Municipal property management systems prioritize effective performance. Improvement of legal regulation in the field of municipal property management
Chapter 1. Theoretical and methodological foundations of municipal property management.
1.1. Methodological principles of the study of property as an economic category.
1.2. Functional features of municipal property.
1.3. The main directions of the implementation of municipal property.
Chapter 2. Formation of an effective system of municipal property management as a condition for the development of the municipality.
2.1. The main reasons for the low efficiency of municipal property in the Russian Federation.
2.2. Formation of a mechanism for effective management of municipal property.
2.3. System of indicators for evaluating the effectiveness of municipal property management.
Chapter 3. Ways to improve the efficiency of municipal property management.
3.1. Evaluation of the effectiveness of the use of municipal property in Novosibirsk.
3.2. Alternative methodology for evaluating the effectiveness of municipal property management.
3.3. Innovations in the system of municipal property management.
Introduction to the thesis (part of the abstract) on the topic "Effective management of municipal property as a condition for the socio-economic development of the municipality"
Relevance of the research topic. Municipal property, and above all municipal property, constitutes the socio-economic basis of local self-government. The maximum return on the property assets of the municipality at the disposal of local authorities allows solving the current tasks of the socio-economic development of the territory, planning targets for the economic development of the municipality in the future. In this regard, the effective management of municipal property is a condition for the socio-economic development of the municipality and is one of the most important tasks of local governments.
At present, the lack of financial resources of municipalities, the lag of local budget revenues from the growing needs of the local community determine the need to improve the efficiency of the use of municipal property, expressed not only in the profitability of municipal property and urban land, but also in the effective functional and targeted activities of municipal unitary enterprises and organizations . Since the effectiveness of the use of municipal property depends on the management process, the issues of the methodology of municipal property management, including: the formation of methodological foundations for assessing the effectiveness of municipal property management, determining ways to improve the efficiency of its use, are of particular relevance and practical importance.
The degree of scientific development of the problem. Property relations are the object of study of numerous scientific works of Russian and foreign scientists. The theoretical foundations of property management are presented in the works of domestic scientists: L.I. Abalkina, V.G. Alieva, E.F. Borisova, M.K. Vasyunin,
A.I. Eremina, V.A. Kamenetsky, N.D. Kolesova, B.N. Queen,
B.I. Koshkina, Ya.A. Kronrod, V.V. Kruglova, V.I. Loskutova, V.P. Patrikeyeva, A.K. Covered, V.V. Radaeva, B.A. Raizberg, A.Ya. Ryabchenko,
A.V. Sidorovich, A.D. Smirnova, N. E. Teitelman, N.A. Tsagolov,
B.N. Cherkovets, V.P. Shkredova, V.M. Shupyro, V.N. Yagodkina and others.
Representatives of institutional economics made a certain contribution to the development of the economic theory of property; among foreign scientists, the following works should be noted: R. Coase, A. Alchiyan, G. Demsetz, D. North, A. Honore, R. Posner, O. Williamson, S. Cheng , T. Egtertson; among domestic authors it is necessary to note the following works: R.I. Kapelyushnikova, G.P. Litvintseva, A.G. Movsesyan, P.M. Nureeva, A.N. Oleinik, A.D. Radygina, A.E. Shastitko, S.G. Kirdina, O.E. Bessonova, T.V. Chechelova.
The role of forms of ownership in the effective economic activity of the economic system is studied in the works of such authors as L.L. Weger, L.S. Grinkevich, V.I. Zhukov, V.M. Kulkov, N.Ya. Petrakov, as well as S. Commander, J. Nellis, M. Schafer, J. Earl, S. Estrin,
C. Kilkery, J. Nellis, M. Shirley.
The works of domestic economists are devoted to the scientific development of issues of managing the development of socio-economic processes, planning the socio-economic development of territories: L.I. Abalkina, A.G. Aganbegyan, A.G. Voronina, S.A. Glazyev, A.L. Gaponenko, A.G. Granberg, R.M. Huseynova, D.S. Lvova, A.S. Novosyolova, A.V. Pikulkina, B.A. Raizberg, O.V. Simagina, G.A. Fadeikina, A.N. Shevtsova, L.I. Jacobson and others. In Western economic literature, the development of the problem of state management of the economy was carried out by such economists as F. Oyken, J. Sachs, P. Samuelson, J. Stiglitz and others.
The problems of managing state and municipal property are covered in the works of: A.Yu. Anuprienko, I.V. Efimchuk, A.D. Ivanova,
IN AND. Koshkina, D.S. Lvova, V.A. Maksimova, A.A. Mikheeva, O.M. Tolkachev, A.V. Savchenko, R.A. Shamsutdinova and others. Modern approaches to the management of state and municipal property are presented in the works of R. Grover, E. Glor, M.M. Solovyov.
Despite the presence of a large number of works devoted to the problems of municipal property management, the issues of management methodology should be considered insufficiently developed. In most works, the problem of municipal property management is reduced to the problem of efficient use and is not considered independently. In this regard, the quantitative goals of the municipal property management system dominate in the studies over the qualitative, strategic goals of management, which ultimately leads to the lack of a unified methodological basis for assessing the effectiveness of municipal property management.
The weak degree of knowledge of the process of realization of municipal property does not allow to fully substantiate proposals for the effective use of municipal property, makes it difficult to choose directions for improving the management system. In this case, the implementation of municipal property is understood as the process of achieving a socio-economic result from the management activities of local authorities in relation to the objects of the property complex.
The purpose of the study is to develop theoretical provisions and methodological approaches to improving the efficiency of municipal property management in the context of the strategic goals of the development of the municipality.
1. To analyze the theoretical and methodological foundations for the formation of a system of property relations and, on their basis, propose a system of methodological principles for the study of municipal property, taking into account the strategic goals of the development of the municipality.
2. Consider the functional features of municipal property.
3. Determine the main reasons for the low efficiency of the functioning of municipal property in the Russian Federation.
4. To form a mechanism for the effective management of municipal property, including the principles, goals and methods of management, focused on the development of the municipality.
5. Develop methodological bases for evaluating the effectiveness of municipal property management.
The object of the study is municipal property.
The subject of the study is managerial relations arising in the process of regulation and use of municipal property.
The field of study is the regularities and problems of the functioning and development of the municipal sector of the economy. The content of the dissertation corresponds to the specialty 08.00.05 - Economics and management of the national economy (municipal economy and local development management), p. 8 “Methods and tools for managing municipal property. Evaluation of the effectiveness of the use of objects of municipal property. Passports of the nomenclature of specialties of scientific workers (economic sciences).
The theoretical and methodological basis of the study was the main provisions of the economic theory of property, the theory of public choice, the theoretical developments of Russian and foreign researchers in the field of state and municipal government.
The work is based on the methodology of a systematic approach using the method of economic interpretation of the results obtained. In the analytical part, the methods of system analysis, classification and statistical groupings, comparative and graphical analysis, the method of expert assessments were used.
The methodological basis of the study was the regulatory and methodological materials of state and municipal authorities on the regulation of land and property relations at the level of the Russian Federation and the city of Novosibirsk.
The information base of the study was made up of regulatory legal acts of the Russian Federation, subjects of the Federation and municipalities, information, analytical materials of state authorities and local self-government; statistical data of the Federal State Statistics Service of the Russian Federation and its territorial bodies, as well as materials from foreign state statistical bodies and international organizations; analytical materials of domestic and foreign research organizations.
The scientific novelty of the study is the development of methodological foundations for the management of municipal property and the formation of a mechanism to improve the efficiency of its use. The following most significant results of the dissertation research, which constitute the scientific novelty of the work, are submitted for defense:
1. The concept of "municipal property" has been clarified based on the use of a system of methodological principles for researching property, revealing the economic content of municipal property and the process of its implementation in the development strategy of the municipality.
2. Based on the analysis of economic results from the use of municipal property, current trends in the formation of the revenue side of local budgets are revealed, indicating the low efficiency of the functioning of municipal property in the Russian Federation.
3. A mechanism for the effective management of municipal property is proposed, including the principles, goals, methods and criteria for the effective management of municipal property from the standpoint of its participation in the implementation of the strategic goals of the development of the municipality.
4. Methodological bases for assessing the effectiveness of municipal property management have been developed: indicators for measuring the effectiveness of the use of municipal property have been proposed, a system of indicators for assessing the effectiveness of municipal property management has been formed, a specific feature of which is the reflection of the final effect of management impact.
5. A methodical approach to the formation of directions for improving the efficiency of municipal property management from the standpoint of ensuring the integrity of the impact on the management system is proposed.
Theoretical and practical significance of the research. Theoretical provisions and conclusions of the dissertation research can be used in the further study of scientific and practical problems related to the management of municipal property.
Proposals for evaluating the effectiveness of municipal property management can be used in the practice of local governments when planning target indicators for the use of municipal property in the strategy for the socio-economic development of the municipality, including for comparing the results of management activities and developing measures aimed at improving the efficiency of municipal property .
The research materials can be used in teaching economic and managerial disciplines while reflecting the main trends in the development of property relations at the municipal level.
Approbation of the research results. The main provisions and results of the dissertation research were used in the teaching of the disciplines "Economic theory", "Economic theory of property" (act on the use of results No. 489/1 of 17.03.2009); to assess the effectiveness of property management in a number of municipalities (certificate on the use of results No. 0214/3097 dated June 15, 2009, certificate on the use of results No. 135 dated June 23, 2009). At the request of the Department of Land and Property Relations of the Novosibirsk City Hall, an assessment was made of the effectiveness of the use of municipal property and urban lands, recommendations were developed to improve the municipal property management system of the city of Novosibirsk (Act on the implementation of results No. 31/13-4253 dated May 15, 2009).
The results of the study were presented by the author at all-Russian and international scientific and scientific-practical conferences: Kemerovo State University "Anti-crisis management: production and territorial aspects" in 2009, the Ural Academy of Public Administration "Strategic planning for the development of municipalities in the context of local government reform" in 2008 year, the Institute of Economics and Organization of Industrial Production of the Siberian Branch of the Russian Academy of Sciences "Socio-economic development of Russia: ideas of young scientists" in 2008, the Siberian Academy of Public Administration "State and municipal management in Siberia: state and prospects" in 2007.
Publications on the research theme. On the topic of the study, 9 scientific papers were published with a total volume of 2.9 p.l. (personally by the author -2.9), including in publications included in the list recommended by the Higher Attestation Commission of Russia for the publication of the main results of scientific research, 2 works of 0.75 printed sheet; in addition, educational and methodical work of 5.57 square meters. (personally by the author-4,3).
