Improving the planning of socio-economic development of the municipality. Planning in the municipality

Introduction

Chapter 1. Theoretical basis programs of socio-economic development of municipalities

1 The concept of social economic development municipality

2 The concept and classification of programs for the socio-economic development of municipalities

Chapter 2. Practical aspects of the development and implementation of programs for the socio-economic development of municipalities

1 Activities of local governments in the field of socio-economic development

2 The main problems of implementing programs for the socio-economic development of municipalities

Conclusion

List of used sources and literature

INTRODUCTION

Relevance: the socio-economic development of municipalities plays a special role in the system municipal government. That is why the relevance of the integrated and sustainable socio-economic development of municipalities has recently increased significantly. This was facilitated by a number of circumstances, of which the most significant include:

entry into force on January 1, 2009 in full scope of the Federal Law of October 6, 2003 No. No. 131-FZ "On the general principles of the organization of local self-government in Russian Federation» , which assigned to local governments the authority to adopt and organize the implementation of plans and programs for the integrated socio-economic development of municipalities;

preparation by the federal executive authorities of the conceptual framework of the regional policy of the Russian Federation as a component of the Concept of long-term socio-economic development of the Russian Federation;

speech by V.V. Putin at the expanded meeting of the State Council of the Russian Federation on February 8, 2008 "On the development strategy of Russia until 2020", which gave impetus to the transition at all levels of government to strategic planning and became the basis for the formation of a new ideology of strategic planning at all levels of government.

An important milestone in the transition to long-term planning of the socio-economic development of municipalities was the publication of Decree of the President of Russia dated April 28, 2008 No. 607 "On assessing the effectiveness of local governments in urban districts and municipal districts", in accordance with which local communities of these categories of municipalities received a list of indicators that will help determine the priorities of the socio-economic development of municipalities. At the same time, the Decree of the President of Russia defines the mechanisms of control over local governments by residents of municipalities.

All this indicates that in the near future the development of municipalities should acquire a planned and directed character.

aim term paper is a comprehensive study of the features of programs for the socio-economic development of municipalities.

The purpose of the work determined the formulation of the following tasks:

determine the components of the socio-economic development of municipalities;

receive general concept about programs of socio-economic development of the municipality;

identify the main problems in the implementation of programs for the socio-economic development of municipalities;

The object of research is the program of socio-economic development of the municipality.

The subject of the study is the consideration of the legal framework, domestic educational and monographic literature, as well as dissertation research on the chosen topic.

Theoretical and methodological basis: the legal basis of the study is based on the Constitution of the Russian Federation, the Constitution of the Republic of Sakha (Yakutia), the Federal Law of October 6, 2003. No. 131-FZ "On the general principles of the organization of local self-government in the Russian Federation". The work uses logical research models, analogy methods, evaluation methods.

Analysis of the studied sources and literature: in the work, theoretical studies in the field of this topic were studied by such authors as Volgin N.A., Volkov Yu.G., Zotov V.B., Voronin A.G., Kuznetsova O.V., Martynov M.Yu. etc. Also, practical developments were analyzed to solve the main problems of the socio-economic development of the territory of the following authors: Idilova R.Kh., Lapin V.A., Mokry V.N., Popov V.V. etc.

The practical significance lies in the generalization of the material and the acquisition of knowledge, in order to increase the level of education and use in professional activities.

The course project consists of an introduction, two chapters, a conclusion, a list of references and references.

1. THEORETICAL FOUNDATIONS OF PROGRAMS OF SOCIO-ECONOMIC DEVELOPMENT OF MUNICIPALITIES

1 The concept of socio-economic development of municipalities.

Socio-economic development of a municipality is a complex concept. Activities to ensure the integrated socio-economic development of the municipality include many areas of life and various forms of interaction between many subjects of this development. Complexity - completeness, consistency and interconnectedness of analysis, planning and management. From an economic point of view, the integrated development of a territory is an interconnected proportional development of industrial infrastructure facilities in a given territory.

The concept of socio-economic development combines economic and social development. Thus, economic development is the restructuring of the economy in accordance with the needs and priorities of social development. The main indicators of the economic development of the country's territory are: an increase in gross domestic product or gross national product per capita.

Social development is a set of economic, social, political, spiritual processes taking place in society, where society is seen as a complex self-organizing system; the leading role is played by adaptive processes aimed at solving problems that arise during the interaction of system elements.

Thus, the content of activities for the socio-economic development of a particular territory is largely determined by the real state of its economy and social sphere, achieved by the time decisions on development are made; tasks recognized by society and the state as relevant for the upcoming period of development; the volume of allocated resources, the state of business activity of subjects of territorial development, as well as the quality of management decisions taken by the relevant public authorities to solve these problems. The urgent tasks of the upcoming period of territorial development arise from the need to take into account the peculiarities of the social and economic situation of the territories modern Russia, priorities public policy, as well as from the need to form new national traditions of managing territorial development, based on the new state structure of Russia.

Among several fundamental principles economic policy we can single out the principle of priority, i.e. concentration of efforts of the municipality in key areas of local development through financial, tax and legal mechanisms. A regional-priority approach to economic and social development, being one of the main tasks of municipal policy, should be based on an appropriate basis. The methodological basis for determining regional priorities is the scientifically substantiated identification of regions and areas of the economy that require priority development and claim large-scale, effective and multifaceted support.

State forecasting is based on the Federal Law of July 20, 1995 No. No. 115-FZ "On State Forecasting and Programs for the Socio-Economic Development of the Russian Federation" . This law does not address the issue of developing a comprehensive forecast and concept of economic and social development by economic regions. Meanwhile, in the literature it is noted that "the development of economic regions is extremely necessary, and they should be prepared according to a single methodology" .

It seems to me that in order to solve this problem, it is necessary to determine the socio-economic capabilities of the municipality. In the strategic plan, the region should build its socio-economic policy mainly with its own forces and means.

The essence of the socio-economic potential lies in ensuring the development of productive forces, production relations and is comprehensively considered using a systematic approach as an integral part of the national economic complex. One cannot but agree with the opinion that “when characterizing the socio-economic potential of the region as a whole, and of a specific municipality in particular, one must take into account: the complexity of environmental, economic and social development; commonality of nature management and protection tasks environment; territorial community of production; the relative stability of the population and the unity of the system of settlements; unity of the system of social infrastructure” . The socio-economic potential of the municipality consists of many components, which can also be called relevant potentials, and their number will depend on the degree of detail, the characteristics of local development. The functioning of the socio-economic potential provides for the interaction of all elements of local reproduction.

A reference point for socio-economic policy is a system of meters or indicators: lower, threshold values, the transition beyond which leads to social tension, and subsequently to a threat to economic and public security, and upper ones, including minimum ones with a phased exit to rational social standards of the level and quality of life of citizens. These social measures should include the amount of income (including the amount wages, pensions, scholarships, allowances, living wage), consumer price index, wage arrears, unemployment rate, the ratio of incomes of the most and least wealthy population, etc.

The threshold value, fixing the possibility of the emergence of social conflicts, is, as world experience shows, the dissatisfaction of 30% of the population with their standard of living (this includes approximately 10% of those who have an income below the subsistence level, and 20% of those whose income exceeds the living wage by 40 - 50% minimum; together they form a group of social discontent).

Along with this, the UN proposed to evaluate the ranking of countries on the aggregate index of human development. It takes into account life expectancy at birth, adult literacy rates, average school enrollment rates, GDP per capita income.

The standard of living of the population is the most important generalizing social indicator that gives an idea of ​​the well-being of society as a whole, the main socio-demographic groups of the population or individual citizens and their families, which makes it possible to assess the effectiveness of the socio-economic policy of the state. The standard of living characterizes the state and development of citizens' needs for material, spiritual and social benefits and the degree to which these needs are met.

Quality of life - a set of indicators that reflect not so much the level of consumption of goods and services as the social results of the economic development of the state, such as fertility and mortality, average life expectancy, the incidence rate of the population, conditions and labor protection, ensuring human rights, the degree of social protection of the population , its differentiation by income level.

The quality of education is one of the main characteristics of education, showing the degree of assimilation of knowledge, skills and abilities. One of the tasks of the welfare state is to ensure that all citizens of Russia receive a quality education, update knowledge for the purpose of their effective application in scientific and practical activities.

The quality of social services for the population is the degree of realization of the constitutional rights of citizens who find themselves in a difficult life situation to meet their basic life needs. Whether these rights can be exercised depends on:

Compliance with the actual level of social services established by legislative and other regulatory legal acts, state standards for the list of services provided, the volume of services, the regularity of their provision and compliance with the rules for the provision of services;

Compliance of the list and level of services provided with the requirements of the normal life of those in need, corresponding to the achieved level of consumption in society.

