МурманшельфИнфо. 2014, N 2 (25).

ìîæíî áûëî îáåñïå÷èòü íàäëåæàùåå âûïîëíåíèå ïðèíöèïîâ âîâëå÷åíèÿ â ïðîöåññ ñòðàòåãè÷åñêîãî ïëàíèðîâàíèÿ âñåõ çà- èíòåðåñîâàííûõ ñòîðîí è øèðîêîãî îáùåñòâåííîãî ó÷àñòèÿ, ÷òî äîëæíî áûòü âàæíîé ÷àñòüþ ïðîöåññà ñòðàòåãèðîâàíèÿ. Âî-âòîðûõ, ðîññèéñêèå ìóíèöèïàëèòåòû, â ñèëó ñëîæèâ- øåéñÿ ñèñòåìû íàëîãîâîãî è áþäæåòíîãî ðåãóëèðîâàíèÿ â ñòðàíå, âåñüìà îãðàíè÷åíû â ñâîåé ýêîíîìè÷åñêîé ñàìî- ñòîÿòåëüíîñòè. Ýòî íå ïîçâîëÿåò èì ïîëíîöåííî îïðåäåëÿòü è ðåàëèçîâûâàòü íàïðàâëåíèÿ íå òîëüêî ïåðñïåêòèâíîãî ðàçâèòèÿ, íî â çíà÷èòåëüíîé ñòåïåíè è òåêóùåãî ôóíêöèî- íèðîâàíèÿ, ïîñêîëüêó ÷àñòî áîëåå ïîëîâèíû èõ áþäæåòà ôîðìèðóåòñÿ çà ñ÷åò ãîñóäàðñòâåííûõ äîòàöèé è ñóáñèäèé. Â-òðåòüèõ, â ìåòîäè÷åñêèõ ðåêîìåíäàöèÿõ Ìèíðåãèîíà Ðîññèè ïî ðàçðàáîòêå ÊÈÏ ìîíîãîðîäà áûë ïðèìåíåí èç- áûòî÷íî òåîðåòèçèðîâàííûé ïîäõîä (îñîáåííî â ÷àñòè ðàñ- ÷åòà áàëàíñà äåíåæíûõ ïîòîêîâ è êàïèòàëà ìîíîãîðîäà), íå âïîëíå ó÷èòûâàâøèé ðåàëüíóþ ñèòóàöèþ íà ìåñòàõ. Ýòî îáó- ñëîâèëî òåõíè÷åñêèå òðóäíîñòè ïîäãîòîâêè ÊÈÏîâ â ñâÿçè ñ îòñóòñòâèåì íåîáõîäèìîé èíôîðìàöèîííîé áàçû íà ìóíè- öèïàëüíîì óðîâíå è ïðàêòèêè ïîäîáíûõ ðàñ÷åòîâ. Èç-çà ýòî- ãî ìåíüøå âîçìîæíîñòåé îñòàâàëîñü äëÿ ðåàëèçàöèè äðóãèõ âàæíåéøèõ ñîñòàâëÿþùèõ ñòðàòåãè÷åñêîãî ïëàíèðîâàíèÿ – ïðîöåäóð ñîãëàñîâàíèÿ ïîçèöèé çàèíòåðåñîâàííûõ ñòîðîí, îáùåñòâåííîãî îáñóæäåíèÿ è äð.  ðåçóëüòàòå ïîòåíöèàëüíî ïîçèòèâíûé ïðîöåññ âíåäðåíèÿ ñòðàòåãè÷åñêîãî ïëàíèðîâàíèÿ â ðîññèéñêèõ ìîíîãîðîäàõ, èíè- öèèðîâàííûé «ñâåðõó» â ðàìêàõ ðåàëèçàöèè ãîñóäàðñòâåííîé ïîëèòèêè ïî èõ ïîääåðæêå, ïðèîáðåë âî ìíîãîì ôîðìàëüíûé õàðàêòåð. Îí ñîñòîÿë, â áîëüøèíñòâå ñëó÷àåâ, â íàöåëåííîñòè íà ïîäãîòîâêó ñàìîãî äîêóìåíòà è åãî ïðåäñòàâëåíèå â óêàçàí- íûå ñðîêè, è â ìåíüøåé ñòåïåíè – íà âûðàáîòêó âñåñòîðîí- íå îáîñíîâàííîé, ñîäåðæàòåëüíîé ñòðàòåãèè ðàçâèòèÿ. Êðîìå òîãî, âî ìíîãîì ïðîöåññ ðàçðàáîòêè ÊÈÏîâ ïðèîáðåë õàðàêòåð «îõîòû» ìîíîãîðîäîâ è ðåãèîíàëüíûõ îðãàíîâ âëàñòè çà âîç- ìîæíûì ôåäåðàëüíûì áþäæåòíûì ôèíàíñèðîâàíèåì. Òåì íå ìåíåå, ïåðâûé äëÿ ìíîãèõ ìîíîãîðîäîâ îïûò ñòðàòåãè÷åñêîãî ïëàíèðîâàíèÿ ïðèíåñ îïðåäåëåííóþ ïîëüçó. Îí ïîçâîëèë ïðî- àíàëèçèðîâàòü ïîòåíöèàëû ðàçâèòèÿ ìîíîãîðîäîâ, îïðåäåëèòü ïðèîðèòåòû äàëüíåéøåãî ðàçâèòèÿ, îöåíèòü ïîòðåáíîñòü â ðå- ñóðñàõ äëÿ îñóùåñòâëåíèÿ íàìå÷àåìûõ ïëàíîâ.  