Logic and structure of the study. The dissertation research consists of an introduction, three chapters and a conclusion, a list of sources used, applications.
Dissertation conclusion on the topic "Economics and management of the national economy: the theory of economic systems management; macroeconomics; economics, organization and management of enterprises, industries, complexes; innovation management; regional economics; logistics; labor economics", Filatova, Natalya Gennadievna
CONCLUSION
On the basis of the study, a number of conclusions were drawn, a number of recommendations and proposals were made.
The system of methodological principles for studying property, formed by the author, made it possible to clarify the concept of “municipal property”, to determine the features of the functioning of municipal property in the practice of a municipal formation. The contradictory nature of the functioning of municipal property revealed in the course of the study showed the need to form an integrated system of criteria and indicators for evaluating the effectiveness of municipal property management, taking into account the economic and social directions of implementation.
The analysis of the effectiveness of the functioning of municipal property in the Russian Federation, carried out by the author, determined the presence of modern trends in the implementation of municipal property, indicating the low efficiency of the functioning of municipal property and the need to improve the efficiency of municipal property management. In turn, the analysis of the reasons for the low efficiency of municipal property revealed the absence of the following necessary elements of a system for the effective management of municipal property:
Systems of quantitative and qualitative goals of municipal property management;
generally recognized criteria for the effectiveness of municipal property management;
Systems for evaluating the effectiveness of municipal property management, including performance monitoring.
Systematizing the obtained general theoretical conclusions, analytical data and practical material in the field of municipal property management, the author developed methodological foundations for assessing the effectiveness of municipal property management: proposed indicators for measuring the effectiveness of municipal property use, formed a system of indicators for assessing the effectiveness of municipal property management.
Taking into account the main directions of the implementation of municipal property - economic and social, as well as the goal of management - improving the quality of life of the population of the municipality, the author defines the following criteria as the main signs of the effectiveness of municipal property management:
Maximization of the result (profit) with the reasonableness of management costs - a criterion that reflects the economic, or commercial, efficiency of the use of municipal property;
Maximization of the result in compliance with the functional target standards is a criterion that reflects the effectiveness of the use of municipal property in terms of the social, or functional, significance of municipal property.
Taking into account these criteria, the following groups of indicators of the effectiveness of municipal property management were identified:
1) the degree of fulfillment of tasks and functions:
For commercial property - the economic efficiency of using "municipal property;
For functional-target property - social efficiency of municipal property use;
2) compliance of costs with the results obtained:
The difference in the volume of use of property to obtain similar results by this and other organizations;
The difference in the volume of use of property to obtain similar results by this organization in different periods of time in comparable conditions;
Additional funds that could be obtained with a more efficient use of property;
3) completeness and absence of redundancy in the use of property:
Absence (presence) and amount of unused property;
Absence (presence) and the volume of incomplete provision of municipal property with the fulfillment of target tasks and functions (due to the diversion of property in order to make a profit);
4) reproduction of property:
Absence (presence) or amount of lost property, bringing it into disrepair, reduction in performance due to improper operation;
Absence (presence) and volume of investments in municipal property, investments in capital repairs.
The use of these groups of indicators in assessing the effectiveness of management makes it possible to judge the effective use of municipal property, the effectiveness of municipal property management, compare indicators of various municipalities in different periods of time, determine possible directions for improving the efficiency of municipal property management of a particular territorial entity, develop the necessary management decisions for optimization of the process of using municipal property.
Based on the proposed methodology for evaluating the effectiveness of municipal property management, a system for monitoring efficiency can be developed. The introduction of a performance monitoring system into the overall system of forecasting, planning and implementation of a comprehensive program of socio-economic development of the municipality will allow it to perform the following management functions:
Evaluation of the effectiveness of the use of municipal property;
Adjustment of functional target standards and target indicators for the use of municipal property;
Information and analytical support for the management activities of authorities;
Development of measures aimed at improving the efficiency of the use of municipal property;
Monitoring the efficiency of the use of municipal property;
Ensuring the interaction of executive authorities with the private sector of the economy.
The author also suggests other ways to improve the efficiency of municipal property management. One of the ways to improve the efficiency of property management is related to the overall improvement of management based on the application of the concept of "good management" in the management of municipal property.
Applying this concept in the management of municipal property, the author proposes the following system of measures to improve it:
Implementation of management transparency tools, including:
Development and implementation of a normative model of effective management;
Development of effective mechanisms for concluding agreements, municipal contracts; wide notification of potential contracts and upcoming tenders; standardization of rules and procedures for concluding contracts; access to information about the results of competitions and concluded contracts;
Maintaining transparency in agreements between the municipality and the tenderer setting out rights and obligations, including in terms of conducting regular oversight of compliance with obligations; focus on end users; adherence to quality standards for the provision of services;
The introduction of an independent audit, including checking the accounts, as well as financial management and control systems, in order to establish the actual state of affairs in the organization and the quality of administration;
Setting service standards and interacting with professional associations.
The next direction of improving the efficiency of the municipal property management system is to improve the organization of the management process based on the convergence of the principles and mechanisms of public and private management. Taking into account the main provisions of the "new concept of management in the public sector", the author proposes the targeted development and active use in the management of municipal property of mechanisms and structures based on the convergence of the principles of public and private management, such as municipal agencies, outsourcing, leaseback, concessions, agreements on partnerships, etc.
1. according to the methodology for assessing the effectiveness of municipal property management:
When forming the composition and structure of municipal property, developing comprehensive programs for the socio-economic development of the municipality;
When forming and implementing a property management strategy within a particular municipal enterprise or organization;
2. on the calculation of indicators of the efficiency of the use of municipal property - in the development of target indicators of the effectiveness of municipal property. The universality of the proposed method is relative. Along with the development of property relations, changes in private indicators for evaluating the effectiveness of municipal property management are possible.
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The study of the problem of managing municipal property has shown that it is inextricably linked with the problem of managing the municipality as a whole. That is, it is one of the elements of the management system, which is a part of the basic and superstructural management relations associated with other relations that develop in the implementation of local self-government. In other words, this is an element of material resource management in the system of local public authorities, which has a specific goal - to ensure an adequate standard of living for people in a certain area. The presence of municipal property in good condition and in abundance is the main material condition that ensures the proper functioning of the municipality. However, the proper exercise of power requires correct, qualified actions to manage property. At the same time, management is not an end in itself, divorced from achieving them. It as a means, as a mechanism serves to achieve a certain result. Therefore, in this case, we should talk about the criteria for evaluating the effectiveness of municipal property management in order to compare the activity with the result achieved in the course of its implementation.
In the scientific literature, such concepts as “criterion” and “optimality criterion” are used. A criterion is a means for judgment, a sign on the basis of which something is evaluated. The optimality criterion implies a quantitative or ordinal indicator that expresses the marginal measure of the economic effect of the decision being made for a comparative assessment of possible solutions (alternatives) and the choice of the best one. The criterion for evaluating the effectiveness of municipal property could be defined as a means for judgment, a sign that determines the phenomenon (management) as a whole from the standpoint of quantitative, ordinal, qualitative indicators that express the state of efficiency of municipal property management.
See: Big Encyclopedic Dictionary. T. 1. M., 1991. S. 656.
And the first, and second, and third definitions can be used in the management of not only municipal property, but also the municipality as a whole.
Is it possible, for example, to use the criterion as a “means of judgment” about how fully the management of municipal property is carried out? Of course, this can be done by examining the result obtained from management, for example, based on the results of the past year or a longer period. Is it possible to use the criterion as a sign on the basis of which the assessment of managerial activity is made? Of course, on the basis of the studied result, it is possible to evaluate the effectiveness of management. And these are not only theoretical judgments. They are confirmed by practical activities carried out in individual municipalities.
An example is the joint activity of the district authorities and individual rural settlements of the Chernyansky district of the Belgorod region. Take, for example, the rural settlement of Orlik. This is a large settlement with a population of about 2 thousand inhabitants. In the late 70s - early 80s of the last century, the regional authorities set themselves the task of equipping a number of rural settlements by forming a property basis for creating appropriate conditions. The rural settlement Orlik was one of them. Together with the regional authorities, a master plan for the development of the village was prepared. The priority areas were the construction of one-story comfortable houses for two families with a courtyard and a personal plot, a school, a kindergarten, a nursery, a clinic, trade enterprises, public catering, a post office, a bathhouse, a Sberbank branch, a House of Culture, an administration building, sports facilities, a monument and a chestnut tree alleys in honor of the soldiers who died on the fronts of the Great Patriotic War, and other objects.
The plan provided for the construction of roads connecting several settlements with each other, as well as with the regional center, the laying of a gas pipeline and the construction of a gas distribution station. In addition, the plan included the reconstruction of the hospital and the creation of a boarding house for lonely elderly and elderly residents of the village. By the beginning of the 1990s, the strategic plan for the development of the village was completed in full. Today, all the necessary conditions for the life of people have been created. It is important to build, but equally important is the ability to maintain this property in good condition, skillfully manage the property and get good results from it. It should be noted that all the created infrastructure is currently in good condition and brings good results.
About school management. Here the work is on a planned basis. The purpose of the plans is to educate a person who should benefit the population and society itself. The conditions for this have been created. The school building has well-equipped classrooms and laboratories. Museums were created: the Great Patriotic War, local history, zoological. A corner of a young naturalist has been formed. The school building has gyms for football, volleyball, rhythmic gymnastics, tennis, a swimming pool, an assembly hall used both for ceremonial events and for amateur performances, teaching musical literacy.
100% of students take part in sports events. The school has formed teams in football, volleyball, tennis, which successfully perform in district competitions and achieve high results. It should be noted that up to 30% of school graduates have youth categories. Over the past 10 years, all young men are fit to serve in the Armed Forces of the country. Many enter universities and other educational institutions, some of them return to the village.
From among the residents themselves, a reserve of personnel is formed in various areas (for work at a school, kindergarten, hospital, nursing home, Orlik joint-stock company). As you can see, the school is run by good specialists. According to the results of 2007-2008, the school was awarded a Presidential grant of one million rubles.
Other facilities are also in good condition and effectively used for the benefit of residents. The result here is always associated with self-sufficiency, in which both adults and students of the school participate. For example, in the spring-summer and autumn period, schoolchildren grow vegetables and fruits on their own, and prepare them for the winter period. Part of the production is allocated by Orlik JSC. The school canteen has its own vegetables and fruits, hard-earned bread, and dairy products. For more than ten years, the incidence of children in school and kindergarten has been practically zero.