As for the social sphere, it is based on the system of social relations between people and their associations that form various social systems together with the infrastructure of social life necessary for their functioning. The social sphere is the object of interaction between the welfare state and the social policy pursued by it, the main meaning of which is its optimization: giving a more harmonious, based on solidarity and cooperation, nature of national ties and relations in society between different social communities and their constituent citizens, between them and power, etc. Such an optimization of social relations involves the creation of the most favorable conditions for the life of representatives of all social communities, the entire population, which in turn implies the development of social infrastructure and the improvement of the activities of its constituent institutions - scientific, educational, medical, cultural and educational, etc., providing social assistance and citizen services.

For the effective management of the social sphere of the municipality, it is necessary to scientifically substantiate the goals, indicators of the timing, pace and proportions of the development of social processes, i.e. carry out regional social planning.

The objects of regional social planning are both each of the spheres of public life in the region and the ongoing processes in various sectors of the social sphere.

The development of the social sphere is the most important direction of the internal policy of the state, ensuring the well-being and comprehensive development of citizens. Signs of a welfare state are not so much the declared rights to work, rest, social security, housing, health care, education, etc., but their implementation, the real availability of social benefits to the absolute majority of the population. It is often noted in the literature that a general indicator of the development of the social sphere is the increase in the standard of living, the growth cash income population while reducing the gap in income between the rich and the poor, which contributes to the expansion of domestic demand, the production of domestic enterprises.

Current state social sphere cannot be called satisfactory. Market economy has caused her tangible damage in all directions and industries. Social support enterprises created during the Soviet period (sanatoriums, rest homes, children's camps) with the transition to the market were considered non-core and burdensome to maintain. The social facilities transferred to the balance of municipal enterprises have not been provided with funds for more than 10 years, even for Maintenance and created problems primarily for regional and municipal authorities. Social development has narrowed to the limits of mitigating the negative consequences of reforms and supporting the poor, which does not allow to fully involve labor, intellectual, creative potential country.

The social sphere, like no other, is based on the normative method of planning and financing, the system of social standards. Building a system of state social standards is the most important direction for improving the management of social processes, overcoming negative phenomena in the social sphere.

2 The concept and classification of programs for the socio-economic development of municipalities

January 2009 ended the transitional period associated with the entry into force in full of the Federal Law of October 6, 2003 No. 131-FZ "On the general principles of organizing local self-government in the Russian Federation." The most important outcome of this period is the creation in the Russian Federation of about 12 thousand new municipalities (in particular, 446 municipalities are registered in the Republic of Sakha (Yakutia), of which 34 are municipal districts, 2 urban districts, the rest are urban and rural settlements), whose inhabitants at the end of the transitional stage, they become full-fledged subjects of territorial development.

In accordance with the current legislative right to develop, adopt and organize the implementation of plans and programs for the socio-economic development of a municipality, local governments of all categories of municipalities are vested.

The program of socio-economic development - the content and action plan outlining the main goals and objectives of solving problems dictated by the needs of the municipality, the nature of the activities, specifying the terms of use and determining the participants in the processes and their role functions for the production of works, services, production and receipt of income to the budget .

Scientists note that the programs of social development of municipalities set the task of scientifically substantiating the goals, indicators of the timing, pace and proportions of the development of municipal social processes. In them, for each of the branches of the social sphere, goals, their quantitative and quality characteristics within the given time frame. The objects of such programs are the economic, legal, cultural, demographic, national-ethnic and other aspects of the development of the social sphere of the respective municipality. In the formation and implementation of social development programs, the priority is the implementation of the following functions of social policy:

Increasing the income of the population;

Countering the downward trend demographic situation, acute manifestations of population depopulation in a number of regions;

Prevention of mass poverty of the population, especially in underdeveloped and depressed regions, curbing the process of property stratification into the poorest and richest;

Minimization of the negative consequences of mass unemployment, especially in industrial areas;

Targeted assistance to the population in crisis;

Taking additional measures in relation to the population in distress.

To implement the planned programs, it is necessary to additionally develop and implement economic, organizational and technical measures, classified according to sectoral and territorial characteristics. In addition, the literature also notes that in addition to the expansion and development of social sectors, the goal of the programs of socio-economic development of municipalities includes improving the efficiency of the functioning of existing social systems. Because effective social system provides solutions to issues social protection of the population, raising the standard of living, reducing differentiation in the incomes of the population, maintaining social standards.

Programs for the socio-economic development of the territory should be developed taking into account the scientific feasibility of the possibilities for their practical implementation. In order to fulfill these conditions, developed projects must be evaluated before they become legally valid, through a project analysis.

To carry out project analyzes of socio-economic development programs, a number of analytical methods and methods have been developed. When determining the value of the draft program, a possible situation in the socio-economic sphere is compared without the implementation of the proposed program and during its implementation at various stages. The task of the project analysis is to determine the ratio of the costs incurred and the positive consequences of the project, i.e. the effectiveness of the program of socio-economic development of the municipality at various stages of its implementation.

Project analysis is based on predictive estimates of future events. In some cases, many external effects from the implementation of programs cannot be quantified in the course of project analysis; in this case, it is necessary to make an expert assessment of their qualitative state. In the alternative projects proposed for consideration, many of the benefits and costs cannot be determined with the required accuracy. Often it is not possible to unify programs or their sections. In these cases, one has to use traditional analysis, and in the decision-making process, the use of intuition and the manifestation of subjectivism are not excluded.

The opinion is expressed that the main role in the development and implementation of municipal programs for the development of the social sphere is assigned to the state executive authorities of the region. The basis for decision-making is the comparison of indicators of the development of social infrastructure with normative ones or the determination of an actual indicator adopted to characterize a particular branch of the social sphere. The dependence of the social sphere on the system of production and consumption requires that the decisions made be adjusted based on the existing production and financial possibilities. Therefore, the program for the development of the social sphere of the municipality should combine macroeconomic management with the regulation of prices and incomes, targeted use of budgetary funds and loans, and the introduction of antimonopoly regulation. When developing social plans designed for specific periods, it becomes possible to apply social standards to determine the relationship between production and non-production areas, structures capital investments and employment, etc.

Depending on the territorial management system of socio-economic development:

Municipal;

Regional;

Subfederal (interregional).

In this connection, the potential subjects of the integrated social and economic development of the territory in a democratic state structure are:

The local community (population) of the settlement as a whole, as well as individual social groups represented by public associations (youth associations, sports clubs, women's organizations, veterans' associations, chambers of commerce and industry, etc.);

Local self-government bodies of the settlement;

Local self-government bodies of neighboring municipalities interested in the development and implementation of inter-municipal cooperation programs;

Local self-government bodies of the municipal district, which includes the territory of this settlement;

State authorities of the constituent entity of the Russian Federation on whose territory this settlement is located (are especially interested in participating in the development of this settlement if there are objects of state property of regional significance on its territory);

Organs state power the Russian Federation (if there are objects of federal property on the territory of this settlement);

Economic entities that have infrastructure facilities on the territory of this settlement, as well as those interested in the development of economic activity on the territory of this settlement.

In other words, social and economic development programs in Russia are developed at the federal, regional and local levels. They set goals for the development of health systems, education, employment and decent working conditions. “All three levels are in continuous interaction, interdependent and constitute an inseparable unity. Therefore, social policy, which already at the stage of formation is a tripartite process of developing mutually agreed principles for solving social problems, it is customary to call the triune social policy. The implementation of such a policy through the development and implementation of social development programs also takes place at all three levels, which constitute an integral system.

Depending on the object of municipal socio-economic planning:

Territorial, when a specific territory is the object of planning (both for the subject of the Russian Federation as a whole, and in a specific district, city, village);

Functional, when the object of planning is a specific area of ​​public life, specific social processes in the field of culture, education, healthcare, consumer services;

Complex, incorporating objects of planning of territorial and functional sections.

Depending on the prospects for the implementation of socio-economic development programs:

Short-term projects are developed for a development period of up to 1 year;

Medium-term are developed for a development period of 1 to 3 years;

Long-term projects are developed for a development period of 3-5 years.

This classification by terms of execution can favorably influence the effectiveness of the program implementation, designating specific and priority goals and objectives for a certain period of development.

2. PRACTICAL ASPECTS OF THE DEVELOPMENT AND IMPLEMENTATION OF PROGRAMS OF SOCIO-ECONOMIC DEVELOPMENT OF MUNICIPALITIES

1 Activities of local governments in the field of socio-economic development

According to Article 132 of the Constitution of the Russian Federation, the competence of local authorities includes the resolution of issues of local importance, for example, economic issues (management of municipal property, etc.), politics (municipal elections), the field of social relations (public works), education, culture.

The subjects of local self-government in accordance with the Federal Law "On the General Principles of the Organization of Local Self-Government in the Russian Federation" include three categories:

local issues

certain powers of state bodies that may be vested in local governments

powers transferred by other local governments (for example, a higher level) on a contractual basis.

