structure, maintaining the proper regime of their activity.

Management serves the interests of the interaction of the elements that make up the system. Management is the internal quality of an integral system, the elements of which are subject (control element) and an object (controlled element) constantly interacting on the basis of the organization.

There are many interacting integral systems of various hierarchical levels, which presupposes the implementation of management functions of both an intrasystem and intersystemic nature.

Management consists in ordering the system, ensuring its functioning in accordance with the laws of its existence. This is a purposeful ordering effect, realized in the connections between the subject and the object.

Management is real when there is a subordination of the object to the subject of management. Managing influence is the prerogative of the subject of management.

Managerial ties are realized through relationships between people. Society is a holistic organization with a complex structure. Hence the need to express the general connection and unity of social processes, which is manifested in the implementation of social management.

Social management - impact on society as a whole or on its individual links in order to ensure the preservation of their qualitative specificity, their normal functioning, development, successful movement towards a given goal. Social management exists only where the joint activity of people is manifested. Only management organizes people for joint activities to certain groups.

Social management has the main goal of ordering the impact on the participants in the activity. This ensures the consistency of individual actions, and also performs the general functions necessary to regulate such activities (planning, control, etc.).

The object of the impact of social management is the behavior of participants in joint activities, their relationships (categories of a consciously - volitional nature).

Social management is based on a certain subordination of the wills of people - participants in management relations. The will of the governors takes precedence over the will of the governed. Hence the imperiousness of social management - the subject forms and implements the dominant will, and the object obeys it.

Powerful-strong-willed moment. In the conditions of the state organization of public life, the necessary intervention of the state authorities in social relations is ensured.

Social management needs a mechanism for its implementation. The role of such is played by a certain group of people, organized in the form of the appropriate management bodies, or individual authorized persons. Their activity is called managerial.

Management solution constitutes the main means of control, with the help of which the normal functioning of controlled systems is ensured. A sign of a managerial decision is its direct focus on the system of organizing collective work.

Management, in a social sense:

in a broad sense as a mechanism for organizing public relations. The tasks and functions of management are performed by all state bodies, regardless of their specific purpose, and public associations;

in the social sense, as public administration, it is a specific type of state activity that distinguishes it from other manifestations (legislative, judicial), as well as from the management of the activities of non-state formations (commercial structures) and public associations.

2) the definition of state and municipal government

Currently, in the educational and scientific literature (including this work), the concepts of "municipal government" and "local government" are used as identical. The term "municipality" (German Munizipalitat) has a threefold meaning: 1) the system of local self-government, a set of various structures of local self-government; 2) an elected body in the local government system; 3) the building or system of buildings where the elected local government body is located.

Municipal government is a scientific discipline in the system of economic knowledge that studies the management of regional socio-economic systems.

The system of municipal government is formed on the basis of the principle of self-government, which consists of a subject of government (local government) and an object of government (municipal formation and municipal economy).

The principle of self-government is a rule that must be followed when developing forms of democracy. This principle ensures the organization of activities of the population for the independent and under its own responsibility to resolve issues of local importance.

Local self-government in the constituent entities of the Russian Federation and in their links (cities, rural settlements, administrative districts) should be carried out taking into account historical, natural, economic, demographic conditions and characteristics, as well as local traditions.

Municipal governance is a practical, organizing and regulating influence of local authorities on the social life of the population of a municipality in order to streamline it, preserve or transform, based on their power.

“Municipal governance” as a complex discipline that studies municipal governance and the laws of its functioning, on the one hand, acts as an independent one, and on the other hand, it is closely related to other sciences and relies on the results obtained by them.

The use of economic sciences makes it possible to conduct economic assessments of the activities of municipal government bodies, to analyze the state of the economic base of municipal government.

Historical sciences make it possible to characterize the evolution of municipal government, its conditions and predict the social processes taking place in the municipality.

Sociology contributes to the theory and practice of municipal government through the study of the functioning of public institutions, without which effective management at the municipal level is impossible.

Political science provides knowledge about the political behavior of the population, as well as about the interaction of local governments with political parties and movements.

Municipal governance requires a systematic approach.

Municipal governance as a special discipline has its own concepts, categories, and its own terminology.