Housing and communal services are in excellent condition, the quality of roads is much superior to urban ones, and service enterprises are in no way inferior to urban ones.
How could such a result be achieved in rural areas? There is only one answer - the ability of the district leadership, together with the administration of the settlement, to find the right approach to organizing management, as well as the corresponding labor productivity of the inhabitants of the settlement.
There are other settlements in the named area with a similar situation, such as Olshanka, Russkaya Khalan, Morkvino and others. In general, there are quite a lot of them in the Belgorod region. These are both Starooskolsky and Gubkinsky districts, transformed into an urban district, in which most of the settlements are well equipped.
Thus, we have stated a judgment about the sign of management, which is the result, which is the actual criterion for evaluating management.
The result obtained can be compared with the results of many settlements in other subjects of the Russian Federation, where there is both good and, for the most part, poor condition of the property basis. All subjects of the Russian Federation, regions had equal conditions, but there is no such result. Why? In our opinion, the reason lies in the fact that many leaders and bodies of the constituent entities of the Russian Federation, districts could not determine the link through which the entire chain could be extended. Such a link in management is the formation of the property basis of settlements, its multiplication and proper maintenance. In addition, it is important to be able to organize this process in such a way that residents take part in it at all stages of the creation of objects and their operation. Today, feedback, taking into account the opinion of the population, possible participation in the implementation of various functions is underestimated. There are few places where both state authorities and local government bodies and officials are engaged in this direction. In the given example, this relationship is permanent, regardless of the change in the composition of the representative and executive-administrative body.
The activity of the authority here is evaluated by the result for the benefit of a particular person, and not by the building in which the administration is located and what kind of decoration it has. This is said to the fact that many leaders of various levels are passionate about creating luxurious administration premises. Enormous funds are allocated from the budget for all this, while schools, kindergartens, housing stock, and the entire housing and communal infrastructure are in poor condition. It can be concluded that the goal is formulated incorrectly and the level of cultural and moral education of leaders leaves much to be desired.
As for the underdeveloped territories in terms of property, only one conclusion can be drawn here - the authorities and leaders are not able to formulate goals, are not prepared to organize the management of the territory, and are divorced from the needs and concerns of citizens.
Based on the positive experience of the Orlik settlement, it is possible to single out the criteria for the effectiveness of municipal property management.
These include:
1) the presence of objects of municipal property intended for the implementation of functions and the exercise of competence;
2) availability of a register of municipal property;
3) availability of a decision of a representative body on the procedure for managing municipal property and the degree of its validity;
4) the existence of a plan for the formation of the property basis of the settlement and the degree of its validity;
5) availability and quality of budget planning;
6) the ability of subjects of legal relations to consistently ensure the maintenance of objects and their management (planning of capital and current repairs and self-control);
7) planning activities in institutions and organizations;
8) development of the initiative of residents and their involvement in the process of creation, maintenance and management of property;
9) availability of positive results of municipal property management;
10) professional suitability of personnel for effective management of municipal property;
11) creation of conditions for the formation of the revenue part of the budget of the settlement and the balance of income and expenses;
12) compliance of the scope of competence with the scope of the property basis;
13) the reality of exercising the competence established by law;
14) full employment of the population and sufficiency of material support.
The criteria for the effectiveness of the activities of individual municipalities are set out in the List of indicators for assessing the effectiveness of the activities of local governments of urban districts and municipal districts, approved by Decree of the President of the Russian Federation of April 28, 2008 N 607.
This document also touched upon the criteria for assessing the management of the property basis of local self-government. This may include:
1) the number of small businesses per 10 thousand people of the population;
2) the proportion of repaired public roads of local importance with a hard surface, in respect of which the following were made:
a) overhaul;
b) current repair;
3) the share of hard-surface motor roads of local importance transferred for maintenance to non-municipal and (or) state enterprises on the basis of long-term contracts (over three years);
4) the share of the average number of employees (without external part-timers) of small enterprises in the average number of employees (without external part-timers) of all enterprises and organizations;
5) the ratio of tariffs for industrial consumers to tariffs for the population:
Additional measures to implement the said Decree of the President of the Russian Federation include:
– approval of additional indicators for evaluating efficiency, including for calculating inefficient expenditures of local budgets;
- approval of a standard form for the report of the heads of administrations of urban districts and municipal districts on the achieved values of indicators for assessing the effectiveness of the activities of local governments of urban districts and municipal districts for the reporting period and planned values for a three-year period;
- development of a methodology for monitoring the effectiveness of the activities of local governments of urban districts and municipal districts;
– development of methodological recommendations on the procedure for allocating grants to municipalities at the expense of budgetary appropriations from the budget of a constituent entity of the Russian Federation in order to promote and encourage the achievement of the best values of the performance indicators of local governments of urban districts and municipal districts.
See: Zotov B.V. Handbook of the municipal employee. Rostov n / a: Phoenix, 2009. S. 73.
The list of additional indicators for assessing the effectiveness of the activities of local governments of urban districts and municipal districts, including the indicators necessary for calculating inefficient expenditures of local budgets:
1) average monthly nominal accrued wages of employees:
a) large and medium enterprises and non-profit organizations;
b) municipal preschool institutions;
c) teachers of municipal educational institutions;
d) other employees of municipal educational institutions;
e) doctors of municipal healthcare institutions;
f) paramedical personnel of municipal healthcare institutions;
2) the share of the length of public roads of local importance with hard surface in the total length of public roads of local importance;
3) the share of accounts payable for wages of municipal budgetary institutions;
4) approval of the budget for three years (if the constituent entity of the Russian Federation has switched to a three-year budget);
5) the share of own revenues of the local budget (with the exception of gratuitous receipts, receipts of tax revenues according to additional standards of deductions and income from paid services provided by municipal budgetary institutions) in the total volume of revenues of the budget of the municipality;
6) the total volume of expenditures of the budget of the municipality;
7) the share of fixed assets of organizations of municipal ownership that are in bankruptcy in the total value of fixed assets of organizations of municipal ownership (at the end of the year);
8) the share of profitable agricultural organizations in their total number (for municipal districts).
Decree of the Government of the Russian Federation of September 11, 2008 N 1313-r (as amended on December 18, 2010) “On the implementation of the Decree of the President of the Russian Federation of April 28, 2008 N 607 “On assessing the effectiveness of the activities of local governments of urban districts and municipal districts” (together with the Methodology for monitoring the performance of local governments of urban districts and municipal districts, Methodological recommendations on the procedure for allocating grants to municipalities at the expense of budgetary appropriations from the budget of a constituent entity of the Russian Federation in order to facilitate the achievement and (or) encourage the achievement of the best values of performance indicators of local governments city districts and municipal districts).
Evaluation of the effectiveness of state and municipal property management;
Many economists associate the effectiveness of property management with one form or another of it. There is another approach: the better the object functions, the higher the payment for the risk to which the owner is exposed. Risk, therefore, encourages the effective use of the object. Before considering this topic directly, let's turn to the basic provisions.
First, property management must exclude damage to national economic efficiency. Otherwise, the technological complexity of various types of production will be disrupted.
Secondly, as a result of corporatization of enterprises, the effectiveness of a particular management system can be expressed by receiving dividends. It becomes possible to predict the profitability of such enterprises and, accordingly, the efficiency expressed through dividends.
Thirdly, the efficiency of property management should be calculated separately for enterprises:
a) worked profitably in the pre-privatization period;
b) on the verge of bankruptcy in the pre-privatization period;
c) necessary for the national economy (strategically important) in any of their financial condition.
Speaking about the criteria for the effectiveness of the management of state and municipal property, one should distinguish between the concepts of effect and efficiency.
Effect - the result obtained by applying any costs (cash, labor, mechanical, etc.)
Efficiency - the ratio of the result obtained by applying any costs (cash, labor, mechanical, etc.) to the sum of these costs:
The costs of implementing the management process always have a monetary equivalent, and the results are usually expressed in physical units of changes in indicators of the state of the social sphere and the economy. As a result, it is very difficult to carry out the process of calculating the indicators of the effectiveness of the management of state and municipal property.
Let us designate the following as evaluation criteria:
- market - compliance of the main product strategy with market needs, likelihood of commercial success, likely sales volume, competitive position, overall market capacity in relation to offered and similar products, price elasticity of products, the need for marketing research and advertising to promote the product to the market, assessment of barriers to market penetration, protection from product obsolescence, assessment of the expected nature of competition and its impact on the price of products. It should also take into account the development of the economy in the following areas: financial - the size of investments and start-up costs, the potential annual profit, the compliance of the version of the state property management system with the criteria for the effectiveness of capital investments, the payback period, the possibility of using tax incentives, the need to attract borrowed capital and its share in investments, the financial risk associated with the introduction of a specific version of the management system; environmental - legal security, consistency of the project (option) with the current legislation, the reaction of public opinion to its implementation, the reduction of harmful products in production processes, the impact on the level of employment; scientific and technical - the prospects of the solutions used; patent cleanliness of products and patentability, the prospects for applying the results obtained in future developments, a positive impact on other projects (options) of public interest; production - the availability of raw materials, materials and additional equipment, new technologies, the availability of production personnel in terms of qualifications and numbers, the possibility of using production waste; production costs; – regional – resource opportunities, degree of social instability, improvement of the main economic indicators of development.
Fig.2.1.1. Directions for assessing the effectiveness of state and municipal property management
— social — change in the number of jobs; improvement of housing and cultural conditions; improvement of working conditions; influence on the structure of production personnel; reliability of supplying the population with certain types of goods; improving public health; saving free time. Social results in most cases cannot be valued, which makes it difficult to include them in the overall results of the effectiveness of property management.
— budgetary- these criteria are based on a comparison of the directions of cash flows from the budget to the maintenance and operation of property objects and to the budget as management results. At the same time, it is important to understand that budget efficiency exists both in the case of direct cash receipts into the budget system, and in the case of a decrease in absolute or relative budget expenditures. Absolute costs are determined by the total amount of costs, and relative costs are calculated per consumer of a budgetary service.
— economic- are defined as the ratio of income and expenses received in the process of managing state and municipal property (the level of profitability, the share of self-sufficiency, etc.) or through indicators of the competitiveness of manufactured products (goods and services) in the market.