Solving these issues and exercising their powers, the bodies and officials of municipalities have as their main task the integrated socio-economic development of the municipality, the satisfaction of legitimate interests and ensuring the rights of the population (including those temporarily located in this territory).

Issues of local importance are issues of direct support for the life of the municipality, if they are not assigned by law to the competence of the Federation or its subjects. Federal Law No. 131-FZ refers to issues of local importance:

In the economic and financial sphere;

In the field of social relations and culture;

In the field of public order protection;

In the field of legal activity.

The main purpose of the activities of local governments is to address issues of meeting the domestic, social, educational, medical and other vital needs of the population of municipalities. To do this, “financial and material resources are transferred to the disposal of municipalities, at the expense of which local public authorities organize the provision of relevant services and goods to the population on the territory of municipalities” .

Federal Law No. 131-FZ "On the General Principles of Organization of Local Self-Government in the Russian Federation" introduces significant changes in the powers of the authorities of the constituent entities of the Russian Federation and municipalities in the field of social development. Thus, the powers of local governments include:

Organization of the ambulance medical care(with the exception of sanitary and aviation), primary health care in outpatient clinics and hospitals, medical care for women during pregnancy, during and after childbirth;

Organization of the provision of public and free primary general, basic general, secondary (complete) general education in basic general education programs, with the exception of the powers to financially support the educational process, attributed to the powers of state authorities of the constituent entities of the Russian Federation; organization of additional and public free pre-school education on the territory of the municipal district, as well as organization of rest for children during vacation time;

Organization of funeral services and maintenance of burial places;

Creation of conditions for the organization of mass recreation and leisure.

In this regard, I believe that control over the use of powers transferred to municipalities should be carried out either by state bodies of the subject of the Federation, or by a specially created body of local self-government. Thus, it is possible to propose the creation of a control and audit body, possibly on a voluntary basis. Their responsibilities will include the following:

bringing to the population of the municipality information about existing and newly adopted programs;

control over the implementation of the points of the program of socio-economic development by the municipality;

reporting to the public on the progress of work and the results obtained (or not received).

It seems to me that it is necessary to determine the socio-economic opportunities of the municipality. In the strategic plan, the municipality should build its socio-economic policy mainly with its own forces and means.

It should be noted that the implementation by local governments of their powers also depends on how efficiently they will use the resources at their disposal. To this end, local governments must ensure the comprehensive development of the main sectors of the municipal economy, the private sector of production and consumption, as well as the social sphere of municipalities.

The program-targeted approach is the most optimal for the development of programs and involves the development of appropriate goals for socio-economic development in the production and social spheres, the definition of construction or reconstruction facilities, and the determination of the timing of implementation.

In the development of programs for the socio-economic development of municipalities, the following phases can be distinguished.

1. Pre-investment phase, which includes:

Research of investment and market opportunities;

preparation of a preliminary feasibility study;

development of a feasibility study;

expert opinion.

Investment phase, including:

organizational work;

design and survey work;

approval and expertise;

delivery of the program for its further implementation.

Implementation phase consisting of:

monitoring, control, operational management;

identify program deficiencies;

corrections and correction of shortcomings in the program.

Separately, I would like to touch upon the process of adopting a program for the socio-economic development of municipalities of the Republic of Sakha (Yakutia). Conditionally, based on the established practice of adopting programs, as well as taking into account the existing legal framework, the following stages are distinguished:

creation working group to study the main problems and opportunities of a particular municipality. At this stage, the developers of the program and the supervisor of the project are determined;

preparation of a draft program for the socio-economic development of the municipality. The program of socio-economic development of the municipality should be developed in accordance with the methodological recommendations of the Ministry of Economic Development and Trade of the Russian Federation and the Ministry of Economic Development of the Republic of Sakha (Yakutia). Components programs should be: an introductory brief description of the municipality, a table of contents, a passport that lists the goals, objectives, timing of the program, a list of subprograms, volumes and sources of funding, etc., as well as a specific plan for the production of works, services, output and receipt of income to the local budget to meet the urgent needs of residents of the municipality in certain areas of socio-economic development);

coordination of the draft program with interested ministries and departments. The draft program must be agreed with eighteen members of the Government of the Republic of Sakha (Yakutia) with conclusions without comments. If there are comments from ministries and departments, they must be taken into account in the project and (or) removed;

consideration of the draft program at the Economic Council under the Government of the Republic of Sakha (Yakutia);

2 The main problems of implementing programs for the socio-economic development of municipalities

social economic municipal program

To fulfill priority tasks and directions of socio-economic development of municipalities, it is necessary to form and implement relevant municipal plans and programs. On their basis, expenditures from local budgets and all economic activities of local authorities should be carried out.

At the same time, at present, local governments do not have enough financial resources for the formation and implementation of municipal plans and programs for socio-economic development, the implementation of capital investments and budget investments in the development of the economy of the respective territories. Under the conditions of the municipal reform, the insufficiency of profitable sources of local budgets does not allow local governments to ensure the full and high-quality execution of their powers.

First of all, this is due to the fact that the amount of financial resources required to fulfill the expenditure obligations of municipalities was determined at a level below their real needs. One of the main reasons for the deterioration of the financial situation of municipalities was the assignment of additional issues of local importance to municipalities without transferring relevant revenue sources to local budgets.

One cannot but agree that "the socio-economic development of municipalities is provided by local governments not only at the expense of financial resources, but also material resources" . Municipal property is necessary for local governments to generate non-tax revenues for local budgets, create an enabling environment for attracting investment in the municipal sector of the economy, support medium and small businesses, and develop market mechanisms for the use of land and property.

In order to meet the needs of the population of municipalities in public services and create favorable conditions for their life, local governments interact with various commercial organizations and coordinate their activities in the areas of trade, communications, public catering and consumer services, land use, urban planning, environmental protection, etc. .P. Intersectoral interaction is the mutual influence of the state, business and civil society organizations in the process of their joint activities. Its essence is manifested in the coordination of their fundamental "corporate" interests, as well as in the ability of these diverse socio-economic forces to constructively cooperate in order to achieve the goals of the whole society. The economic and social components of society complement each other, ensuring an uninterrupted exchange of information and material resources within the municipality.

Having studied the theoretical aspects of the topic under study, some problems that arise in the process of developing and implementing municipal programs of socio-economic development are identified.

Thus, there are currently a number of shortcomings in economic mechanism federal relations. For example, uncoordinated forms of financial support for the regions. The fundamental principle of the Constitution of the Russian Federation - equality of rights in relations with the center - is being violated. As a result, costs rise federal budget, incentives for development in subsidized regions disappear.

In addition, the socio-economic development program should be dictated by the needs of the municipality and be a specific plan for the production of works, services, production and receipt of income to the budget to meet the urgent needs of the residents of the municipality, and not just a document containing a formal set of numbers, execution which cannot be controlled.

One of the main problems of economic forecasting is the development of a general concept of socio-economic development, which, along with its qualitative content, has sufficient quantitative certainty, i.e. not only the substantiation of the hierarchical system of attitudes, but also the amount of material resources that ensure their achievement. The creation of a system of indicators that adequately reflect the most important problems of social development in the long term is hampered by the exclusive orientation, when measuring changes in the standard of living, to flows that reflect the amount of goods consumed, and the lack of satisfactory approaches to studying the movement of stocks of the entire set of available socially significant goods. Problematic at present are the issues of determining the effectiveness of the activities of institutions providing public services, their relationship and interdependence. To solve them, first of all, it is necessary to establish criteria for efficiency. public services, performance indicator and the method of their calculation.

In this regard, one can support the opinion of Idilova R.Kh., who proposed a three-level methodology for assessing the effectiveness of a socio-economic development program:

Local level of evaluation. For the economic justification of a project, calculation methods are traditionally used commercial efficiency characterizing the economic potential, financial stability, costs and results of production activities.

The level of the local community (local socio-economic system). The methodological basis of work at this level is program-target methods. The program is presented as a set of measures for the development of the local community, taking into account all available infrastructures and the procedure for implementing these measures.

The regional level of evaluation is carried out on the basis of the compliance of the expected results of the program with the priorities of the socio-economic development of the region.

It should also be noted that many targeted programs (both federal and regional) are designed for co-financing from local budgets. The imbalance of local budgets has led to a deterioration in the socio-economic situation of municipalities, as well as to a decrease in the level and quality of municipal services provided to the population. The balance of the budget depends not so much on the level of economic development of the region, but on the desire or unwillingness of the regional authorities to accept and execute balanced budgets. A striking example of a significant imbalance in the regional budget with relatively high budget revenues is the Republic of Sakha (Yakutia). This imbalance republican budget due to the high share of social spending. Thus, since 1993 education has been one of the main priorities of Yakutia's social policy. It is possible that under other economic conditions, such social spending would be fully justified, but given the current level of budget revenues in Yakutia, the volume of social spending is clearly exaggerated. Moreover, according to experts, in recent years in Yakutia there were much more pressing problems, there were more important objects for financing, including infrastructure ones.