So, the terms "municipal", "local" are used in relation to local governments at all levels. The concept of "municipal property" characterizes the property of the municipality. Municipal service is the professional activity of management employees on an ongoing basis in local government bodies.

The subject of municipal government is the population of the municipal formation and the local government bodies formed by it.

The object of municipal government is a municipal formation with all its structures, connections, relations, resources.

The specifics of municipal management is determined, first of all, by the characteristics of the municipality as an object of management, which includes all aspects of people's life. For example, speaking about the effectiveness of municipal management, it is impossible to limit ourselves to only economic efficiencyleaving out of consideration the social, "moral" efficiency of certain managerial decisions. At the same time, residents of a municipality are simultaneously both an object and a subject of management in relation to the system of municipal government bodies, since the population controls their affairs either directly (through elections, referendum), or indirectly (exercising control over the activities of municipal government bodies).

At present, local self-government in Russia is, in fact, in a state of transition from a system of "local councils" to a system of local self-government. During the formation of the system of municipal government, it is necessary to solve the following main problems:

Rational delineation of powers between federal, regional and municipal administration, and above all in the field of budgetary relations and property relations;

Improvement of methods and structures of management in order to increase the efficiency of the entire system of municipal government;

Creation of an effective system of personnel training for work in municipal authorities.

3) the history of the development of state and municipal government.

Local self-government and government in Russia has its own characteristics at different stages of its history. In Russian cities of the X-XII centuries. Veche became widespread as the supreme power, which empowered the chief officials. The activity of the old Russian veche usually boiled down to a vocation on the part of the prince, to the development of legislation, the solution of issues of war and peace.

The history of local government in Russia in the 15th - 1st half of the 17th century. are subdivided into three eras:

1. The era of "feeding" - management through governors in cities and volostels in volosts - until the 1st half of the 16th century;

2.Zemskoe and regional administration (self-government) - 2nd half of the 16th - early 17th centuries;

· Prikazno-voevodnoe administration in combination with self-government (XVII century).

The viceroy, being a representative of the supreme power, simultaneously exercised judicial powers. The main purpose of governors and volostels was to carry out communication between the population and the state. Internal management, as a rule, was carried out by elective sotsky and headmen. The breeders not only significantly exceeded the “norms” of collecting taxes, but also undermined the influence of the supreme power, not implementing its instructions. Already at the end of the 15th century. the judicial powers of the breeders are beginning to be gradually reduced.

Under Ivan IV, the government takes the next, important and decisive step in the reform of local government and the court. The governors and volostels were replaced by elected zemstvo authorities, elders and zemstvo judges, who were entrusted with the court in all matters. Instead of "feed" and duties, they had to pay monetary "quitrent" to the royal treasury. The government assigned for each district only the total amount of the quitrent to be paid, and then the townspeople and peasants had to divide this quitrent among themselves in accordance with the property qualification.

The development of self-government institutions in Russia in the XVIII - 1st half of the XIX century. The entry of Russia into the era of absolutism was accompanied by the division of various groups of the population into four estates: nobility, peasants, clergy and urban population. The division of society into estates determined, along with national centralized management, the presence of a special estate management, which included some aspects of local economy management.

In 1699, the cities were given the right to choose their own mayors, who made up the town hall, which in turn chaired, dealt with judicial issues and collected taxes and revenues from commercial and industrial inhabitants. By the end of the reign of Peter I, the town halls were transformed into magistrates. In 1720, the Senate was ordered to establish an exemplary magistrate in St. Petersburg, which was to arrange magistrates in regional cities and govern them. The magistrates ran the city economy, had to take care of the development of trade and industry, the improvement of cities and decided not only civil, but also criminal cases of urban inhabitants subordinate to them.

Peter I carried out a new administrative division of the country, as a result of which Russia was divided into 10 provinces. The provinces were headed by governors appointed by the king. They were in charge of the civil administration of the provinces, command of the troops, police and some judicial functions. Provinces were divided into provinces, which were ruled by governors, and provinces - into districts, where zemstvo commissars ruled.