Evaluation of the effectiveness of municipal property management
Methods for assessing the effectiveness of municipal property management
The property complex of municipalities is one of the components of the economic basis of local self-government and is an important factor in the sustainable socio-economic development of the territory. The main requirement for the use of municipal property is the most balanced combination of the principles of economic efficiency and social responsibility of local governments for ensuring the life of municipalities, the socio-economic interests of the population.
Municipal property management consists in the use by local authorities of the organizational and economic mechanism of influencing economic entities in the field of ownership, disposal and use of their property based on changes in legislation, taxation, interest rates, target standards and social standards, criteria, indicators and standards of efficiency and etc. To manage municipal property, it is necessary to develop and implement at all levels of government an interconnected system of legal, administrative and economic measures, united by a single policy for regulating property relations, which should ensure the stable, balanced and effective development of all property objects within the municipality.
Financial methods make it possible to ensure activities for the management and reproduction of municipal property, taking into account the receipt and distribution of income from its use. This allows you to optimize the burden on the expenditure side of the municipal budget, maximize revenues from the use of municipal property, set the percentage of deductions from the profits of municipal unitary enterprises, predict the receipt of dividends from participation in the capital of business entities, and other budget revenues. In the context of a constant budget deficit and a decrease in the share of own revenues in profitable sources of budget revenues, the activity of the municipality in managing city property should become a serious tool for regulating the city's economy. The property must generate income. It should be noted that municipal property is not yet fully considered by local administrations as a strategic asset that needs to be skillfully managed to increase income and solve social problems. It is necessary to find the balance between ensuring the social functions of local self-government and ensuring the profitability of municipal property, the sufficiency of the tax base for the development and normal life of the city's population and business entities. For the purposes of managing all objects of municipal property, they can be conditionally divided into two groups: budget-consuming and income-producing.
The management of the first conditional group should meet the objectives of optimizing budget expenditures for the maintenance of these facilities. This group includes historical and cultural monuments, real estate objects that are on the balance sheet of municipal educational, medical, health-improving institutions and enterprises necessary to fulfill the assigned powers of local governments.
Management of the second group of objects should be aimed at increasing the profitability of their use. This group includes all other objects not assigned to the first group. Important questions here are: how many and what objects can be identified and attributed to the area of profitable real estate, what part should be secured on the right of economic management for municipal enterprises and on the right of operational management for municipal institutions, determining criteria for the efficient use of property, increasing profitability and the role of real estate in socio-economic development of the city in order to exercise the powers assigned to local governments.
The effectiveness of property management at any level, ultimately, is manifested in the results of the production, economic and financial activities of management objects in relation to the resources expended. Therefore, it should be determined by comparing the relevant criteria, indicators and performance standards before and after the implementation of measures related to changing the forms and improving the methods of property management.
To assess the effectiveness of property management of municipal organizations, depending on the characteristics of the objects of management, the following types of efficiency can be used.
Social efficiency shows the measure of achieving the established standards of public goods - the quality of life of the population, the state of the environment, the level of health care, sanitary culture, education Nalesnaya Ya.A. Metody otsenki effektivnosti i instrumenty upravleniya munitsipal'noi svoopastva [Methods for assessing efficiency and management tools for municipal property]. Nalesnaya // Local government. - 2009. - No. 4. - p. 12 ..
The indicated approach is only one of the possible options for determining the social efficiency of municipal property management. In modern conditions, however, a comprehensive assessment of this process is required, based on a system of various indicators (market, financial, environmental, social, industrial, scientific and technical, etc.). It is this methodology that will create an effective system for monitoring management processes at the local level and will make it possible to objectively assess the quality of municipal property management.
Economic efficiency reflects the financial consequences of the implementation of measures in the field of property management for the local budget. Economic efficiency is mainly characterized by additional tax revenues due to the implementation of these measures, a reduction in budget expenditures for the maintenance of municipal organizations, income from privatization and the sale of shares of unprofitable enterprises owned by municipalities. The economic efficiency of municipal property management should be calculated as the ratio of the sum of all the organization's revenues to the budget and non-budgetary funds (minus benefits) to the cost of the property used, and then compare the results obtained with the relevant standards for various objects in the areas of activity Nalesnaya Ya.A. Metody otsenki effektivnosti i instrumenty upravleniya munitsipal'noi svoopastva [Methods for assessing efficiency and management tools for municipal property]. Nalesnaya // Local government. - 2009. - No. 4. - P. 14 .. The establishment of such standards will require the development, for example, of the optimal specific consumption of certain types of resources for the maintenance of property, the permissible volumes of production of goods and services per square meter of the area used, the minimum acceptable deductions to the budget and extra-budgetary funds, etc. .
Chapter I Conclusions
The concept of municipal property came into common use among Russians relatively recently, in the 1990s. Currently, in the theory and legislation of Russia there is no sufficiently clear definition of this concept. The Civil Code defines municipal property as the property of municipalities.
Thus, the main problem in the formation and management of municipal property today is the problem of legal regulation, since the legislation in this area has a number of gaps and shortcomings.
To date, the methodology for assessing municipal property has not been sufficiently developed either. However, most researchers tend to classify these methods according to two main criteria: economic and social.
How to evaluate the effectiveness of municipal property management
Income from the use of municipal property and the use of land resources make up a significant part of the city treasury. What criteria can be used to evaluate the effectiveness of municipal property management and how to improve the quality of this work? - these questions are answered by the Deputy Head of the Administration of the city of Kursk - Chairman of the Committee for Management of Municipal Property Alexander Nikolayevich Bulgakov:
— In accordance with Federal Law No. 131-FZ of October 6, 2003 “On the General Principles of Organizing Local Self-Government in the Russian Federation”, the economic basis of local self-government is municipal property. Municipal property includes property necessary for resolving issues of local importance, including municipal lands and some natural resources; property intended for the exercise by local self-government bodies of certain state powers, as well as for ensuring the activities of local self-government bodies, municipal employees, employees of municipal enterprises and institutions.
The city of Kursk owns property with a book value of about 14 billion rubles. The municipal formation "City of Kursk" is the founder of 223 municipal institutions and 19 unitary enterprises.
Practice shows that achieving effective management of municipal property is possible only with the simultaneous and comprehensive solution of a number of tasks: firstly, it is necessary to legislate the criteria and indicators for assessing the effectiveness and quality of municipal property management, and secondly, to improve the system of accounting and management of municipal property, in - thirdly, it is necessary to strengthen the own financial base of the municipality, i.е. the presence of the property from which income is received by the city budget.
Timely analysis of the use of property and assessment of the costs of ownership, disposal of property of the municipality allows you to develop more effective options for managing property, as well as timely determine the need for repair work and services for the preservation of real estate.
In order to achieve greater efficiency in the management of municipal property and the use of land resources, in my opinion, it is necessary to improve the system of accounting for municipal property.
Improving the efficiency of the use of municipal property is facilitated by the involvement in economic circulation of unused or misused real estate objects, the implementation of constant monitoring of the timely and complete receipt of rental and other payments from the use of municipal property and land plots.
In 2012, the budget of the city of Kursk received 633.1 million rubles from the use of municipal property and land plots. This year, the expected income will be 816.5 million rubles. Claims and lawsuits are constantly being carried out with unscrupulous payers; in 2012 alone, more than 11 million rubles were collected and sent to the budget.
It is very important to control the economic activities of municipal organizations, assess the need to keep them in the ownership of the municipality and make appropriate decisions, identify and formalize the municipal property rights of the city of Kursk for objects that meet the signs of ownerless and escheated property. Since 2009, the ownership of the City of Kursk municipality has been recognized for 305 ownerless objects and 16 escheated residential apartments.
In addition, in order to solve the problem of the shortage of kindergartens, we are acquiring property in municipal ownership and re-profiling municipal property objects for children's institutions.
Another important point is the creation of conditions for the development of small and medium-sized businesses, including property support, which is also the responsibility of the city executive branch.
A large reserve represents the rational use of land resources, the identification of users who have not issued title documents for the land plots used,
continuation of the process of forming land plots as real estate objects, putting them on state cadastral registration.
Since 2008, 1025 land plots have been formed, in 2013-2016 about a thousand more land plots will be registered. We are developing the practice of reserving land and withdrawing land plots for municipal needs. About a hundred land plots have been withdrawn for municipal needs, and another 50 plots are currently planned to be withdrawn.
— Can citizens somehow influence the process of increasing the efficiency of the use of municipal property?
Enterprising citizens living in the territory of the city of Kursk take an active part in the process of managing municipal property. The committee constantly receives written and oral appeals from the people of Kursk, thanks to which dozens of ownerless objects and escheated property have already been identified. Letters are also received with proposals for the further use of this or that municipal property. In particular, when drawing up forecast plans for the privatization of municipal property, the expressed opinions are taken into account. In addition, citizens participate in public hearings on land surveying projects.
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Analysis of the management of municipal property in the municipality of the urban district of the city of Surgut
Publication date: 16.05.2015 2015-05-16
Article viewed: 2383 times
Bibliographic description:
Eroshkin A. K. Analysis of the management of municipal property in the municipality of the urban district of the city of Surgut // Young scientist. 2015. №10. pp. 644-648. URL https://moluch.ru/archive/90/18820/ (date of access: 08/09/2018).
An important task of local authorities is the management of municipal property, including local finance, municipal property, municipal enterprises and institutions, municipal lands and other natural resources. The concept of "municipal property management" is new for the theory and practice of the Russian economy, which arose in the course of reforming the forms and relations of ownership in the 90s of the last century.
“Management of municipal property is based both on the general postulates of the theory of management, and on the specific features associated with the implementation of management within the limits established by federal law. A group of persons, in whose interests the management of municipal property is carried out, is determined - the population of the municipality. The main program objectives of municipal property management are:
— ensuring the economic basis of local self-government;
- improving the efficiency of municipal property management based on the optimization of its structure, the creation of an integrated management system;
- receiving additional revenues to the local budget;
— increasing the competitiveness of the municipality to attract investment, create new jobs, develop urban infrastructure” (Vasiliev, 2009).
Consequently, the goal of managing municipal property largely depends on the strategic goal and priorities of citywide development. An example is the main strategic goal of the city of Surgut - to provide a sufficiently high and steadily increasing quality of life for the current and future generations of citizens. The quality of life is determined and evaluated by a set of indicators characterizing the level of development and the degree of satisfaction of the material and spiritual needs of the population. The foregoing makes it possible to define the main goal of municipal property management as meeting the interests and needs of the local population.
The key problem in the development of the economic basis of local self-government is the effective management of municipal property, ensuring, on this basis, the absolute and relative growth of non-tax revenues received from its use.