To solve this problem, we can recommend (as it was in the Siberian federal district) develop and send to each village council methodological recommendations on the formation of annual, medium-term and long-term programs for the socio-economic development of each municipality.

Thus, having considered the theoretical foundations for the development and implementation of programs for the socio-economic development of municipalities, we can draw the following conclusions.

The socio-economic development of the municipality should include many areas of life and various forms of interaction between many subjects of this development as an interconnected proportional development of industrial infrastructure facilities in a given territory.

The socio-economic development program should contain an activity plan outlining the main goals and objectives of solving problems dictated by the needs of the municipality, the nature of the activities, specifying the terms of use and determining the participants in the processes and their role functions for the production of works, services, output and receipt of income to the budget. To solve this problem, it is necessary to determine the socio-economic opportunities of the municipality. In the strategic plan, the region should build its socio-economic policy mainly with its own forces and means.

Depending on the territorial system of management of socio-economic development, programs can be distinguished: municipal, regional, sub-federal (inter-regional); depending on the object of municipal socio-economic planning - territorial, functional, complex; depending on the prospects for the implementation of socio-economic development programs - short-term up to 1 year, medium-term from 1 to 3 years, long-term 3-5 years.

The right of the municipality to develop programs for socio-economic development is legally enshrined.

The main problems in the implementation of programs for the socio-economic development of the municipality include:

absence on the ground in most municipalities of the controlling government agency for the use of delegated powers;

blurring of the system of state social standards to improve the management of social processes;

lack of criteria for the effectiveness of public services, performance indicators and methods for their calculation.

In order to increase the effectiveness of the implementation of programs for the socio-economic development of the territory, it is necessary to strengthen financial support at the federal (republican) level (development and protection of grant projects, entry into federal and republican programs), as well as to seek opportunities for additional funding to the municipalities themselves (renting objects of the municipal property, including land, the sale of unprofitable objects, which excludes the cost of their maintenance, the creation of municipal unitary enterprises, the development of social partnerships with organizations of small, medium and large businesses). For a more organized work of local authorities, it is possible to propose the creation of a control and audit body, whose duties will include: participation in the preparation of a draft program for the socio-economic development of the municipality; bringing to the population of the municipality information about existing and newly adopted programs; control over the implementation of the points of the program for the socio-economic development of the settlement; reporting to the population on the progress of work and the results obtained (or not received).

Possible composition of this supervisory body: approximately 5 people leading experts in their field (for example, 1 school principal, 1 head physician, 1 representative from the association of entrepreneurs, 1 housing and communal services specialist, etc.).

Also important is the development of methodological manuals for the development of socio-economic development programs, clear criteria for evaluating its effectiveness by public authorities.

CONCLUSION

Having considered the problems of implementing programs for the socio-economic development of municipalities, we can draw the following conclusions.

The participation of federal, regional and municipal authorities is expected in the formation and implementation of programs for the socio-economic development of the territory, since the integrated socio-economic development of the municipality should include many areas of life and various forms of interaction between many subjects of this development, as an interconnected proportional development of industry infrastructure facilities on this territory.

The socio-economic development program reflects the main goals, objectives, measures to solve problems dictated by the needs of the municipality, specifying the timing and participants in the processes for the production of works, services, products, etc.

The main stages of the adoption of the program of socio-economic development of the municipality include:

organization of a working group to study the main problems and opportunities of a particular municipality;

preparation of a draft program for the socio-economic development of the municipality;

approval of the draft program by interested ministries and departments;

submission of the draft program for consideration;

implementation of the program of socio-economic development of the municipality.

Programs can be divided depending on the territorial system of management of socio-economic development into municipal, regional, sub-federal (inter-regional); depending on the object of municipal socio-economic planning - territorial, functional, complex; depending on the prospects for the implementation of socio-economic development programs - short-term up to 1 year, medium-term from 1 to 3 years, long-term - 3-5 years.

When analyzing the practical application of theoretical provisions on municipal socio-economic development, some problems in the implementation of programs for the socio-economic development of municipalities were identified. So, in my opinion, the main problems include:

insufficiency of local self-government bodies of financial resources for the formation and implementation of plans and programs for the socio-economic development of municipalities, the implementation of capital investments and budget investments in the development of the economy of the respective territories;

the absence in most municipalities of a supervisory body for the use of powers delegated to municipalities;

lack of a system of clear state standards to improve the management of social processes;

the lack of criteria for the effectiveness of public services, the performance indicator and the methodology for their calculation.

In order to increase the effectiveness of the implementation of programs for the socio-economic development of the territory, it is necessary to strengthen financial support for state level(such as, for example, the development and protection of grant projects, inclusion in federal and republican programs), as well as to seek opportunities for additional funding for the municipalities themselves (leasing objects of municipal property, including land; selling unprofitable objects, which excludes expenses for their maintenance; creation of municipal unitary enterprises; development of social partnership with organizations of small, medium and large businesses).

For a more organized work of local authorities, it is necessary to create a local supervisory body, which should include subjectively disinterested persons. So, it is possible to propose the creation of a control and audit body, consisting, for example, of 5 people - leading specialists in their field (one each from a school, a hospital, an association of entrepreneurs, housing and communal services, a cultural institution), whose duties will include, for example:

participation in the preparation of a draft program for the socio-economic development of the municipality;

bringing to the population of the municipality information about existing and newly adopted programs;

control over the implementation of the points of the program for the socio-economic development of the settlement;

reporting to the population on the progress of work and the results obtained (or not received).

In addition, the socio-economic development program should be dictated by the needs of the municipality and be a specific plan for the production of works, services, production and receipt of income to the budget to meet the urgent needs of the residents of the municipality. However, it is often seen in practice that the program is socially -economic development - just a document containing a formal set of figures, the execution of which cannot be controlled. Most often, this is due to the fact that the project analysis of the socio-economic development program of a particular municipality was not sufficiently carried out.

Thus, on the part of the state authorities of the constituent entity of the Russian Federation, work should be carried out on information interaction with municipalities. In this regard, it is important to develop methodological manuals for the development of programs for socio-economic development, clear criteria for evaluating its effectiveness.

An effective social system should ensure the solution of issues of social protection of the population, raising the standard of living, reducing differentiation in the incomes of the population, and maintaining social standards.

Realization of the interests and needs of the population is directly related to the appropriate organization of production, distribution, exchange and consumption of goods and services on the territory of municipalities. Small business takes an active part in all these processes, and from its successful development the employment of citizens of municipalities, the quality and standard of their life largely depend. In this regard, of particular importance for the socio-economic development of municipalities is the interaction and cooperation of local governments with the business community, as well as support and development of small business.

LIST OF USED SOURCES AND LITERATURE

1. The Constitution of the Russian Federation of December 12, 1992 (taking into account the amendments made by the Laws of the Russian Federation "On Amendments to the Constitution of the Russian Federation" dated December 30, 2008 No. 6-FKZ and dated December 30, 2008 No. 7-FKZ) / / Collection of Legislations of the Russian Federation. 2009. - No. 4. - Article 445.

2. Constitution of the Republic of Sakha (Yakutia)// Collection of laws of the Republic of Sakha (Yakutia). - 1992. - Art. 90.

On the general principles of the organization of local self-government in the Russian Federation / Federal Law of October 6, 2003 No. No. 131-FZ, as amended on November 4, 2007 №253-FZ // Russian newspaper. 2005. - №297.

On State Forecasting and Programs for the Socio-Economic Development of the Russian Federation / Federal Law of July 20, 1995 No. 115-FZ. Ed. July 9, 1999// Rossiyskaya Gazeta. 1995. - No. 143.

On assessing the effectiveness of the activities of local self-government bodies of urban districts and municipal districts / Decree of the President of the Russian Federation of April 28, 2008. No. 607 // Collection of Legislations of the Russian Federation. - 2008. - Art.2003.

On the establishment of boundaries and on conferring the status of city and rural settlements municipalities of the Republic of Sakha (Yakutia) / Law of the Republic of Sakha (Yakutia) dated November 30, 2004 No. 173-Z No. 353-III // Yakutia. 2004. - No. 245.

Key indicators of socio-economic development of the Republic of Sakha (Yakutia) January - May 2010 Express information No. 99-e// Territorial body Federal Service state statistics for RS (Y). Yakutsk, 2011.

Key indicators of the economy of municipalities in 2008. Operational data// Territorial body of the Federal State Statistics Service for the Republic of Sakha (Yakutia). Yakutsk, 2008.

Aganbegyan, A.G. Socio-economic development of Russia / A.G. Aganbegyan. - M.: Delo, 2004. - 272 p.

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11. Babun, R.V. Organization of local self-government: Tutorial/ R.V. Babun. - St. Petersburg: Peter, 2009. - 192p.