“Under Catherine II, the provincial reform of 1775 was carried out. By the end of her reign, 50 provinces were established in the European part of Russia, each province was divided into counties with a population of 20 to 30 thousand people. Both in the provinces and in the counties there were three rows of institutions: the general administration, financial management and judicial institutions (separately for the nobles, urban inhabitants and state peasants). The provinces were headed by governors, governors-general or governors, who were appointed by the supreme power and had broad powers in the field of government. To help the governor, a provincial government was established as an advisory body, which included two provincial councilors, a provincial prosecutor and heads of the most important provincial institutions. At the head of the district administration was the zemstvo police chief, or captain. "

In 1785, a "letter of gratitude to the nobility" was issued, which provided the nobility with a number of rights and advantages. The noble assemblies elected the provincial and district leaders of the nobility, had the right to make representations to the government about their benefits and needs. However, their activities were closely monitored by the governors.

Under Nicholas I, in the law of 1838, the bodies of peasant self-government received regulation. Rural societies were established in every large village. Their governing bodies were the village gathering, the village authorities (foremen, sotskie, tenth, tax collectors) and village reprisals (the first instance of the village court). In each volost, made up of rural communities, a volost gathering, volost government and volost reprisals (the second instance of the rural court) were established. The board consisted of a volost head and two deputies - for police and economic affairs. The task of the peasant public administration included "counting", control over the affairs of faith, the maintenance of public order, passport control, fire-prevention measures, management of the economy of rural communities, collection of taxes and the implementation of duties. The work of peasant bodies was controlled by officials from the treasury, a cumbersome bureaucratic apparatus, the maintenance of which was entrusted to the same peasants. The 1838 law did not affect the position of the landlord peasants. The landowner, as the owner of the land and peasants, performed police and judicial duties within the limits of his estate.

Organization of local self-government after the peasant reform of 1861. Until the era of Alexander II, all self-government bodies in imperial Russia were of a class character.

The competence of the zemstvo institutions included: the appointment of monetary collections for local needs, management of zemstvo property and capital; arrangement and maintenance of local communication routes; provision of food, assistance in the development of local trade and industry, charity, assistance in the construction of churches and schools; healthcare; assistance to military and civilian authorities in their local activities; providing the government with information and petitions on local benefits and needs.

"The regulation of 1864 did not include zemstvo institutions in the general system government agencies countries, which removed a significant burden from the budget. Service in them was attributed to public duties. " Officials of zemstvo councils (chairman and members) did not enjoy the rights of public service. Zemsky assemblies and councils did not have their own real power, which would allow them to strictly monitor the implementation of the adopted resolutions in the county and province. If someone did not fulfill the duties assigned to him, the zemstvo could demand from the local police the use of coercive measures or recover from the guilty through the courts.

The Minister of Internal Affairs personally exercised supreme control over local self-government bodies throughout the country; in the province, the implementation of this function was entrusted to the governor. The head of the province and the minister approved the chairmen of the county and provincial zemstvo boards, respectively. The ministry established the rules for the conduct of affairs in the zemstvo assemblies. A number of resolutions of the zemstvo assemblies could not be put into effect without approval from above. The highest supervision over the activities of zemstvo institutions was exercised by the Government Senate. He had the right to finally resolve all disputes between zemstvo institutions and the local administration and external government bodies.

In 1870, the City Statute was published, which introduced all-estate local self-government in cities. All residents who paid city taxes were divided into three classes according to the amount of taxes they paid, and each group elected the same number of vowels to the city council. “The system of city public administration bodies was composed of:

1 City electoral meeting for election of vowels every 4 years;

2 City Duma (administrative body);

3 City government (executive body) ".

The tasks of the city government included the solution of local cultural and economic affairs: the external improvement of the city, the maintenance of city communications, taking care of food, education, taking measures against fires, maintaining charitable institutions, museums, theaters, libraries, hospitals. The competence of city self-government was strictly limited to the city and the land allocated to it.

Zemstvo and city institutions existed in their original form for less than 30 years, but managed to bring a lot of benefits. However, the development of public administration began to be seen as a threat to the political domination of the nobility, the Russian bourgeoisie actively ousted representatives of the nobility from the zemstvo and city institutions, the importance of the zemstvo democratic intelligentsia grew.