2014 ã. èçìåíèëñÿ ïîäõîä ñî ñòîðîíû Ôåäåðàëüíîãî ïðà- âèòåëüñòâà ê ðåãóëèðîâàíèþ ðàçâèòèåì ìîíîãîðîäîâ. Ôóíêöèè ïî ðåàëèçàöèè ãîñóäàðñòâåííîé ïîëèòèêè â ýòîé ñôåðå áûëè ïåðåäàíû îò Ìèíðåãèîíà Ðîññèè (êîòîðîå, ê ýòîìó âðåìåíè ëèêâèäèðîâàíî) ê Ìèíèñòåðñòâó ýêîíîìè÷åñêîãî ðàçâèòèÿ ÐÔ. Ïîñëåäíèì áûëè ðàçðàáîòàíû íîâûå êðèòåðèè îòíåñåíèÿ ìó- íèöèïàëüíûõ îáðàçîâàíèé ê ìîíîïðîôèëüíûì (ìîíîãîðîäàì), êîòîðûå áûëè óòâåðæäåíû Ïîñòàíîâëåíèåì Ïðàâèòåëüñòâà ÐÔ îò 29 èþëÿ 2014 № 709.  ñîîòâåòñòâèè ñ íèìè áûë óòâåð- æäåí ïåðå÷åíü ìîíîïðîôèëüíûõ ìóíèöèïàëüíûõ îáðàçîâàíèé (Ðàñïîðÿæåíèå Ïðàâèòåëüñòâà îò 29.07.2014 ã. № 1398-ð), êóäà âîøëè 313 ìóíèöèïàëèòåòîâ. Îäíèì èç ñóùåñòâåííûõ îòëè÷èé íîâîãî ïîäõîäà ê ôîð- ìèðîâàíèþ ïåðå÷íÿ ìîíîãîðîäîâ ÿâëÿåòñÿ òî, ÷òî, íàðÿäó ñ îáùèìè êðèòåðèÿìè îòíåñåíèÿ ê ìîíîãîðîäàì, îïðåäåëåíû êðèòåðèè âûäåëåíèÿ â èõ ñîñòàâå 3-õ êàòåãîðèé ìóíèöèïàëè- òåòîâ â çàâèñèìîñòè îò ðèñêîâ óõóäøåíèÿ èõ ñîöèàëüíî-ýêî- íîìè÷åñêîãî ïîëîæåíèÿ.  ñîîòâåòñòâèè ñ ýòèìè êðèòåðèÿìè ê ïåðâîé êàòåãîðèè (ìóíèöèïàëèòåòû ñ íàèáîëåå ñëîæíûì ñî- öèàëüíî-ýêîíîìè÷åñêèì ïîëîæåíèåì) îòíåñåíû 75, êî âòîðîé (ìóíèöèïàëèòåòû, â êîòîðûõ èìåþòñÿ ðèñêè óõóäøåíèÿ ñîöè- àëüíî-ýêîíîìè÷åñêîãî ïîëîæåíèÿ) – 149 è ê òðåòüåé êàòåãîðèè of strategic planning for all interested sides and public participation that is an integral part of strategy. Secondly, Russian municipalities are limited in their economic independence as a result of the formed system of fiscal and budget regulation in the country. This is the reason which does not allow them defining and realizing the vectors of not only prospective development but also in current functioning as far as in the most cases more than a half of the budget is formed by government grants. Thirdly, methodical recommendations given by Russian Ministry of Regional Development are mostly formed in accordance with principals of theoretic approach (especially the part concerning money flow balance and the capital of monotowns) which does not mind real situation in full measure. It is the reason for technical problems during preparation of the Complex Investment Plan like lack of necessary information base on the municipal level and experience of typical calculations. It leads to another problem as fewer opportunities for realization of other important components of strategic planning such as procedure of adjustment between two sides, public discussion and so on. As a consequence, the process of strategic planning implementation in Russian monotowns, firstly possessing positive meaning and initiated by government within the framework of