It should be noted that increasing the efficiency of the use of municipal property, from the point of view of local governments, can be ensured by:
1) an increase in the volume of funds received from that part of municipal facilities that are capable of generating income;
2) a decrease in the level of expenditures of local budgets for the maintenance of the municipal sector of social facilities that do not provide for their own self-government.
Both of these tasks can be solved independently of each other on the basis of improving the specific performance indicators of municipal facilities within each of the two groups: respectively, increasing the profitability of some and reducing the cost of other facilities. In this case, in order to increase the economic efficiency of municipal property, it is also necessary to change its structure by increasing the share of objects that generate income for municipalities by reducing that part of them that requires municipal budget expenditures for its functioning.
Analysis of the share of income received from the management of municipal property and the sale of tangible and intangible assets
Total income tax and non-tax,
Total income from the management of municipal property and the sale of tangible and intangible assets
The analysis of annual reports on the execution of the budget of the municipality of the urban district of the city of Surgut from 2011 to 2014 reflects the following facts. The share of income from the use of municipal property and the sale of tangible and intangible assets in the total amount of tax and non-tax revenues did not undergo significant changes during the four analyzed years, but still increased both in absolute and relative terms.
With the general trend of growth in the revenue part of the budget, in the 2013 financial year there was a decrease in revenues from the use of municipal property and the sale of tangible and intangible assets. This fact is a reflection of the decline in the sale of assets in the post-crisis period.
Analysis of the execution of income from the use of municipal property
Executed according to annual reports, thousand rubles
Income from the use of property owned by the municipality
Income in the form of profit attributable to shares in the authorized (share) capital of business partnerships and companies, or dividends on shares owned by the municipality
Interest received from the provision of budget loans
Income received in the form of rent or other payment for the transfer of municipal property for compensation
Payments of municipal unitary enterprises
Other income from the use of property and rights owned by the municipality
The structure of income from the use of municipal property is as follows. Income received in the form of rent or other payment for the transfer of municipal property for compensation is the main component and varies during the analyzed period from 90 to 92%. Revenues to the budget of the city district of Surgut from the lease of municipal property have risen sharply over the past year. Their size in 2014 exceeded the level of 2011. by 1.36 times, which is due to the optimization of the rental rate.
The remaining components of this type of income have a weight for years from 0% to 4%. So, according to the report on the execution of the budget for 2014, the interest received from the provision of budget loans within the country; payments from municipal unitary enterprises; other income from the use of municipal property and rights amounted to 2% of the total amount of income from the use of property owned by the municipality. Income in the form of profit attributable to shares in the authorized (share) capital of economic partnerships and companies, or dividends on shares owned by municipalities, amounted to 3%.
Analysis of the execution of income from the sale of tangible and intangible assets
Executed according to annual reports, thousand rubles
Income from the sale of tangible and intangible assets
Income from the sale of apartments
Income from the sale of property owned by the municipality (with the exception of the property of budgetary and autonomous institutions, as well as the property of municipal unitary enterprises, including state enterprises)
Income from the sale of municipally owned land plots (except for land plots of autonomous institutions)
Revenues from the sale of apartments tend to decrease. In 2011, this type of income is 14% of the total income from the sale of assets, in 2014 - 5%. Also, a downward trend is noted for income from the sale of land plots owned by municipalities. In fiscal year 2011, the figure is 77% and by 2014 is 40%. The decrease in the percentage component of the listed subtypes of income occurs due to the growth of income from the sale of municipal property. Changes occur from 9% in 2011 to 55% in 2014 reporting year.
An analysis of the execution of planned indicators allows us to conclude that the original plans approved by the autumn decisions on the budget of the municipality of the urban district of the city of Surgut are inconsistent. This fact is confirmed by multiple changes (up to 10 times during the financial year) to the decision of the City Duma "On the forecast plan for the privatization of municipal property." The actual execution, for the most part, exceeds the targets approved by the first decision on the budget many times over. The Department of Property and Land Relations of the city, as an administrator of revenues, should improve the quality of planning revenues from the use of municipal property and revenues from the sale of tangible and intangible assets.
It should also be noted and other problems in the management and disposal of municipal property in the municipality.
Practice in the process of accounting and property management is the use of disparate automated systems for managing a part of municipal property. The system of software products consists of several programs. This is a property accounting program, a program for collecting rent from municipal property. Thus, there is no unified database of property objects (each property object is maintained separately in each database). The disadvantages of this situation include the inability to model the impact of economic conditions on the budget of the municipality (changes in the rental rate, changes in the value of property as a result of revaluation, the formation of various options for the forecast plan for privatization of property, changes in the cost and volume of operating resources). There is also no possibility of a comprehensive analysis of information contained in disparate information bases, which leads to incorrect management decisions, especially when high efficiency and correctness of decisions are required. This confirms the relevance of the task of creating a modern tool for the control and management of municipal property.
For effective property management, the necessary and sufficient management bases (organizational, legal and economic) must be created. These control bases imply a number of relationships:
— relations between real estate owners (federation, subjects of the federation, municipalities, private sector);
— relations regarding types of property (movable, immovable, including land relations)
The development of municipal property, the expansion of the facility base is due to the need to develop the municipal economy. It inevitably follows the economic growth of the municipality and the demand of the population.
Therefore, the structure of municipal property should be sufficient to meet the needs of the inhabitants of the territory.
The management of municipal property reviewed by me in the urban district of the city of Surgut showed that local governments in general effectively manage municipal property. This can be judged on the basis of an increase in non-tax revenues. It is also worth noting the positive balance of almost all unitary enterprises of the city. But, as in most municipalities in Russia, there are some difficulties: the problem of ownerless property; use of disparate automated systems. The Department of Property and Land Relations needs to develop a concept for the management of municipal property, which will consider specific methods and methods of management.
1. The charter of the urban district of the city of Surgut of the Khanty-Mansiysk Autonomous Okrug - Yugra, adopted by the decision of the City Duma of February 18, 2005 No. 425-III GD;
2. Regulations on the procedure for managing and disposing of the municipal property of the city of Surgut, approved by the Decision of the City Duma dated December 28, 2005 No. 551-III GD;
3. Regulations on the Department of Property and Land Relations of the Administration of the city of Surgut, approved by the order of the Mayor of the city dated 03.09.2002 No. 2611;
4. Decree on the approval of the system of indicators for assessing the effectiveness of the management of municipal property in the urban district of the city of Surgut;
5. Reports on the implementation of the forecast plan for the privatization of the municipal property of the urban district of the city of Surgut for 2011, 2012, 2013, 2014, approved by the Decisions of the City Duma
6. Explanatory notes "on the results of the socio-economic development of the municipality of the urban district of the city of Surgut" for 2011, 2012, 2013, 2014;
7. Vasiliev V. I. Federal legislation and the competence of local governments // Laws of the region as a subject of the Russian Federation / Ed. Tikhomirova Yu. A. - Voronezh: Voronezh University Publishing House, 2009. - S.
8. Voronin A. G., Lapin V. A., Shirokov A. N. Fundamentals of municipal management. - M. Mosk. societies. scientific fund, 1997;
9. Grigoriev V. V. Ostrina I. A. Rudnev A. V. Management of municipal real estate. Educational and practical guide. M.: Delo 2001;
10. Modin N. A. Municipal property - the economic basis for the activities of local governments // Legislation and economics. - 2001. - No. 2.
11. Municipal property and its effectiveness in the system of market relations / Irina Viktorovna Efimchuk. - N. Novgorod, 1999
Effective management of municipal property is one of the main functions carried out by municipal authorities in the process of implementing their activities. Therefore, increasing the efficiency of the use of municipal property is an important direction in the implementation of municipal policy. The processes taking place in the legislation of the Russian Federation reflect a significant change in approaches to the model of the municipal economy. There is a clear transition from the management by local governments of objects of municipal property to the management of processes in areas that are within the jurisdiction of municipalities. This entails, in turn, a change in the composition of municipal property by redistributing it between the levels of public authority in accordance with their specified competence, reprofiling and alienating objects that are not related to the direct responsibilities of local governments.
At the same time, local governments, and in particular, the administration of Krasnodar, face new challenges: the formation and execution of local budgets in the context of reforming interbudgetary relations, the development of lease and concession relations, influencing the tariff policy of local natural monopolies, reducing costs in the management of social and cultural facilities. All this forms the priority goals of the development of municipal property. Based on the results of practical activities and analysis of the material in the field of municipal asset management, including materials from the city of Krasnodar, the main directions (recommendations) that can create real prerequisites for a balanced, sustainable development of the municipality in the long term are identified.
As noted above, the development of municipalities takes place under the influence of a number of conditions that form the external environment for municipalities at the federal level, and among these conditions the priority of financial relations of the federal center is obvious. The most important of them are: the instability of the system of budgetary federalism, the growing trend of centralization of tax revenues at the federal level, the increasing dependence of municipalities on operational decisions and regulatory legal acts of federal bodies in the field of redistribution of financial resources. As a result, the share of stable income sources is significantly reduced and the level of fiscal autonomy of municipalities is decreasing.
As A.V. Anoprienko notes, among the most complex problems of state property management, requiring the fastest legal regulation at the federal level, the following can be distinguished:
- the procedure for accounting for state property;
— delegation of powers to manage state property;
- financial support for the burden of maintaining state property.
Only in this case, observing the requirements for the subjects, the form and content of the action (contract), including the requirements for the target orientation and compliance with the will and will, allow using the transfer of property from the municipal treasury as a legal form recognized by the legislator, that is, as a transaction. Thanks to this, the interests of participants in property relations and the public interest of local governments are ensured. In turn, the optimal interaction between public and private interests indicates the proper influence of civil law on economic processes in a market economy. Thus, realizing the purpose of law as a regulator of social relations.
The thesis study showed the need to develop a program and concept for managing the property of the treasury of the municipality of Krasnodar. The program and concept should be based on a realistic analysis of the conditions and resources for the development of the city. The content of the program and concept should be measures aimed at identifying the rationalization of the use of municipal resources, allowing to stabilize the socio-economic situation, give a new impetus to urban development.
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Efficient management of municipal property
Effective management of municipal property
Levi A.V.
assistant professor
Russia, Novorossiysk Polytechnic Institute of the Kuban State Technological University
The criterion for the efficiency of the use of municipal property can be the rationality of locating various objects, taking into account the specifics of the position and level of development of various districts of the city, as well as a combination of citywide and local interests in nature management and environmental safety. There are three aspects from the standpoint of which the effectiveness of the use of municipal real estate is assessed: land; urban planning; environmental protection.
efficiency, municipal property, nature management, environmental safety
Levi A.V.