12. Volgin, N.A. Social state: textbook / N.A. Volgin, N.N. Gritsenko, F.I. Sharkov. - M.: Dashkov and Co., 2004. - 416s.

Volkov, Yu.G. Sociology. - Ed. 3rd / Yu.G. Volkov. - Rostov n / a: Phoenix, 2007. - 572s.

Denisova, I.P. Social politics: Textbook / I.P. Denisov. - Rostov n / a: Phoenix, 2007. - 347 p.

Zotov, V.B. Municipal government: Textbook for universities / V.B. Zotov, Z.M. Makasheva. - M.: UNITI-DANA, 2004. - 279p.

Kuznetsova, O.V. Economic development of regions: theoretical and practical aspects of state regulation / O.V. Kuznetsova. - M.: Publishing house LKI, 2007. - 304 p.

Martynov, M.Yu. Local self-government in the political system of Russia: Monograph / M.Yu. Martynov. - Surgut: SurGu Publishing House, 2008. - 198s.

Nesterov, P.M. Regional Economics: A Textbook for High Schools / P.M. Nesterov, A.P. Nesterov. - M.: UNITI-DANA, 2010. - 447p.

Oreshin, V.P. State regulation National Economy: Textbook / V.P. Oreshin. - M.: INFRA-M, 2002. - 124p.

Republic of Sakha - 2010. - Yakutsk: Bichik, 2011. - 248p.

Municipal Management System: Textbook for High Schools / Ed. V.B. Zotov. - St. Petersburg: Peter, 2008. - 512s.

Social Policy: Textbook / Ed. ON THE. Volgina - M .: Publishing House of the RAGS, 2005. - 544 p.

Social policy / Ed. ON THE. Volgin. - M.: "Exam", 2008. - 943 p.

Khalikov, M.I. The system of state and municipal management / M.I. Khalikov. - M.: Flinta: MPSI, 2008. - 448s.

Chirkin, V.E. State and municipal management: Textbook for universities / V.E. Chirkin. - M.: Jurist, 2004. - 320s.

Economics of the municipal sector: Textbook for universities / ed. A.V. Pikulkin. - M.: UNITI-DANA, 2007. - 464 p.

Economics of municipalities: Textbook / Under the general editorship of prof. V. G. Ignatov. - M.: ICC "Mart"; Rostov-on-Don, 2005. - 544p.

Idilova, R.Kh. Modernization of the communal infrastructure of the region as a factor of its socio-economic development / R.Kh. Idilova// Local self-government in the Russian Federation. - 2008. - No. 4. - p.55-62.

Statement of the problem in modern conditions

L.Yu. Padilla Sarosa (Institute for Urban Economics Foundation)

The difference between Western and Russian models municipal economic development planning

The notion of a "Western" approach to planning at the local level is largely arbitrary. IN different countries, traditionally attributed to the West, formed their own views on planning and planning models, often different, and sometimes opposite in a number of positions. Nevertheless, one can speak of some general principles underlying these approaches and corresponding to the ideology of an open society with a market economy and strong local self-government.

The main differences between the traditional “Western” and modern Russian approaches to planning municipal socio-economic development are caused by the different socio-economic and legal environment in which plans are created “for them” and “for us”.

In the West, comprehensive planning documents for the development of municipalities are formed in a stable regulatory and organizational environment and established "rules of the game" and are aimed primarily at increasing investment attractiveness municipality by enhancing its competitive advantages. Plans are often focused on the implementation of specific projects that can bring the city's economy to a qualitatively new level. The search for such projects is most often at the heart of local development strategies.

In Russia, legal and organizational uncertainty still persists, the main institutional transformations at the municipal level have not been completed, market mechanisms for managing land and real estate have not been adjusted, etc. Accordingly, central task plans and programs for the development of Russian cities and regions becomes two-pronged not only to find key projects for economic development, but also in parallel to create the necessary conditions for their implementation. Therefore, a significant place in the planning documents of Russian municipalities is occupied by administrative measures aimed at reorganizing and optimizing the system of municipal government.

"Western" models. As part of the general approach, we note the main features inherent in the planning system of municipal socio-economic development in modern Western cities. Compliance with these principles is fully relevant for Russia as well.
1. Planning is carried out at several levels. Strategic goals are specified in the current plans. Simultaneously with planning, there is an independent process of bringing local legislation in line with the recommendations contained in development plans and programs.
2. Planning is carried out non-
discontinuously, as a single process to develop recommendations for policies and programs of municipal development. This is not a periodical elaboration of plans elevated to the rank of law.
3. Planning is not directive, but indicative. It contains mechanisms that allow the planning process to be correlated with changing external circumstances and make the necessary adjustments to it. The plan (program) is not a rigid prescription, but a changeable document (of course, within the established limits).
4. In the course of planning, the principle partnerships public and private structures. Socio-economic policy cannot be effective if its principles are not shared by all sections of the local community. The process of developing and approving plans involves constantly informing the population, forming public opinion and finding compromises in case of disagreements between local governments and certain interested groups of people.

Let's take a closer look at planning levels. In different countries, there are different types of economic development planning at the local level, differing in their tasks, time horizon, territorial and sectoral coverage. Typically, the local development planning scheme is built into a hierarchical system of plans.

The simplest kind project planning(project planning). It is typical for a situation where the fate of the municipality is "tied" to the implementation of a specific project. This is usually large-scale project, influencing a change in the situation in the city as a whole, for example, the construction of a large enterprise or an airport. Under this project are mobilized financial resources, various organizations are involved, and as a result, the city, as it were, acquires a new quality. Thus, the selected project becomes a central link in the development of the city in the medium term.

Next higher level development of municipal programs or program planning(master planning). This type of planning covers the sector of the urban economy and/or the district of the city. Accordingly, within its framework, sectoral and territorial approaches are distinguished.

With a sectoral approach, the project involves almost the entire territory of the city, uses a variety of structures and sources of resources. But at the same time, only one branch is reorganized, for example, public utilities. This also includes the implementation of a new legal zoning in the city, the development of a land use system, etc. The city can simultaneously maintain several sectoral plans, while it is necessary to monitor their coordination in order to avoid mutual contradictions.

With a territorial approach, any one district of the city receives a certain program, but within its limits the program can be complex, affecting various industries. The most typical example of the implementation of the territorial approach is the popular in many cities in the United States programs for the revival of the city center or the restoration, renovation of old industrial territories in order to give them a new economic quality. The latter in America is called the transformation of "brown territories" (brown fields) into the so-called "green territories" (green fields) of new growth.

Followed by integrated planning(comprehensive planning). This type of planning involves the development in the city of a comprehensive program, usually designed for a medium or long-term time horizon. This is precisely "general" planning, which covers all sectors and territories. Naturally, to one degree or another, this inclusiveness varies, because there is no single universal scenario for how to do this.

Finally, the topmost planning floor strategic planning(strategic planning). This is the most complex type of planning, its implementation requires significant costs. It is not strictly required, but is becoming increasingly popular in general schemes planning at the municipal level. Strategic planning is considered by many experts as synthetic look planning, under the "roof" of which all other types are combined. In particular, the Finnish researcher T. Linkola figuratively called the strategic plan an "umbrella" for all other plans in the municipality.

The strategic plan of the city is the result of strategic planning. This is a kind of mini-constitution of the city, prescribing where the city will move in the next 10-20 years in accordance with the goals set. Sectoral plans, medium-term programs, short-term project plans should be guided by the strategic goals formulated in the strategic plan, and, in fact, specify its provisions.

Russian scheme. The domestic history of municipal planning is still relatively young, but certain traditions have already formed, including in relation to the hierarchy of types of planning. In the Russian tradition of municipal planning, a number of levels(vertical structure) and species(horizontal structure) planning. In part, this scheme is close to the one above, but it also has its own specifics.

The levels of municipal planning differ according to the time horizon for which this type of planning is designed. It is customary to distinguish the following levels of planning: short-term (1-2 years), medium-term (3-7 years), long-term (7-20 years or more, most often 10-15 years).

Short term planning is also called current, long-term strategic. Each level of planning has its own level of specificity and abstraction, its own characteristic features, its own arsenal of methods. The boundary between them is mobile: firstly, the time frame varies, and secondly, mixed options are often implemented, for example, medium-term planning with strategic elements.

In modern Russia, there are three main types of planning for socio-economic development at the municipal level. The basis for their allocation is the object of planning.

Budget planning. An object municipal finance. The main documents are the budget and the medium-term financial plan (their presence is mandatory in accordance with the Budget Code of the Russian Federation), as well as various documents of the financial justification of projects and directions for long-term development, plans capital construction at the expense of budgetary funds, municipal borrowing programs, municipal property privatization programs. The budget is a product of current planning; a medium-term financial plan is being developed for a medium-term period of three years.