On July 12, 1889, the Regulations on zemstvo district chiefs were issued, which put an end to the hopes of zemstvo institutions to extend their influence to the volosts.

In 1892, the City Regulation was adopted, which established an extremely high property qualification for city voters. Thus, the organization of the system of administrative and economic institutions under the Ministry of Internal Affairs was completed, the lowest level of which was the zemstvos. However, under the influence of the failures of the Russo-Japanese War and anti-government demonstrations on December 12, 1904, the government was forced to pass a law establishing State Duma, published on August 6, 1905. Thus, a people's representation was established in Russia. At the same time, the preservation of the autocratic character of power affected the subsequent events that led to the February Revolution of 1917.

Analysis of the nature of local self-government (government) in pre-revolutionary Russia allows us to draw the following conclusions:

1. Local government (self-government) in Russia since the time of Peter I acted as three systems: bureaucratic, zemstvo and estate;

2. Democracy of local self-government related primarily to the nobility as the dominant class in society;

3. Local government was not separated from the state, its executive bodies were local links of a single vertical of government, which consisted of appointed officials. The main difference was in the presence of elected representative bodies;

4. Management at all levels was characterized by limited powers of the representative government.

The 1936 USSR Constitution transformed the local Soviets of Workers ', Peasants' and Red Army Deputies into Soviets of Working People's Deputies. Congresses of the Soviets were abolished, the Soviets became permanent bodies of power. All Soviets were elected by citizens on the basis of universal, equal, direct suffrage by secret ballot. The executive committees became only executive and administrative bodies.

In 1957, the Central Committee of the CPSU adopted a resolution "On improving the activities of the Soviets of Working People's Deputies and strengthening their ties with the masses." The rights of local Soviets were expanded in the field of planning the national economy, production and distribution of products of local industry enterprises. The role of regional councils as the highest levels of the system of local authorities has grown.

The 1977 USSR Constitution changed the name of the Soviets to Councils of People's Deputies. All the Soviets constituted a single system, which was headed by the Supreme Soviet of the USSR.

Local Councils were links in a unified system of government bodies. They were entrusted with the task of ensuring the economic and social development of the territories, received the right to consider draft plans of enterprises and organizations of higher subordination, monitor their compliance with legislation, coordinate their activities in the field of land use, nature protection, construction, use labor resources etc. The Constitution established the mandatory application of acts of local Soviets, the right of trade unions, the Komsomol and other mass public organizations to participate in the management of state and public affairs was fixed.

However, in practice, in fact, the supremacy in the Soviets belonged not to the representative, but to the executive bodies. The Executive Committees convened sessions of the Soviets, organized their preparation and holding. The executive committees had the right to decide all issues attributed to the jurisdiction of the Soviets, they coordinated the activities of the standing committees. In essence, the apparatus in both Soviet and party bodies prevailed over the elected officials in the Soviets.

The study historical experience local self-government in Russia in the modern period of the country's development is a necessary condition for the formation of effective local governance.

2. Basic principles of municipal governance.

Local self-government principles - these are the root principles and ideas due to the nature of local self-government, which underlie the organization and activities of the population, the bodies formed by them, independently managing local affairs.

Principles of Municipal Governance - general and private - follow from the relationship of management and requirements for the process of organizing self-government. Private principles relate to the implementation of individual management functions (principles of planning, organization, motivation, etc.), as well as to its individual parties (socio-economic and organizational-legal) and the level of government (i.e. all forms of municipal formation).

In the theory and practice of municipal management, general and particular principles are closely related to each other, but they also have an independent meaning. The principles of municipal governance reflect the requirements of objective laws and trends in the development of local government. The principles are the theoretical basis for the formation of municipalities and make it possible to find out the essence of local self-government, its distinctive features and characteristics.

1) One-man management and collegiality.

The essence of one-man management lies in the fact that the leaders of a specific link in the management system of municipalities enjoy the rights of a single leadership in addressing issues within its competence. This is due to the fact that the organization of management of the public life of municipalities is impossible without the strictest subordination of the will of all participants in the process of the system of municipal government to the will of one person - the head of a specific process of municipal government.