Associate Professor
Russia, Novorossiysk Polytechnic Institute, Kuban State Technological University
Project investment in the region, is characterized by continuity and phasing of investments in fixed capital, the creation of innovation, technological and otherwise, set the total investment of regional businesses and infrastructure. Its target oriented project investment is focused on the timely adoption of regulatory measures to streamline the interaction between elements of the investment process and to achieve the necessary efficiency of investment.
efficiency, municipal property, natural resources, environment
Municipal property, along with local finance, constitutes the economic basis of local self-government. Now, despite the total privatization of everything and everything, the state and municipalities remain large owners of property. The issues of formation, effective management and disposal of municipal property, therefore, are very relevant in the current economic conditions.
The economic mechanism of city property management is a complex of legislative, regulatory, administrative acts and economic actions of the authorities, united by a single policy and aimed at a balanced development of the life of the city community.
The management system of municipal real estate has its own specifics, determined mainly by the specifics of the use of municipal real estate.
The criterion for the efficiency of the use of municipal property can be the rationality of locating various objects, taking into account the specifics of the position and level of development of various districts of the city, as well as a combination of citywide and local interests in nature management, environmental safety, etc.
There are three aspects from the standpoint of which the effectiveness of the use of municipal real estate is assessed: land; urban planning; environmental protection.
From the standpoint of the first aspect, efficiency is expressed by the maximum amount of collected land payments, from the standpoint of the second - by the creation of spatial conditions for the development of the material base of the city's diversified complex; from the standpoint of the third - the maximum preservation of valuable natural landscapes and ensuring ecological balance, which ultimately has a positive effect on the health of the population.
Based on the assessment of the effectiveness of the use of municipal real estate, it is possible to plan options for the use of real estate (sale, lease, transfer to management, pledge, contribution to the authorized capital of the company being created).
The general basis for planning any of the above activities is to determine the real market value of the property. The main criterion for selecting an option is the maximum income from the implementation of a particular option for using the property.
The budgetary efficiency of organizations using city property, as well as organizations in whose authorized capital there is a share of the municipality, is calculated as the ratio of the sum of all revenues to the budget and non-budgetary funds of the city for the analyzed period (minus benefits) to the value of property owned by the municipality.
Concerning the issue of the budget of the municipality, it should be noted that non-tax revenues are becoming increasingly important for local budgets.
In the last few years, almost 18,000 "squares" have been sold. The budget received a one-time income. DFBK (Department of Finance, Budget and Control) in Novorossiysk recommended limiting the sale of municipal property and selling only property the maintenance of which is burdensome for the municipality, this property is not of interest to the municipality, does not generate income for it and requires capital expenditures for repairs and maintenance.
Lease agreements were concluded for 47,000 square meters out of 578,000 square meters of municipal premises. The rest of the area is occupied by free guests - 209 municipal enterprises and institutions, as well as federal structures.
Some tenants illegally rent out the space they got for free to commercial organizations. The task of the Committee is to identify such "free" areas and rent them out. The Committee proposes to generate income for the local budget by freeing up additional space that is confiscated from unprofitable municipal enterprises: resolutions on the liquidation of two inefficient municipal unitary enterprises (Taxi-Signal and Comfort Services) were signed at the end of last year.
More than 70,000 square meters of municipal premises have been transferred for free use to federal and regional structures (some of which provide paid services to residents of the city). If we translate them into lease terms and charge for a square meter of leased space at least at the minimum rate (21 rubles), then the Novorossiysk treasury would have monthly up to 1.1 million rubles.
What is an extra budget million per month? This is already half the amount required for the resettlement of people from the dilapidated fund next year. Whether the budget will take this money or not, it is up to the City Duma to decide.
Let us turn to the figures of the city budget of Novorossiysk for 2003. While tax revenues are 938,491 rubles, non-tax revenues are only 89,703 rubles, including land rent - 43,000 rubles, income from the lease of municipal property, dividends - 38,117 rubles on average per month.
As a result of the analysis, the following tasks of the economic mechanism for the effective management of municipal property can be distinguished:
EFFICIENCY OF USE OF MUNICIPAL PROPERTY AS ONE OF THE TOPICAL PROBLEMS OF MUNICIPAL MANAGEMENT
Maximov Maxim Valerievich
Head of the Office of the Orenburg City Council
Aichanova Aigul Adelevna
Assistant of the Department of State and Municipal Administration, OGIM
Local self-government is one of the foundations of the constitutional system of the Russian Federation. According to Federal Law No. 131 of October 06, 2003, local self-government is a form of exercise by the people of their power, which ensures that the population independently and under its own responsibility resolves issues of local importance directly and (or) through local governments based on the interests of the population, taking into account historical and other local traditions . The main tool for organizing and ensuring the life of the population of the municipality is municipal property.
Currently, municipal property, being the economic basis of local self-government, underlies all economically developed countries. In Russia, the formation of municipal property as the basis of the economy dates back to the 90s. It was at this time that as a result of the division of ownership into federal, regional and municipal municipalities began to be the owners of property complexes.
According to the European Charter on Local Self-Government and the legislation of the Russian Federation, the existence of municipal property is recognized and guaranteed by the state on an equal basis with other types of property.
Article 215 Civil Code of the Russian Federation defines municipal property as property owned by the right of ownership of urban and rural settlements, as well as other municipalities. Municipal property is assigned to municipal enterprises and institutions for possession, use and disposal.
Objects of municipal property are of a specific nature, since they are intended to address issues of local importance and must meet the needs of the population. The issues of local importance include the problems of life support of the population, the solution of which should correspond to the availability of material and financial capabilities of local governments. That is why the management of municipal property is a difficult process to manage.
To date, only assessments of the effectiveness of local self-government bodies have been legislatively fixed: The Federal Law of October 18, 2007 introduced Article 18.1 of Federal Law No. 131 of October 06, 2003 “On the General Principles of Organizing Local Self-Government in the Russian Federation”. To conduct a comprehensive analysis and calculate the effectiveness of the activities of local governments, the Decree of the Government of the Russian Federation of September 11, 2009 No. 1313-r "On the implementation of the decree of the President of the Russian Federation of April 28, 2008 No. 607 on assessing the effectiveness of the activities of local governments of urban districts and municipal districts" defines the following criteria :
1. economic development;
2. income level of the population and health;
3. health care and education;
4. physical culture and sports;
5. housing and communal services and housing policy;
6. organization of municipal government. The criteria for the effectiveness of municipal property management, as well as the criteria for the quality of municipal property management, are not legally fixed. We fully agree with the criteria for the effectiveness of municipal property management, proposed by T. A. Chuvashova, member of the board of the section “Municipal Property Management” of the Union of Russian Cities.
According to the functions and tasks of municipal bodies of local self-government, the effectiveness of municipal property management can be assessed by the following indicators:
1. social efficiency, taking into account the social consequences of municipal property management;
2. commercial efficiency or financial efficiency, taking into account the financial consequences of the implementation and management of municipal property;
3. budgetary efficiency, reflecting financial receipts to the city budget from the use of municipal property;
4. economic efficiency, taking into account the costs and results associated with the management of municipal property.
In our opinion, the criteria proposed by T. A. Chuvashova include the efficiency of personnel activity, the efficiency of using information resources and technologies.
Effective and high-quality management of municipal property aims to minimize the cost of maintaining and owning property while maintaining the value of property and exercising the powers of local governments.
According to V. Timchenko and L. Pronina, the share of non-tax revenues, the main part of which is income from the use of property, is an indicator of the effectiveness of the use of municipal property. In the Russian Federation, in the total volume of planned own revenues of local budgets, tax and non-tax revenues amounted to 62.8% and 17.7%, respectively. Therefore, an important task is to strengthen the municipality's own tax base as one of the factors of the financial independence of the municipality.
At the moment, it is planned to amend the Tax Code of the Russian Federation, which involves the unification of three types of tax collections. Namely: the unification of the tax on property of legal entities, deducted to the regional budget, the tax on property of individuals and the land tax, deducted to the local budget into a single tax on real estate. A similar taxation system is used in some economically developed countries, such as Ireland, France, Germany, Spain, Belgium, the Netherlands, Denmark, Great Britain and Italy.
In our opinion, this change will help strengthen the tax base of municipalities. The surplus of the local budget will contribute to the emergence of new opportunities to effectively meet the needs of the population at the local level, because at present most of the municipalities are subsidized, dependent on the federal budget, which affects the completeness, efficiency and effectiveness of the life support of the population. As a result, a system of factors will be created that will increase the economic independence and social development of the territories of municipalities.
As part of municipal property, a separate article is allocated to immovable non-residential property alienated to individuals and legal entities in accordance with Article 2 of the Federal Law “On the Privatization of State and Municipal Property” dated December 21, 2001 No. 178. According to this law, immovable non-residential property, together with land, is subject to sale.
In this case, the municipality has the right to rely only on the medium-term profit from the sale of immovable non-residential property, while in the long term, the efficiency of the use of municipal immovable non-residential property would be presented in the form of profit from the lease of this type of property. But the legislator counted, first of all, on the removal from the municipal balance of real estate, which is an expenditure part of the budget (expenses for the maintenance of real estate), not taking into account the fact that the alienation of this property will bring the municipality only short-term profit.
Currently, in the municipalities of the Russian Federation, an automated property management system is actively used - the Register of Property of the Municipal Treasury, that is, the Register of municipal property not assigned to municipal enterprises and institutions, constituting the municipal treasury of the corresponding urban, rural settlement or other municipality.
The introduction and active use of such automated systems is undoubtedly a big step towards improving management efficiency.
However, the Register of Property of the Municipal Treasury as an automated system has some drawbacks, one of which is the accounting of only property not assigned to municipal enterprises and institutions, and therefore there is no single database of property objects. The result of such accounting is inconsistencies in the calculations of the costs of maintaining property, especially real estate.
As for the latter, in the Property Register of the municipal treasury, for the most part, real estate objects such as buildings and premises are taken into account, in turn, roads, parks, heat, gas and electricity networks are not included in the Register, so there is a problem of a comprehensive analysis of all real estate .
Thus, the above shortcomings reduce the effectiveness of decisions made on the management of municipal property and the quality of management.