Territorial planning. The object is the territory of the city, its spatial development. The main documents are a master plan, a territorial planning scheme, land use and building rules, a functional zoning scheme, in some cities there is an integrated approach that also provides for a program for the investment development of urban planning solutions.

Socio-economic planning. The object of socio-economic planning is the most complex: it is the entire system of the municipal economy and the social sphere. The main documents of various programs and plans for socio-economic development, designed for the medium and long term, up to the strategic plan. In fact, socio-economic planning is the basis for budget and territorial planning. This is especially true for strategic planning, which actually integrates all three types of planning. However, in general, specific issues of the systematic application of all three types of planning in Russian municipal practice are poorly developed.

The need for planning in the process of municipal development management in the absence of comprehensive studies of the elements of the development management system led to the formation of a fairly wide palette of approaches to understanding the essence of development and tools for its organization. Until now, there is often a substitution of concepts in relation to planning tools: concepts and development strategies are endowed with the properties of programs and projects. Meanwhile, the result and quality of management of municipal economic development will largely depend on the degree of expectations in the development of planning documents.

Concept formulation of the prospects for the development of the municipality, a document that sets out the general philosophy of development, as well as proclaiming the intention to develop approaches to the implementation of the prospects. The semantic load and organizational value of this document is that it declares the decision to take further management actions.

Strategy (strategic plan) document of public consent on priority (strategically important for various groups local community) directions of development of the territory of residence and work. The strategic plan declares the choice in favor of the most optimal model for the development of the municipality (the direction of the "main blow") based on a comprehensive analysis of the socio-economic situation, an assessment of the influence of external and internal factors in various scenario conditions.

Socio-Economic Development Program as a rule, it is understood as a complex one, ensuring the achievement of the goals stated in the strategy. As an instrument of a program-target nature, the program is a document that provides a balance of goals, objectives, and resources. Contains detailed calculations of all resource costs, indicating their sources and stages of attraction for the implementation of program activities. The program is the tool that allows you to implement a multi-level budget financing, as well as attracting extrabudgetary funds participants interested in the implementation of the program activities. The effectiveness and efficiency of the program is evaluated on the basis of a system of indicators and indicators, which allows monitoring and evaluating the approach (achievement) of the planned goals and objectives by comparing the stage-by-stage results with the baseline (starting) value of the established indicators/indicators.

Application in practice various kinds programs (complex, socio-economic development, targeted, departmental, long-term) gave rise to different interpretations of the term "program". On this occasion, it should be clarified that there is no significant difference in the programs of the listed types, since they are based on activities that are interconnected in terms of goals, tasks, resources, deadlines and performers; all of them should contain a mechanism for effective results management and a specially developed system of indicators (indicators) for measuring the achievement of planned goals.

Action plan in view of the fact that the municipal budget is developed for a period of one year, the medium-term financial plan for three years, and the program horizon (depending on the complexity and resource intensity of the goals set) can be more than five years, it is organizationally convenient to form development priorities in the budget period in the form of an action plan local authorities. The plan focuses management resources on the main activities that were envisaged in the socio-economic development program for this stage.

Development policy is based on strategic and program planning documents, is a tool for interaction, communication, reflects the sequence of management decisions. The development policy, based on strategic planning documents, ensures the continuity and continuity of the evolutionary development of the municipality.

Changes made in 2007 to Budget Code of the Russian Federation were essential for the formation of a comprehensive planning system in the country. The code defines key provisions that ensure a planned approach that is mandatory for all levels budget system in the country. Key elements of planning forecast of socio-economic development, main directions of budgetary and tax policy, medium-term financial plan identified as mandatory elements for all levels budget planning, which, in fact, represents a systematic unified approach to resource support for development projects and programs. A unified approach to resource management issues makes it possible to implement the most significant development projects on co-financing terms.

Another relevant change in the planning system was the appearance in the Budget Code of a separate article "Long-term target programs" with a mandatory norm for including a feasibility study and a forecast of the expected results of the program implementation. In accordance with the provisions of the Federal Law of April 26, 2007 No. 63-FZ “On Amendments to the Budget Code of the Russian Federation in Regard to the Budget Process”, executive bodies of state power and local administrations by December 1, 2007 had to establish the procedure for the formation and implementation of long-term programs of the appropriate level.

For successful municipal economic development, it is not enough to understand the planning process and knowledge of its regulatory legislative framework. Increasing competition between municipalities (for human resources, for investments, for federal budget investments in infrastructure development) requires municipal government specialists to master modern management technologies.

Possession of the technology for organizing the planning of municipal economic development is a significant "trump card" in a competitive environment. Unlike management in the field of economic activity, state and municipal administration in Russia has not yet become a full-fledged scientific discipline. Beyond Experience foreign countries having more "managerial experience" in the field of local self-government in market conditions, and the "gained experience" of individual regions and municipalities in organizing development processes, it is necessary to create an integral development management system based on a scientific approach and provided not only with successful practice, but also with the necessary methodological support. The creation of a system of strategic planning for municipal development requires appropriate scientific support. Meanwhile, there are many unresolved methodological and methodological problems, starting with the lack of an integrated approach to organizing planning.

Nevertheless, there are three main organizational approaches to planning the socio-economic development of a municipality.
1. Order of the municipal administration. Essentially, this is an administrative approach. It provides for the creation of a certain structure, usually in the state of the city administration, which is purposefully responsible for creating a plan and coordinating the activities of the rest of the community for its implementation. This approach is not very acceptable, as it does not contribute to the openness of the planning process and is not protected from corruption.
2. Creation of a temporary working group. It may be distanced from the administration, but the administration usually finances the work of such a group. The group gathers only for the period of development and creation of the plan, and the structure in the administration is already engaged in further monitoring. By general observations, this option is more applicable to small cities that have fewer resources to maintain such structures.
3. Conclusion of an agreement for the development of a program or strategy by a third-party organization (university, business association, consulting organization, etc.). There are theories according to which only external organizations are able to adequately deal with the development of plans and support for their implementation. This option is optimal, but its application in practice is constrained by a lack of resources, since the involvement of qualified specialists in a planning system that is not formalized in the form of a scientific discipline requires significant research efforts from developers, and from customers, represented by the local administration, significant expenses for the purchase of an individually developed scientific product.

As a first step towards the organization of local socio-economic development, the creation of an ad hoc working group is usually recommended as a kind of compromise between the need to observe the principles of openness and relative independence in planning and the real possibilities of most municipalities. In the future, on the basis of a temporary working group, a permanent expert center independent of the administration can be formed.

For comparison, despite the shortcomings of the first option, it is he who dominates in the United States. This is evidenced by the results of a study conducted at the end of the last century in a number of American cities. Only those cities were surveyed that recognized their development strategies as successful. Slightly less than half of the respondents entrusted most of the work on organizing their development planning to administrative structures. And only in 15% this activity was carried out mainly by private structures.

This is largely due to the relative cheapness of this method of organizing the planning of municipal socio-economic development. Small towns are more difficult to allocate budget resources to attract experts from outside. At the same time, the traditions of openness of local administrations that exist in American society relieve many of the problems that accompany the first type of organization for planning local socio-economic development.

Specific forms of organizing the process of developing and adopting products of municipal socio-economic planning can vary significantly from municipality to municipality, it all depends on the level of organization of the local administration, the management style of the first person and his ability to build relationships on the principles of partnership, procedures adopted in the municipality, nature the planning documents themselves (strategy, comprehensive program, targeted municipal programs, etc.).

A systematic approach to organizing planning involves regular maintenance of the planning system, including the timely introduction of necessary adjustments to planning documents. The development and adoption of a strategy, of course, requires further steps in the formation of development programs and projects. In general, the planning system is only a tool for organizing the development process. The interaction of various participants in this process within the system also requires "debugging" and organization.

Municipal Economic Development Planning: modern tendencies and problems
The surge of interest of municipalities in long-term planning, noted at the turn of the 1990s and 2000s, plays a positive role. It contributes to a comprehensive study of the socio-economic conditions of development, the search in municipalities for the most effective ways to solve their problems, stimulates the improvement of the skills of municipal personnel, establishes interaction between various structures of local self-government and communication of LSG bodies with the public and business. Despite a certain skepticism regarding long-term planning in a transitional economy, an increasing number of municipalities are engaged in it, and this is evidence that the strategy is not a tribute to fashion, but already a certain “deep” need.

However, often strategic documents created in cities turn out to be divorced from life, which practically nullifies a lot of analytical and organizational work and discredits the idea of ​​long-term planning in the eyes of representatives of municipalities.