One-man management as an organizational and legal form of leadership refers to all links and levels of the municipal government.

In accordance with this principle, each set of activities in the process of municipal government should pursue the same goal and have one leader, endowed with certain powers. Therefore, the essence of the principle is that in the management process, employees should receive orders from one manager, but this does not mean that all decisions should be made at the highest level.

Collegiality as organizational form the process of managing a municipal formation is necessary for discussing the main organizational and socio-economic issues of the development of municipalities. At the same time, individual responsibility and individual management are also necessary, so as not to delay the process of developing and making managerial decisions that are important for the socio-economic development of the municipality.

The activities of bodies in the system of municipal government are based on the principle of one-man management. The use of collegial principles is allowed in the preparation of projects for the formation of these bodies, in the development of decisions on the most important problems of managing local life. Practice shows that the one-man activity of the head of the local administration can be combined with the work of the collegium under the head of the local administration. The collegium performing advisory functions includes the heads of the structural divisions of the local administration or other employees. Consequently, local governments in their activities are guided by the principles of one-man management and collegiality. In any case, these bodies are endowed with the appropriate powers to resolve issues of local importance and bear responsibility in accordance with the statutes and the organizational and legal guarantees enshrined in them.

Observance of the correct balance between the principles of collegiality and one-man management is one of the most important tasks of the municipal formation management system; its efficiency and effectiveness largely depends on this. The peculiarity of the use of collegiality in the bodies of the system of municipal government, built on the principle of one-man management, is that the recommendations discussed by these bodies acquire the force of a decision and become binding upon the consent of the head-one-man boss and the issuance of a corresponding normative legal act by him.

2) Legality.

This principle acts as the most important guarantee of municipal governance and is one of the basic constitutional principles of Russian statehood.

The principle of legality requires that the organization of local government and its activities be carried out on the basis and within the framework of the law. Thus, the state recognizes and guarantees, and also ensures compliance with the rule of law in the system of municipal government, i.e. it is about state control over the observance of legal norms by local authorities, and not about the quality of decisions made by municipal authorities on issues of local life.

Compliance with the rule of law in the activities of bodies and officials of the system of municipal government is ensured with the help of prosecutorial supervision. In practice, in order to monitor compliance with the legality of the decisions and actions taken, the prosecutor or his deputies bring a protest against a legal act contrary to the law to the body or official of the local government system that issued this regulatory legal act, or go to court in the manner prescribed by the procedural legislation of the Russian Federation. The prosecutor and his deputies have the right to be present at meetings of the bodies of the system of municipal government of any municipal formation, to participate in the consideration of their submissions and protests.

The requirements of the principle of legality must be reflected in the charter of the municipality. If the charter of a municipal formation contradicts the Constitution of the Russian Federation and laws, the municipal formation is denied state registration its charter.

3) Publicity.

The principle of publicity of the activities of the bodies of the municipal government should be open, the population should be informed about the activities of these authorities. The principle of openness contributes to the democratization of management activities, its controllability by society, and also allows citizens to influence the development of decisions affecting their interests; rights and freedoms. The methods of ensuring publicity are reflected in the norms of municipal law and are formed in the practice of local self-government.

4) State guarantee.

This principle imposes requirements on the system of legal guarantees for the protection of the rights of municipal authorities. Consequently, the state establishes the legal basis for organizing the activities of municipal government bodies, legal guarantees for the financial, economic and organizational activities of municipal government bodies, forms the mechanism of interaction between municipal government bodies and government bodies. The Constitution of the Russian Federation provides judicial protection of the rights of municipal authorities and establishes a ban on their restriction.

This principle ensures:

Formation of the legal basis for the system of governing bodies of municipalities;

Organizational and methodological support for the system of governing bodies of municipalities;

Formation of a system of state control over the activities of bodies of the system of municipal government;

Formation of financial and economic foundations for the management of municipalities;

Formation and support of information support for the system of governing bodies of municipalities;

Creation of a system of work with personnel (the process of selection, placement and retraining of personnel in the management of municipalities

5) Participation of the population in the management of the municipal formation.

This principle makes it possible to improve the system of governing bodies of a municipal formation with the participation of the population, to increase the activity of public organizations, as well as to strengthen the control of the population over the activities of municipal bodies, to legal basis state and public life, expand publicity.