That is why the system for implementing measures to improve the efficiency of municipal property management pursues one single goal - the preservation of ownership of property owned by the municipality, which is necessary to ensure the resolution of local issues in the interests of the population and the construction of an optimal system for the use of this property with the lowest cost of available resources .
An important problem in the field of municipal property management is the effective management of municipal unitary enterprises as property complexes. The property complex of enterprises includes all types of property, including land plots, buildings, structures, equipment, inventory, raw materials, products, claims, debts, as well as the rights to designations that individualize its activities, assigned to enterprises on the right of economic management and used for their business activities.
The entrepreneurial activity of municipal unitary enterprises in most cases is unprofitable, although when such enterprises are transferred to private hands, they become very profitable. For example, municipal transport, even taking into account the receipt of budget subsidies, remains an activity that does not generate income, which cannot be compared with the profitability of private passenger transportation.
Basically, unprofitable activities of enterprises are associated with unjustified expenses and misappropriation, as well as with insufficient control by higher authorities, a poorly established control system at the enterprise itself, and the absence of a pre-contractual system.
At present, attempts are being made by local governments to stabilize the activities of municipal unitary enterprises by creating specialized enterprises, but these measures are clearly not enough to increase the profitability and efficient functioning of municipal unitary enterprises as the main element of the municipal economy in the future.
Achieving effective management of municipal property is possible only with the simultaneous and comprehensive solution of a number of tasks: firstly, the legislative consolidation of criteria and indicators for assessing the effectiveness and quality of municipal property management, secondly, improving the system of accounting and management of municipal property, thirdly, strengthening one's own financial base of municipalities.
Timely analysis of the use of property and assessment of the costs of ownership, disposal of property of the municipality allows you to develop more effective options for managing property, as well as timely determine the need for repair work to preserve real estate. At present, the level of means used to solve the task does not meet the necessary requirements of efficiency.
That is why the issues of ensuring the highly efficient and rational use of municipal property are becoming one of the most important socio-economic tasks.
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PROBLEMS OF THE EFFICIENCY OF MUNICIPAL PROPERTY MANAGEMENT AND THE WAYS OF THEIR SOLUTION
It is well known that the reality and effectiveness of local self-government is determined primarily by the material and financial resources at their disposal. The lack of sufficient financial resources in the budgets of cities forces the city authorities to improve the budgetary and tax policy. And first of all, this is the establishment of payments for the use of natural resources and, in particular, payments for urban real estate.
Effective management of municipal property is an integral part of the activity of the city administration in order to replenish the budget for solving economic and social problems.
The definition of municipal property is specified in Article 215 of the Civil Code of the Russian Federation - property owned by urban and rural settlements, as well as other municipalities, is municipal property.5
On behalf of the municipality, the rights of the owner are exercised by local governments and persons specified in Article 125 of the Civil Code of the Russian Federation.
Municipal property management is a scientific and economic discipline that studies the system of relations of its subject (owner) to the property belonging to him as to his own, which is expressed in the possession, use, and disposal of the said property, as well as in eliminating the interference of all third parties in that area of economic domination subject to the power of the owner.
In recent years, the interest of scientists and practitioners in the problem of the efficiency of the use of municipal property has become more and more noticeable. The increasing urgency of this problem is due to the inefficient use of municipal lands, which are often rented out or, even worse, sold at minimal prices. Municipal property is in a run-down condition, often unusable and in need of major repairs.
Municipal property, along with local finance, constitutes the economic basis of local self-government. The issues of formation of effective management and disposal of municipal property are therefore a priority for municipalities. For newly created municipalities, the problem of speedy and full-fledged regulatory support for the activities of local governments in managing municipal property is of particular relevance.6 Solving the problem of creating an effective system for managing municipal property involves concentrating the rule-making, organizational and managerial efforts of local governments in the following main areas:
1. Ensuring proper (i.e. complete and timely) accounting of municipal property and maintaining its register, including a multi-aspect (technical, economic, legal) description of the relevant accounting objects.
2. Ensuring the optimal management decisions on the disposal of municipal property (observance of a balanced balance of social, fiscal and investment goals), including when it is alienated, secured in economic management or operational management, transferred for use or trust management, made as a contribution during the creation business entities, use as collateral for credit obligations (mortgage).
5 of the Civil Code of the Russian Federation Art. 215 "The right of municipal property"
6 Nekrasov V. I. Municipal property in the system of municipal management // Problems of regional economics. - 2010. - No. 3/4.- S. 302-310.
3. Ensuring the proper maintenance and efficient use of municipal property, including measures to increase the investment attractiveness of municipal real estate.
4. Ensuring effective control over the safety and use of municipal property for its intended purpose.7
The construction of an integral system of municipal property management presupposes the manifestation of active rule-making efforts on the part of the municipalities themselves. In their norm-setting activities, municipalities today follow the path of adopting separate normative acts in certain areas of activity for the management and disposal of municipal property. Some experience has already been gained in applying such legal acts in practice. It seems that this experience can be used to develop a comprehensive legal act, which will regulate almost all aspects of the management and disposal of municipal property.
Separate sections of a complex regulatory legal act may be devoted to the following issues:
1. Accounting for municipal property;
2.Control over the use of municipal property; 3. Creation and reorganization of enterprises and institutions; 4.Liquidation of enterprises and institutions;
5. Enterprise management; 6. Participation in business companies;
7. Disposal of real estate assigned to the enterprise; 8. Sale of municipal housing stock;
9. Transfer of property for use under an agreement;
10. Offset of the cost of major repairs against rent;
11. Transfer of property for sublease;
12. Trust management of property;
13. Participation in investment activities by transferring property to the investor;
14. Pledge of municipal property;
15. Write-off of municipal property.
Despite its complex nature, this document will nevertheless make references to other regulatory legal acts. Thus, the authorized bodies of local self-government should additionally develop and adopt the following regulatory legal acts:
— Regulations on the commission on the disposal of municipal property;
— On the procedure and conditions for insurance of municipal property;
— On the approval of approximate forms of charters of municipal unitary enterprises and municipal institutions;
— On approval of an approximate form of a contract with the head of a municipal unitary enterprise;
— Regulations on the Supervisory Board;
— On the procedure for establishing and changing the amount of the part of the profit of a municipal unitary enterprise transferred to the budget;
— On trusted representatives of the municipality in non-profit organizations;
— Regulations on the procedure for material incentives for the activities of representatives of the municipality in the management bodies of business entities;
— On the competitive appointment of sellers of municipal property;
— On the procedure for privatization of the municipal housing stock;
— On the procedure for holding tenders for the right to conclude contracts for the transfer of municipal property into temporary possession, use and disposal;
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Anichkova A.A. 2011Ways to improve the efficiency of municipal property management
A.A. Anichkova,
postgraduate student of the Bashkir State University (Ufa)
The article discusses the financial and economic foundations of local self-government and approaches to determining the effectiveness of the use of municipal property, suggests methods for improving the efficiency of municipal property management.
Key words: municipal property, municipal property management, local self-government, financial resources.
UDC 351/354 BBK 67.401
Local self-government is one of the most important institutions of modern society. It is designed to solve and regulate various economic, social, political, environmental and other issues that arise at the local level. The reality and effectiveness of local self-government is determined, first of all, by the material and financial resources at the disposal of municipalities and which in their totality constitute the financial and economic foundations of local self-government.
The economic basis of local self-government of a municipal formation is the property owned by the municipality, the funds of local budgets, as well as the property rights of municipal formations (Article 49 of the Federal Law No. 131).
But, despite such a list of resources, most municipalities are subsidized. In the structure of financial assistance from the local budget, not subsidies, directions, the expenditure of which is determined by the municipalities themselves, but subsidies, i. the share participation of a higher level of the budget system in the expenses that the subject of the Federation considers necessary.
Under such conditions, of course, municipalities lose their economic freedom and viability, which in turn reduces the effectiveness of local self-government. Municipalities are forced to take all necessary measures to change the current situation. Thus, municipal property serves as the basis for the activities of the municipality and a tool for managing the solvency and financial stability of the region.
In recent years, the interest of scientists and practitioners in the problem of the efficiency of the use of municipal property has become more and more noticeable. The increasing urgency of this problem is due to the inefficient use of municipal lands, which are often rented out or, even worse, sold at minimal prices. Municipal property is in a run-down condition, often unusable and in need of major repairs.
Analyzing this problem, there are several approaches to determining the efficiency of property use.
First, in terms of the amount of income received. Such an indicator can be the share of budget revenues from the economic use of property (taking into account revenues from property taxation; excluding revenues from property taxation).
Secondly, from the point of view of public benefit. Only qualitative indicators (for example, a decrease in juvenile delinquency as a result of the construction of a network of children's clubs).
Thirdly, from the point of view of saving budgetary funds (it was widely used in pre-revolutionary Russia). For example, the construction of administrative buildings makes it possible to release the housing stock occupied by various institutions (SES, housing department, passport offices, etc.) and transfer it to residents, as well as reduce payments to the private sector for rented space.
With regard to objects of municipal property, the degree of expediency, and not the degree of efficiency, should be assessed.
activity of use. If we talk about effective management, then the degree of efficiency must be assessed by the level of satisfaction of all stakeholders in solving certain problems. It is not possible to assess the effectiveness of management only by quantitative indicators, since the management of municipal finances and property is a specific area of activity in which it is often important not the number of issues resolved, but the quality of their resolution.
When evaluating the effectiveness of financial and property management, one should proceed from the goals and objectives facing local governments. Since the main goal of the activities of local governments is to satisfy the collective interests of the population living in the territory of the municipality, and to ensure its basic vital needs in areas related to the jurisdiction of municipalities, we cannot directly use the usual market estimates (profitability, profitability, etc. .). In this case, it is necessary, first of all, to answer the questions of how much the quality of life of the population has increased as a result of management, how dynamically the municipality is developing. Therefore, different approaches are needed to assess the effectiveness of managing the revenue and expenditure parts of the local budget, various objects of municipal property. The increase in the revenue side of the local budget, which is not related to the decisions of state authorities regarding the transfer of additional sources of income or an increase in the percentage of deductions, can be assessed in absolute terms. The effectiveness of the use of budgetary funds (expenditure management) can be assessed by increasing (decreasing) the indicator of the quality of life of the population at equal costs.
When evaluating the effectiveness of municipal property management, it is necessary to separate the property objects necessary for solving social problems and the property objects used to obtain additional local budget revenues.
It is possible to carry out this analysis from the position of three aspects, with the help of which the effectiveness of the use of municipal property is assessed: land, urban planning and environmental protection.