state policy realization, has obtained formal character. In most cases the main aim of this process was to prepare the document itself in concrete period of time, and then, like less important aim, to create soundly- based and meaningful developing strategy. Besides, the process of developing the Complex Investment Plan has become “a race” for monotowns and regional authorities to get possible state budget financing. Anyway, this first for many monotowns experience in strategic planning has been useful and provided definite benefit. For example, it allowed analyzing the potential to develop this or that monotowns, defining priorities for further development, estimating necessity in resources to carry out all plans. Federal Government has changed their approach towards regulation of monotowns development in 2014. Russian Ministry of Regional Development was liquidated and transferred all functions concerning realization of state policy in that sphere toMinistry of Economic Development of Russian Federation. The latest new criteria were developed in accordance with fact that municipalities would belong to single-industry (monotowns) which were approved by Russian Government Decree from 29.07.2014 № 709. According to this, there is adopted list of single-industry municipalities (Government Decree from 29.07.2014 № 1398-r). The list contains 313 municipalities. One of the principal differences of new approach to formation of monotowns list is the fact that they use not only common criteria for monotowns but also define factors to underline three categories of municipalities which depend on risks of degradation of socioeconomic position. According to these criteria, the first category (municipalities with more serious socioeconomic situation) counts 75 objects, the second has 149 (municipalities with risk of degradation of socioeconomic situation), and the third consists of 89 objects (municipalities with stable socioeconomic situation). Íàèìåíîâàíèå/ Settlement Ñóáúåêò ÐÔ/Constituent entity of RF Êàòå- ãîðèÿ / Category 1 ã. Îíåãà/Onega Àðõàíãåëüñêàÿ îáëàñòü/Arkhangelsk region 1 2 ïãò. Ðåâäà/ Revda Ìóðìàíñêàÿ îáëàñòü/Murmansk region 1 3 ã. Êèðîâñê/ Kirovsk Ìóðìàíñêàÿ îáëàñòü/Murmansk region 1 4 ã. Ñåâåðîäâèíñê/ Severodvinsk Àðõàíãåëüñêàÿ îáëàñòü/Arkhangelsk region 2 5 ã. Íîâîäâèíñê/Novodvinsk Àðõàíãåëüñêàÿ îáëàñòü/Arkhangelsk region 2 October 2014 № 2 (25) MurmanshelfInfo 31