The population participates in the discussion and solution of state and public affairs, in the planning of the socio-economic development of municipalities, in the discussion and solution of issues of management and use of funds intended for socio-economic development, as well as socio-cultural events of municipalities.

Municipal law establishes legal guarantees for the participation of the population in the implementation of municipal activities.

The development of the institutions of municipal democracy ensures a close connection of the elected bodies and officials of local self-government with the population, their control over the population.

The charter of the municipality regulates the process of participation of the population in the management of the municipality through the procedure for recall, expression of distrust by the population, early termination of the powers of elected bodies and officials of local government.

The efficiency and active participation of the population in the process of solving problems of local importance, as well as control, depend on the awareness of citizens about the work of local governments and the state of the municipal economy, as well as on the implementation of the principle of publicity of municipal activities.

6) Complexity.

“This principle provides the conditions for effective study of the municipality and the development of recommendations for its management. It involves the consideration of phenomena in their connection and dependence. For this, research is used not only of this, but also of other sciences studying the same phenomena. "

A comprehensive study of the phenomena and processes of development of the municipal formation allows: to increase the efficiency of the local economy, to solve the socio-economic problems of the development of the municipal formation, to carry out social and cultural events, to solve environmental problems, as well as to rationally use labor, material, financial, natural and other resources, to create the necessary conditions for the life of the population of municipalities. This principle makes requirements for all functions of municipal government, provides the necessary conditions for the successful solution of issues of local life and the achievement of the goals of local government, allows you to take into account the interests of the development of the municipal formation as a territory of the subject of the Russian Federation.

7) Meeting the needs of the population.

“The essence of this principle is to ensure the living conditions of the population of municipalities and is carried out through the activities of local government bodies to meet the basic life needs of the population. This happens through the organization, maintenance and development of the relevant municipal enterprises, institutions, organizations and services. "

Municipal government bodies must ensure that the basic needs of the population are met in the areas assigned to the jurisdiction of municipalities, at a level not lower than state social standards. Compliance with these standards is guaranteed by securing funds in the revenues of local budgets by federal government bodies, government bodies of the constituent entities of the Russian Federation, deductions from federal taxes and taxes of constituent entities of the Russian Federation.

The formation, approval, execution of the local budget and control over its execution are carried out by local governments independently in compliance with the requirements established by the Budget Code of the Russian Federation and this Federal Law, as well as the laws of the constituent entities of the Russian Federation adopted in accordance with them.

The principle of meeting the needs of the population obliges municipal authorities to create conditions for housing and social and cultural construction, the activities of cultural institutions, the media, the organization of entertainment events, to provide the population with trade services, catering and consumer services, take care of the sanitary well-being of the population, provide social support and promote employment of the population, observe fire safety measures in the municipality, develop a network of municipal institutions of preschool, basic general and vocational education, provide fuel supply, disposal and processing of household waste, organize transport public service, etc.

8) Combination of sectoral and territorial management.

"Sectoral management systems are formed on the basis of the sectoral principle." The management mechanism is formed based on the tasks, characteristics and development opportunities of each specific industry. According to the territorial principle, management systems are created that combine production and non-production, economic systems located in a given territory, connected by the general interests of socio-economic development to meet the needs of the population of a given municipality. It is called upon to realize the socio-economic opportunities arising from the territorial organization of the economy in relation to the tasks, characteristics and capabilities of the corresponding territorial and economic systems.

The combination of sectoral and territorial principles of management is leading in the formation of systems and structures of municipal government. The effectiveness of the organization of management of the territory of a municipal formation depends on the optimal combination of sectoral and territorial administration within a single municipal system.

3.Methods

Methods of municipal management are based on objective economic laws, laws of socio-economic systems, should take into account the achieved scientific and technical level, social, legal and psychological relations in the management process.

Methods of municipal management are always used in an integrated manner, mutually complementing each other. Their combination forms an integral system of methods of municipal management. There are the following groups of methods: economic, administrative and regulatory and legal, social and psychological.