From the standpoint of the first aspect, efficiency is expressed by the maximum amount of collected land payments, from the standpoint of the second - by the creation of spatial conditions for the development of the material base of the diversified complex of the city; from the position of the third - the maximum preservation of valuable natural landscapes and ensuring ecological balance, which positively affects the health of the population.
Based on the assessment of the effectiveness of the use of municipal property, it is possible to plan options for the use of real estate (sale, lease, transfer to management, pledge, contribution to the authorized capital of the company being created).
The general basis for planning any of the listed activities is to determine the real
noah market value of the property. The main criterion for selecting an option is the maximum income from the implementation of a particular option for using the object of municipal property.
Consequently, one of the most important tasks of the municipality is to improve the efficiency of municipal property management as a continuous process of self-analysis, which should be present in the relevant management organizations.
One of the methods to improve the efficiency of municipal property management is to hold competitions for the positions of heads of municipal enterprises and institutions, improve the skills of management personnel, strictly control their work, evaluate their activities based on the results of the work of the complexes they manage.
The second is strict control over the staffing of enterprises, which must exactly correspond to the volume of services they provide or work performed.
The third method is to rent out municipal property on a competitive basis, arrange auctions so that more profitable projects and investors have an advantage.
The main requirement in relation to the sale or lease of a building by the local community is that these procedures must comply with market conditions (auction, competition, as well as the requirement to secure a market sale price, rent). The right to sell, rent buildings of the local community corresponds to its right to acquire old industrial buildings (in private property). The purpose of the latter operation is to encourage new use after renovation by providing a buyer or tenant discount to cover the difference between the building's normally higher post-refurbishment cost and its market value.
In addition, in some areas of the municipality that require the promotion of the creation or expansion of economic activity in the areas of local government (for example, in the field of landscaping), local communities may provide discounts from the market price of the sale or lease of real estate, for example, up to 25% of the sale price or rental value of the buildings.
Another method of improving the efficiency of municipal property management can be the establishment of a procedure for making managerial decisions in case of non-fulfillment of the program (plan, business plan). “... In particular, when justifying the impossibility of achieving a goal, implementing programs, decisions can be made on the reorganization, liquidation of an enterprise, institution, on the privatization of municipal property,” etc.
One can not only agree with these measures as providing the right approach to correcting the current situation, but in addition to them, a regulatory legal act should be adopted at the local level, according to which a mandatory clause of the agreement (contract) with the head of the enterprise will be the norm establishing the right of the owner of the transferred municipal property to release this head from his position in
when the performance of the organization does not meet certain requirements.
However, the set of methods to improve the efficiency of property and financial management is quite limited. The main problem is the preparedness and qualifications of managerial personnel, as well as their interest in the results of their activities.
As a result, within a certain time, it would be possible to gradually and completely replace the managers of enterprises working today with “new” ones, with whom new contracts would be concluded. With some (perhaps with the majority) - in view of the experience accumulated by these employees - it is enough to renegotiate contracts without changing managers personally.
In order to improve the efficiency of municipal property management, foreign experience can be used. The approaches to this problem in the Federal Republic of Germany are interesting. The local government system of this country is built in accordance with the administrative-territorial division, similar in most lands. Communities are integrated into the general system of state power. They exercise their power as part of the state and according to its powers. At the same time, there are competences of communities that directly depend on the instructions of higher state bodies. In these cases, the communities perform administrative functions on behalf. In the sphere of delegated powers, the state can interfere in the actions of the community. It is significant that "... in Germany, their own mandatory and delegated cases account for 80-90 percent of the total volume of cases performed by local authorities."
The trend common to most countries of the modern world is to reduce the actual communal affairs and expand the mandatory and delegated ones. This situation reflects the growing integration of local bodies into the state mechanism, their adaptation to solving, first of all, tasks of national importance. The combination of direct local government and local self-government, the construction of a certain hierarchical pyramid is the main feature of the continental system of local self-government.
In this case, it is necessary to talk about reforming the relations between state and local authorities, namely, the need to revise the distribution of issues of management (respectively, property objects) of municipalities and government, taking into account the opinion of each municipality, in order to use municipal property more efficiently.
Thus, the problems associated with the efficiency of municipal property management are primarily due to the imperfection of the legislation, which is designed to create conditions for the normal functioning of all participants in legal relations, including in the economic and social spheres. It is here that the municipal property management system is implemented in a single municipality. Especially important is the social orientation of municipal property. The problem of bulkiness and dilapidation of a large number of objects of municipal property is also obvious.
Literature
1. Federal Law of the Russian Federation of October 6, 2003 No. 131-F3 “On the General Principles of Organizing Local Self-Government in the Russian Federation” // http://www.rg.ru/2003/10/08/zakonsamouprav.html
2. Voblenko S.V., Kokin I.A. Improving the efficiency of management of municipal property and municipal finances as a necessary condition for improving the socio-economic situation of the municipality // Problems and methods of socio-economic development of local communities in Russia. - 2008. - No. 2.
3. Levi A.V. Effective management of municipal property // Regional Economics and Management. - 2005. -
4. Grishchenko O.V. Analysis and diagnostics of financial and economic activity of the enterprise. - M., 2004.
5. Lukashuk I.I. International law. A common part. - M., 2008.
In order to increase the efficiency of the use of municipal property, we propose the following measures within the framework of the areas indicated above.
1. It seems necessary to sell, as soon as possible, land plots under privately owned real estate objects, which will allow:
· merge the land plot and the buildings, structures, structures located on it into a single real estate object;
· Significantly increase the creditworthiness, capitalization and competitiveness of the right holders of such objects, and hence the country as a whole;
· Introduce a single tax on real estate.
1. A large-scale transformation of municipal unitary enterprises into state-owned enterprises and joint-stock companies should be carried out with subsequent privatization in accordance with certain functions of local governments. In particular, it is necessary to privatize unitary enterprises that perform such “economic” functions as technical inventory, land management, provision of municipal transport, etc. at the federal level, in order to clarify the legal status of state-owned enterprises, it is necessary to develop a federal law “On state-owned enterprises”.
It is necessary to reconsider the principles of state management of unitary enterprises. In the case of transferring a municipal enterprise as an object to trust management, local governments will receive profit from such an enterprise, since for this there will be a real mechanism for the responsibility of the trustee for the result of their activities. According to Art. 1022 of the Civil Code of the Russian Federation, a trustee who did not show due care for the interests of the beneficiary or the founder of the management during the trust management of property, compensates the beneficiary for lost profits during the time of trust management of the property, and the founder of the management - losses caused by the loss or damage to property, taking into account its natural wear and tear, as well as lost profits. The liability of the trustee - entrepreneur is not due to the sign of guilt, he is released from liability only by force majeure or actions of the beneficiary (management founder).
When transferring a unitary enterprise to trust management, local governments receive a real mechanism for monitoring the compliance of the trustee with the qualifications of a highly professional entrepreneur and have the right to terminate the trust management agreement with the trustee at any time, subject to the payment of remuneration to him. Note that the head of the organization - the subject of labor law is subject to dismissal only in exceptional cases: making an unreasonable decision that entailed a violation of the safety of property, its misuse or damage to another organization, or a single gross violation of their labor duties, or in cases stipulated by the labor contract.
3. Equity participation and partnership. Local governments may partner with private sector businesses to provide certain services on a contract basis (partnership). In addition, they may purchase as many shares of private enterprises as necessary to establish full control over the decisions of the enterprise as the main shareholder (participation).
The choice between equity and partnership is a reflection of the circumstances and nature of economic activity. If a private enterprise already provides a certain type of service in a given territory, and the local government has legally acquired the authority to provide these services, then equity participation may be the most realistic way to ensure control. On the other hand, if a certain type of economic activity has not previously been carried out in the area, then it may be more practical to partner either with a private enterprise engaged in it in other regions, or with an enterprise with experience in providing related services.
The core of the difference between partnership and equity is that equity is generally easier to give up. This can be done simply by selling your shares in the relevant enterprise. Links with enterprises through partnerships are less flexible, since they are usually secured by an agreement, and the sale of a share in a partnership may turn out to be either practically impossible or not permitted by this agreement.
4. Creation of inter-municipal enterprises. The main goal of the activities of local governments is to address issues of meeting the domestic, social, cultural, educational, medical and other vital needs of the population of municipalities. The solution of these issues is possible only if local self-government bodies have at their disposal sufficient financial and material resources for this, through which it would be possible to organize the provision of relevant services and goods to the population of these entities on the territory of municipalities. At the same time, the funds and material resources available to local governments for the 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 are currently not enough. The insufficiency of profitable sources of local budgets does not allow local governments to ensure the full and high-quality execution of their powers in the context of the municipal reform being carried out in the country.
Due to the fact that the amount of financial resources required to fulfill the expenditure obligations of municipalities does not correspond to the level of real needs of municipalities, and it is hardly worth counting on a significant change in this area in the foreseeable future, municipalities need to look for more flexible and efficient mechanisms solution of the tasks facing them to meet the needs of the population living in their territory.
In order to resolve socio-economic issues and in accordance with the Federal Law "On the General Principles of the Organization of Local Self-Government in the Russian Federation", local self-government bodies are currently granted the right to participate in the creation of business companies, including inter-municipal ones, necessary for exercising powers to decide issues of local importance. Having the opportunity to pool financial resources, material and other resources of several municipalities within the framework of the relevant business companies and relying on their activities, local governments will be able to:
Expand opportunities to meet certain needs of the population in services and goods;
As a result of the production activities of these companies, receive additional funds for the needs of municipalities in the form of distributed profits.
The right to participate in the creation of business companies, including intermunicipal ones, necessary for the exercise of powers to resolve issues of local importance is also provided for by the Federal Law "On the General Principles of Organizing Local Self-Government in the Russian Federation".
Creation (establishment) of business companies (limited liability companies, additional liability companies, open and closed joint-stock companies, including inter-municipal business companies in the form of limited liability companies and closed joint-stock companies) - participants in civil turnover, is determined by the norms of civil law, as well as the norms of the special legislation of the Russian Federation. State registration of inter-municipal economic companies is carried out in accordance with the Federal Law "On State Registration of Legal Entities and Individual Entrepreneurs", and their activities - in accordance with the Civil Code of the Russian Federation and other federal laws.
In our opinion, the comprehensive implementation of the above measures will make it possible to increase the efficiency of using the property of the Administration of the Taimyr Dolgano-Nenets Municipality.