Let us highlight some of the most important problems, the solution of which could significantly increase the efficiency of municipal planning work.
1. The problem of initiating the development of complex multi-year municipal planning documents. Often in communication with representatives of municipalities, the question arises what is an effective start for the creation of such documents? As practice shows, the options here can be different optimistic expectation of a miracle; belief that the program is a “trump card” for attracting funds from the federal and regional budgets; execution of decisions of regional authorities on the "universal" development of programs; "accidental" participation in grant programs (international, corporate); element of the election campaign; the focus of the city leadership on serious changes in management.
As a rule, all of the above cases, with the exception of the last two, are almost hopeless from the point of view of the formation of a municipal development planning system. It must be realized that strategic planning can only be effective on a regular basis.

2. The role of political support. The development and implementation of strategic documents is primarily a political process and needs political support. Moreover, this is specific not only to Russia, where the mayor, in order to formulate his strategy in the conditions of weak local self-government, must become a “political fighter”. Similar considerations are expressed by numerous foreign experts in the field of municipal government.
The same can be said about political support at the regional level: the chances for success of a program that is supported by regional authorities and in line with regional programs are clearly higher. In the practice of the Institute for Urban Economics Foundation, positive examples of cooperation between regional and local administrations in the development of municipal programs and strategies are shown, for example, by the Tomsk, Perm, Vologda regions, and the Republic of Chuvashia.

3. Organizational, personnel, financial problems of municipalities. Despite the experience accumulated in the country, for the vast majority of municipalities, multi-year planning technologies remain little known and hardly applicable. Specialists in economic, urban planning, financial departments administrations, supposedly called upon to plan urban development, are mainly engaged in solving current issues, often losing sight of the fact that the use of planning tools makes it possible to solve “everyday” problems of a housing and communal nature with great success. In most cases, municipal employees are not qualified to deal with strategic issues; economic and financial education received in the era of socialist centralized planned economy, leaves its mark on the realities of today, when the desire is alive to control everything.

Serious work on a comprehensive multi-year program requires human, material, and time resources, and it is better in a “liberated” form and on an ongoing basis, and not in the form of a one-time campaign. Unfortunately, heavy financial position cities, as a rule, pushes development into the background information bases, attracting the necessary specialists from outside, the implementation of public events that should have accompanied strategic developments. Nevertheless, there are examples of a modern approach to organizing such work in municipalities, for example, in Cherepovets, Vologda Oblast, Dimitrovgrad, Ulyanovsk Oblast, Gorodets, Nizhny Novgorod Oblast, Kaliningrad, and a number of other Russian cities, and they deserve all kinds of study and development.

4. Required condition publicity of long-term planning activities. A multi-year comprehensive program developed by the administration without the participation of the population and business is useless. This thesis is not new and is repeated from textbook to textbook. There are cities in Russia that have brought this idea to life. Interesting, for example, is the practice of the City Council for Strategic Planning in Cherepovets, the Citywide Assembly in the city of Dzerzhinsky, Moscow Region. The active participation of entrepreneurial structures in the long-term planning of urban development is developing. Moreover, this applies not only to the largest all-Russian corporations operating in the territory of their “presence” (for example, support for the creation of urban strategies by Yukos in Angarsk and Nefteyugansk). Begins to show interest in seeing the prospects for the work of the "local" business. Thus, in Vologda, the Business Communication Club, which unites Vologda entrepreneurs, acted as one of the initiators of the development of a city development strategy.

There is another aspect that often slips away in the course of work on a multi-year comprehensive program; such a document is primarily political and goal-setting. This determines its public status, both in terms of development and in terms of content that is quite general, brief and understandable to the entire population. All subsequent planning steps, medium-term and short-term programs, plans, budgets, should be more specific and allow for a reduction in publicity as they become more detailed.
5. Status of the multi-year integrated program. In the case of a well-developed strategy, the adoption of a comprehensive multi-year program may well be replaced by a set of targeted medium-term programs. The long-term planning horizon in the format of balancing goals, objectives and resources is less realistic due to the insufficiency of municipalities own resources for the implementation of capital-intensive projects. It should be noted that in the area of ​​responsibility of local governments there are infrastructure facilities that are characterized by a high degree of wear and therefore require significant funds for development.

In most municipalities, a comprehensive program does not turn into an ongoing planning tool, its preservation as a long-term document, regardless of the change of city leaders, without formal adoption by the local representative body is often very difficult, and long-term planning documents, on which a lot of effort and resources have been spent, " are lost." This is evidenced by the experience of implementing many strategic documents at the city level. Therefore, during the development of long-term plans and programs, it is recommended to bring them after a wide public discussion to the logical conclusion of the adoption by the local representative authority as a legal act. Such an act, taking into account its long-term and sufficiently general nature, will have a guiding value, serve as the basis for coordination and harmonization of medium-term and current planning. The powers of the executive bodies of local self-government, within the framework of budget planning, to establish the procedure for developing a long-term program, the timing of its implementation and the criteria make it possible to optimally apply this tool, adjusted for local conditions.

6. The content of work on long-term planning. Comprehensive municipal documents devoted to development planning for the medium and long term are so complex and, as a rule, "piece" products that it is almost impossible to offer a universal algorithm for their development and implementation. Nevertheless, a certain model has been formed in the Institute for Urban Economics Foundation, which can be adapted for most municipalities. It builds a kind of "vertical" of planning documents, combining the local development strategy, medium-term planning documents and current planning.

Attempts to mechanically transfer Western strategic planning technologies to Russian soil are most often doomed to failure, since municipal development in Russia takes place in an environment where the main institutional transformations in this area have not yet been carried out. IN developed countries with stable "conditions of the game" the main idea of ​​the strategy is the search for one or more infrastructure, investment, educational or other projects that could create new or enhance the potentially existing competitive advantages of this municipality.

In Russian municipalities, such a “project” part should be preceded (or solved in parallel) by the task of creating a normal environment for the life of the population and the work of entrepreneurs. This “restoring order” and creating stability will demonstrate to the investor that this municipality is ready for long-term constructive cooperation, and to the population that it has certain social prospects here.

This task goes beyond current problems, as it involves a lot of systematic work to create legal, organizational, economic, and managerial mechanisms that regulate financial, budgetary, land, property relations, housing markets, and participation in the management of the entire urban community. This task is of a strategic nature, since it is at least medium-term, requires, in a certain sense, a “revolutionary” breakdown of the current management mechanisms, and must be addressed both at the municipal level and in cooperation with regional structures, business, and the population.

The next medium-term program in the hierarchy of integrated planning, which combines interconnected targeted sectoral programs that are adopted and implemented in line with the chosen strategy. It is also complex in nature and is focused both on systemic transformations in the municipal "environment" and on specific strategic "projects". The medium-term program, in turn, is a guideline for current (budgetary) planning.

This is the approach shown in last years municipalities that have achieved the most notable success in socio-economic development, for example, Novgorod, Cherepovets, Bor in the Nizhny Novgorod region, Dzerzhinsky in the Moscow region.

7. The procedures for the development and implementation of long-term comprehensive municipal planning documents used by Russian municipalities are very diverse. This is determined both by the complexity of the municipality itself as an object of management, and by the complexity of long-term planning, as well as by the exceptional diversity of conditions in municipalities.

For example, the duration of the development of complex programs can range from several months to several years. In 1998 1999 comprehensive programs for the municipalities of the Nizhny Novgorod region were developed by the Institute for Urban Economics very quickly within three to four months, and one of the best, in our opinion, Russian long-term planning documents at the municipal level, the Strategic Development Plan for the city of Cherepovets until 2012, was “ripening” and was developed over seven years (1997-2003). At the same time, the quality of documents is almost not related to the duration of work on them. The creation of long-term plans is an extremely creative process and depends on the specifics of local conditions, the depth of study, and the parameters of the document itself. Issues such as timing and stages, institutionalization (who develops plans, who and in what capacity takes part in their creation and implementation), the format of intermediate and final planning documents are very specific in relation to each city.

Attempts to blindly duplicate other people's successful schemes in the development of integrated municipal plans and programs are rarely effective, and therefore the concept of their "modeling" seems to be very limited. Phenomena such as repeated iterations, increase in the duration of work, changes in its format, and other previously unforeseen phenomena can occur.
In particular, the project of the Institute for Urban Economics Foundation to create model programs for socio-economic development for cities different types although it led to very interesting results, it turned out to be much more difficult than originally expected. In the course of the project, comprehensive municipal socio-economic development programs were developed for the regional center (Perm), a large industrial city (Engels, Saratov Region), a single-industry city (Dimitrovgrad, Ulyanovsk Region), a small city (Buzuluk, Orenburg Region), as well as small towns, together with administrative districts (Tsivilsk Chuvash Republic and Balakhna, Nizhny Novgorod region).

8. Communication of strategic planning with other types of planning in municipalities. This issue concerns both the content and procedures already discussed earlier, but due to its importance, it requires a separate discussion.

