Kagramanyan N., Office of the Plenipotentiary Representative of the President of the Russian Federation in the Central Federal District

The formation of 7 federal districts and the reform of the institution of presidential plenipotentiaries in the field are one of the most important components of a new approach to territorial administration in the country. The economic and political development of Russia largely depends on the effectiveness of the functioning of new institutions of power in the management of territories, the interaction between the federal and regional levels of power.

Federal districts: an effective tool for solving state problems

The collapse of the USSR created a fundamentally new situation for Russia. The problem of establishing a new, democratic federalism has become on the agenda. Serious changes took place at the very beginning of the 1990s. after the signing of the Federal Treaty (March 1992) and the adoption of the Constitution of the Russian Federation (December 1993). The state policy in the field of federal relations has repeatedly changed: from decentralization state power and expanding the independence of the constituent entities of the Russian Federation to maximum centralization at the federal level.

Many researchers note that in the prevailing in the 90s. the system of territorial organization of management has exceeded the "threshold of controllability". There was a weak federal center, which performed its managerial functions extremely inefficiently, and regions, most of which were simply not able to independently and effectively implement all the powers they had assumed for the benefit of society. There was a managerial gap between the central federal executive authorities and their territorial divisions in the subjects of the Federation. An excessive number of controlled elements did not allow effective control over the execution of decisions, and often there was an obstruction of the system for “vertical” control signals. The consequences of maintaining a “weak center and weak regions” could be very serious for the country.

The idea of ​​creating a special institution representing the presidential power in the localities and at the same time coordinating the activities of local representative offices of federal departments found practical implementation already at the end of the term of the first Russian president. Boris Yeltsin then signed a decree on federal collegiums. This was a reaction to the change in the real status of the plenipotentiaries of the President of the Russian Federation in the subjects of the Federation, who gradually, for the most part, turned into insignificant figures under the governors, who only informed the Center, and even then not always objectively, about the activities of regional administrations. And many of the territorial bodies of the federal executive power actually ended up under the control of the authorities of the constituent entities of the Federation.

The formation of federal districts was primarily the result of awareness at the state level of the relevant management tasks, dissatisfaction with the state of law in the subjects of the Federation and the low degree of efficiency of the territorial divisions of federal executive bodies. The formation of districts is an act of vertical deconcentration of the powers of the presidential power, bringing the federal administrative apparatus closer to the subjects of the Federation, to the population. At the same time, the process of deconcentration of the powers of the federal executive power (Government) has intensified through the restructuring and optimization of the system of territorial structures of federal executive bodies, the formation of their district structures. It became possible to increase the effectiveness of the implementation of state policy in the field of territorial development at the district level, to ensure the unity of the legal and economic space Russian Federation both vertically and horizontally, to increase the possibilities of interregional integration, to optimize the interaction of regional and municipal levels of government.

The period from 1990 to 1993 is characterized by the so-called "parade of sovereignties". The legislation of this period is characterized by extreme instability, weakening of the legal mechanisms for regulating social relations. Many subjects of the Federation adopted declarations of sovereignty, assigned additional powers not granted to them by the Constitution of the Russian Federation and related to the prerogative of the federal center. The constitutions, statutes and legislation of most subjects of the Federation of that period grossly contradicted federal legislation. In some subjects of the Federation, referendums were held on the issue of their state sovereignty. As a compromise between the center and the regions, in 1992 the Federal Treaty was signed, which stabilized the fragile balance of interests in the sphere of territorial organization of power.

With the adoption of the current Constitution of the Russian Federation on December 12, 1993 and the beginning of building on its basis new system legislation was the beginning of the so-called "treaty-making parade". Bilateral and trilateral agreements between the Russian Federation and its constituent entities on the delimitation of powers and jurisdictions are used as an effective mechanism for coordinating the interests of the Center and the regions, as well as a legal means of harmonizing the Constitution of the Russian Federation and the legislation of the constituent entities of the Federation that contradicts it. The instability of the legislative base of federal relations persisted, however, on a quasi-constitutional basis.

Since 2000 the legislative framework federal relations are stabilizing. Key federal laws came into force (in particular, Federal Law No. 184-FZ “On general principles organizations of legislative (representative) and executive bodies of state power of the constituent entities of the Russian Federation”). 7 federal districts have been created. The gradual bringing of the legislation of the constituent entities of the Federation into line with the Constitution of the Russian Federation and federal laws has begun.

One of the main goals of the undertaken administrative reform is to optimize the organization of the economic and political space to ensure the economic integration of the country, improve the efficiency of state territorial administration and equalize the potentials of the regions.

Federal districts are an administrative-territorial structure at the level of which it is possible to organize an effective system of regional management and solve the whole range of problems of state policy in the field of regional development.

Some experts believed that with the formation of districts, additional potential for disintegration and separatism is created, prerequisites appear for the transformation of new districts into quasi-states, etc. Concerns are expressed about the strengthening of the trend towards dividing the country into 7 political, economic and information spaces. However, the reverse interpretation, also consistent with management theory, was just as valid: the creation of districts and interregional “capitals” contributes to the optimization of the territorial administration system, the creation of new points of growth and centers of innovation, and solves the problem of administrative-bureaucratic hypercentralization, which is characteristic of Russia.