Each group of methods has a certain nature of the impact on the control object. The art of management consists in mastering these methods, in their correct choice and combination, the ability to apply them in practice.

The mechanism of municipal management is subdivided into several subsystems: organizational, economic, financial, budgetary, etc. These subsystems are interconnected and interdependent, making up a complex integration complex. Regulation or improvement of one of them entails changes in the other or a chain reaction throughout the municipal system.

Each area of \u200b\u200bmunicipal government, determined by a specific subject of local self-government, is characterized by a set of management functions and its own set of implementation tools (the list of them is not exhausted) for solving problems that allow you to develop a tactical goal, a management algorithm, identify the necessary information and organizational support, define tasks for municipal services and conditions for their implementation.

The set of management methods receives the status of subsystems of support (economic, organizational, legal, socio-psychological) of interaction between the subject and the object of management, which are local government bodies and certain types of expedient activities of people on the territory of the municipality.

The main methods of management should include some specific methods that are characteristic only of progressive mechanisms, for example: program-targeted, contributing to the accelerated development of the socio-economic system. / 1, p. 126 /

Management method is a way to achieve management goals.

Management methods can be viewed from the point of view of their content, focus and organizational form.

In accordance with the structure of the object of management, in the capacity of which in the sphere of municipal administration is the municipality, the methods of management according to the level of their application are subdivided as follows:

Methods that apply to the entire municipality as a system;

Methods related to subsystems allocated within the framework of a municipality (economic, social, natural resource, etc.);

Methods of managing influence in relation to an individual employee or separate groups.

The application of these methods used in the field of municipal government helps to solve such problems in the municipality as support for socially vulnerable groups of the population, unemployment, solving national issues, etc.

Note that in management practice, all of the above management methods interact. There are no good or bad municipal governance practices. For each situation there are "own" methods or a special combination of management methods.

Socio-psychological methods are techniques and methods of managerial influences on collectives and individuals, based on the use of the laws of sociology and psychology in order to increase their labor and creative activity.

Administrative and regulatory and legal methods are a set of means of legal (legal and administrative) impact on human relations. The implementation of these methods is guaranteed by the current system of federal and regional laws, local government regulations.

Economic management methods are a complex of methods and techniques of management based on the use of economic laws and interests. The purpose of these methods is to create conditions that would interest the manufacturer to produce the necessary goods and services of the required quality and at an affordable price. They are designed to ensure the harmony and unity of the economic interests of enterprises and organizations, the entire local community and a specific resident.

Conclusion.

So, in the course of the course work, its goal was achieved - a comprehensive study of the concept and characteristics of municipal government, as well as the goals, objectives and methods of municipal government. The concept and content of municipal government, subject, object and specifics of municipal government were considered.

The paper presents the main types of goals of municipal management, forming the following structure: social, cultural, economic, production and organizational. The strategic and tactical goals of municipal administration are associated with maintaining or increasing the level and quality of life of the population of the municipality. Operational goals are related to everyday and concrete actions to achieve strategic and tactical goals. In addition, the requirements for the objectives of municipal government are presented.

As for the tasks of municipal administration, three levels of tasks were identified: stabilization of control parameters, management of spheres of life and optimization of the functioning of the municipality. The main tasks of municipal administration are to meet the needs of the population in various kinds of services, to realize the socio-economic potential of the municipality, in the optimal combination of local and state interests, in the distribution of social benefits, in maintaining systems that ensure the life of the municipality and providing conditions for the production of goods. in species, quantitative and qualitative terms.

Further, the paper considers the methods of municipal management, the purpose of which is to create conditions that motivate the manufacturer to produce the necessary goods and services of the required quality and at an affordable price. The methods of the municipality are designed to ensure the harmony and unity of the economic interests of enterprises and organizations, the entire local community and a specific resident.

In conclusion, it should be noted that the possibilities of solving certain problems of municipal management are determined by the resources that can be directed to their solution. In turn, the resource base depends on the level of economic development of the municipality.

List of used literature

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4. Tikhomirov Yu. A. Municipal law [Text]: textbook - M .: Norma, 2009. - p. 460.

5. Chirkin V.E. State and municipal administration [Text]: Textbook. - M.: Yurist, 2008. - p. 320.

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