Obviously, the strategy should become the basis for coordinating all planned work. It is a paradoxical situation when, in order to develop a financial plan or master plan development of the city territory, each sectoral subdivision of local administrations begins to independently form the concept of socio-economic development. At the same time, operational economists pay little attention to multi-year plans and coordination of activities of other departments. In practice, there are a number of situations that impede the coordination of actions, among them:
lack of consensus of key departments of local administrations, as a result, departmental interests lead to sabotage of complex works or endlessly delay them;
if there is a consensus between the departments of the administration in the fundamental understanding of multi-year plans, they create them in the conditions of a “planned inversion” from the existing plans of a lower sectoral level, and not on
turnover;
when developing complex programs (strategies), a competent document is created, but it turns out to be insufficiently connected with the existing planning system, general
city ​​development plan or mid-
urgent financial plan. There is a lack of a methodically developed and procedurally fixed link with medium-term and current planning, a system for monitoring and evaluating implementation, feedback and criteria for making the necessary adjustments.

Conclusion
The incompleteness of the reforms being implemented in the Russian Federation (local self-government, budgetary and administrative) affects the lack of formation methodological base management systems for the development of territories, more precisely, the lack of formation of the system of local self-government itself and the main components of the process of managing the development of strategic, territorial and budgetary planning developing on its basis. All three components are under development.

Being closely related to each other by the common goal of improving living conditions and improving the quality of the environment, the components of the development management process require common methodological approaches that combine them into an integrated system. Obvious discrepancies in the interpretation of planning elements indicate the need to compile and formalize guidelines on the formation and application of documents for managing the development of territories.

1 According to the Budget Code of the Russian Federation, in order to prepare a draft budget, it is necessary to develop a forecast for the socio-economic development of the municipality for three years and the main directions of the budgetary and tax policy of the municipality. Simultaneously with the draft budget, a medium-term financial plan is drawn up.
2 Federal Law of April 26, 2007 No. 63-FZ
3 Art. 179 of the Budget Code of the Russian Federation
4 Amendments to the Budget Code of the Russian Federation in 2007

*previous stage - 2015

To achieve the set goals, developed investment programs, formed long term strategy urban development, a forecast of socio-economic development up to 2021 and for the future up to 2035 has been developed, long-term programs for the integrated socio-economic development of the district have been developed, a consolidated report on the achieved values ​​​​of the performance indicators of local governments is compiled annually, and 19 existing municipal programs are being implemented.

The main directions of development of the agro-industrial complex.

The goal of the long-term development of the agro-industrial complex is the development and implementation of incentives for the efficient production of agricultural products, as a material basis for ensuring economic growth in the agro-industrial complex (AIC), improving the quality of life rural population and achieving competitiveness of agricultural products.

Main priority areas
long-term socio-economic development
municipal formation Kurkinsky district

The content of technologies and planning procedures is specified depending on its strategic and tactical nature. In general, the municipal development strategy includes: global, long-term and local goals that determine the activities of the municipality in general and local governments in particular. The strategic (global) goal determines the future qualitative state of the system in the long term, which society strives to achieve. Tactical (local) goals determine the future state of individual subsystems, have a qualitative dimension, but the time to achieve them is limited to the current period, usually up to one year;

Technologies that help achieve strategic goals;

Resources that will be used to achieve strategic goals;

A management system that ensures the achievement of strategic goals, including the local Community as the main component of the management system.

Strategic planning is a systematic process by which local communities form a picture of their future and determine the stages to achieve it based on local resources. Strategic planning of socio-economic development underlies the purposeful activities of municipal authorities. It is a means of combining efforts to achieve goals and solve problems, as well as to increase the effectiveness of strategic decisions.

In strategic planning, in particular, the following tasks are solved:

Formation (adjustment) of the mission of the municipality;

Introduction of planning into economic activity municipality;

Ensuring competitiveness in the future based on the implementation of long-term programs;

Definition of realistic goals and objectives;

Formation of programs and action plans;

Maintaining correspondence between the goals and capabilities of the territory;

Regulation of the development of the municipality;

Determination of priorities for economic and social development;

Adaptation of the municipality, municipal economy to the external environment;

The principles of strategic planning at the municipal level include:

The principle of system. It is expressed in the creation of positive economic activity at the level of the municipality as a whole (in this case, separate plans can be developed for specific sectors of the economy or individual industries, but this topic is outside the scope of the guide);

The principle of social orientation. Strategies need to be in the interest of a wide range of public within the municipality; strategies should be more bottom-up than top-down; strategies should be oriented towards the approval and assistance of a wide range of actors in their implementation.

The subjects of the strategic planning process, the implementation of strategic development programs for municipalities are, first of all, local governments, the population and its groups, including representatives of business, state enterprises, public organizations, as well as territorial public self-government bodies, etc.

In the strategic planning of the socio-economic development of the municipality, the following characteristics should be taken into account: geographical and climatic conditions; Natural resources; financial and economic base, condition and results of activities of economic entities operating in the given territory; social organization of the life of the population; the political situation, the effectiveness of local authorities, etc. A strong economy is the basis of a stable, sustainable and viable community, whose members can lead a lifestyle that contributes to the public good and the comprehensive development of each individual. Each municipality achieves this in its own way, based on the specific, sometimes unique, possibilities of the territory and the interests of the local community. Therefore, the strategic plan for economic development is a tool for building a strong economy.

The strategic development plan is a kind of contract of public consent, according to which municipal authorities, enterprises and public organizations assume certain obligations. The plan is a document that, in the form of tasks and indicators, reflects the main goals of the planned transformations for the development of the municipality, taking into account the introduction of new technologies and the rational use of resources. It is developed and implemented by all participants influencing the development of the region, city, taking into account the interests and with the participation of the population. The plan is addressed to the entire local community, sets guidelines for everyone, shows prospects for businesses, authorities, residents, and potential external investors. "When forming a strategic development plan, it is necessary to take into account the principle of adaptability. Strategic plans must be flexible and adaptable to a changing external environment.

The strategic plan (program) of development, as a rule, is adopted for a period of 5 years or more.

Stages of strategic planning of socio-economic development of the municipality

Targeting. An important step in strategic planning is the definition of the mission and goals, directions and ways of long-term development of the municipality. They serve as a guide for subsequent planning steps.

Collection, processing of information and development of proposals for adjusting goals. An important component of this stage is the analysis of the external and internal environment. The development of the municipality is determined by both external and internal factors. Strategic decisions made on the basis of taking into account only internal or; external factors will not be systemic enough, which will ultimately lead to erroneous decisions.

Development of the concept of development. This is the period of developing strategic guidelines and development criteria. Based on the obtained objective data, final conclusions are made about the goals of the municipality.

Development of a program (plan) for the socio-economic development of the municipality. As already noted, during the development of the Program, the interests of various subjects are coordinated.

Adoption of a program (plan) for strategic development. After the development of the concept, plan, development program, coordination of all issues between the entities involved in the preparation and implementation of these documents, the representative body of local self-government approves them at its meeting.

Development of a plan for the socio-economic development of the municipality

Analysis of initial information:

Socio-demographic (population size, its social and professional structure, ethnic composition; the structure of employment of the population, the unemployment rate, as well as data characterizing the quality of life of the population: incomes of the population, provision with social infrastructure facilities, etc.);

On the state and extent of use natural resource potential, as well as the environmental situation that has developed within the municipality;

Technical and economic, giving an idea of ​​both the technical condition of enterprises and organizations located within the municipality, and their financial condition;

On the state of local finances, including information on intergovernmental financial flows.

Determination of the development goals of the municipality:

1) definition of goals, their ranking;

2) allocation of strategic goals;

3) identification of possible ways to achieve them;

4) harmonization of the goals of the socio-economic development of a particular municipality with the goals of the subject of the Federation.

Sections of the plan (program) of socio-economic development:

Planning for the rational use of natural resource potential, protection and reproduction of the environment; planning for the rational use of demographic potential; in municipalities with a compact population of small nationalities, it is advisable to allocate special program, which ensures the preservation; and development of small ethnic groups;

Planning the standard of living of the population of the municipality;

Planning the development of the economy, with the obligatory allocation of a "separate line" of a system of measures to support small businesses (including peasant and farm enterprises) and the development of competition in local markets for goods and services;

Planning of social development, including the development of a system of measures for the development of housing and communal services, public education, health care, etc.; financial planning, which should cover not only the budget process, but also regulation financial flows formed within the boundaries of the municipality; socio-economic planning of individual settlements located within the boundaries of the municipality.

Current planning in the municipality is carried out for the next year, broken down by quarters and, as a rule, with a forecast for the next two years. This approach allows planning and implementation; program activities, the implementation period of which exceeds one year. Based on the forecast of the socio-economic development of the territory and the budget projections arising from the bliss, the administration develops a comprehensive annual plan for the socio-economic development of the territory. It establishes specific tasks and indicators for all areas of municipal activity: housing and communal services, transport, communications, public order, healthcare, social support for certain segments of the population, education, culture, sports, youth policy, etc.