In political terms, it is obvious that the reform is aimed at creating a more manageable political and organizational-mobilization regional infrastructure, a single legal space. AT political sphere Plenipotentiary representatives of the President primarily concentrated their efforts on bringing regional legislation in line with federal legislation, and now their priority task is to resolve political conflicts at the regional level.

In addition to administrative measures to strengthen federal statehood, a clear delineation of competence between the Russian Federation and its subjects was made, federal legislation was revised on this basis. As a result of the large-scale work done by the Commission under the President of the Russian Federation under the leadership of D.N. Kozak, a number of laws were gradually adopted that consolidated the concept of federal reform.

When delimiting the competence between the center and the regions on the subjects of joint jurisdiction, the authorities of the constituent entities of the Russian Federation are assigned powers that they are obliged to fulfill at the expense of their budget and for the execution of which they are responsible. The rest of the powers on the subjects of joint jurisdiction remain with the federal Center and can be transferred to the constituent entities of the Russian Federation only with the appropriate financial resources.

This approach is due to the established practice, when the leaders of the regions, not exercising their powers, shift the responsibility for their own inaction to the federal center. A vivid manifestation of such irresponsibility was, for example, massive violations in the provision of heat and electricity to the population in many regions of the country. According to D.I. Kozak, “the lack of a clear delimitation of the powers of federal, regional and local authorities allowed the constituent entities of the Russian Federation to assign responsibility for solving regionally significant problems to federal or local authorities. At the same time, the funds provided by the budget for solving these problems remain at their own disposal of the subjects of the Federation. The general theoretical, at first glance, the problem of the division of state power in the country has acquired a very real manifestation in the lives of many people.

In order to fulfill the established powers, the subjects of the Russian Federation are permanently assigned their own income. It is proposed to equalize the budgetary provision of the regions at the expense of subsidies from the Federal Fund for Support of the Subjects of the Russian Federation, which are determined annually when the federal budget is adopted. As a result, an unsecured federal mandate is abolished, primarily in social sphere, in which many social benefits and guarantees declared by federal laws were partially financed from the federal budget. This reduces disproportions between regions and, accordingly, the inequality of people living in different territories of our country.

The perspective model of the Russian federalism assumes a reasonable combination of centralization of the federal power and independence of regions, achievement of "golden mean" in federal relations. Activities of the federal legislator, depth and degree federal regulation should be clearly regulated by the legal framework and correlated with clearly articulated principles. Solving the problem of improving and ensuring the implementation of the ideas of federalism in Russia is, first of all, clarifying its essence, and then - the practical formation of a democratic federal system of government.

Thus, one of the main goals of the ongoing reform is to optimize the economic and political space to ensure the economic integration of the country, improve the efficiency of state territorial administration and equalize the potentials of the regions.

Federal districts: problems and development prospects

The time that has passed since the formation of the federal districts already allows us to draw certain conclusions about the results of the formation of this institution in the Russian legal field, as well as to model the future place and role of authorized representatives in the system of state-power relations.

At the same time, the development of the system of districts creates a number of prerequisites for changing the balance of power between regions and regional elites. The subjects of the federation, declared the capitals of the districts, significantly strengthened their federal political positions, increased their "political weight".

In economic terms, the new metropolitan regions could in the future receive additional infrastructural advantages over other subjects of the federation. These include: priority funding and priority consideration of problems at the governmental and presidential levels; priority development of infrastructure (roads, telecommunications, etc.); the possibility of concentration financial flows due to the concentration of taxpayers in them, as well as the banking systems of the regions.

What is the future of federal districts? For the most part, the responses of participants in various studies conducted on this topic remain highly uncertain. In order for the federal districts to become an influential structure, some respondents believe that serious efforts will be required on the part of the federal center aimed at expanding its powers, giving this institution a constitutional status and strengthening its personnel potential.

I believe that the federal districts, as a territorial-administrative structure, will only increase the efficiency of the regional management system and will continue to solve the entire range of tasks of state policy in the field of regional development. The district, therefore, must have all the necessary powers both to carry out government controlled and for the realization of the interests and needs of the territories. As a result, structural conditions for economic development and provision of national security, as well as the conditions for the formation and development civil society, which is able to control both federal and local government.

Federal districts of the Russian Federation: analysis and development prospects

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Course work

on the topic "Federal districts of the Russian Federation: analysis and development prospects"

by discipline " Constitutional law»

Introduction

Chapter 1. Legal structure and history of creation

1 Composition of federal districts

2 Economic, political, social issues addressed by the federal districts

Chapter 2. Prospects for the development of federal districts

1 Development trend of federal districts

2 Strengthening the influence of federal districts on the development of the Russian Federation

Conclusion

Bibliography

INTRODUCTION

Russian federal district

The relevance of this topic lies in the fact that researchers are still discussing the feasibility of creating the institution of federal districts, its compliance with the norms of federalism.

When studying the institution of federal districts, the question arises of what the system of federal districts is. Is it understood as simply a managerial level, where federal bodies that are not connected with each other function, or as its own hierarchical system of relations, in the center of which is the plenipotentiary representative of the president, as the “head” of the federal district.

Many political scientists, economists, and lawyers are engaged in research on this topic. In particular, a political scientist, professor of the Faculty of Political Science of Moscow State University named after M.V. M.V. Lomonosov Turovsky Rostislav Feliksovich. One of his works is devoted to the federal districts and the political-geographical approach in theory and practice. Also, Doctor of Law Cherkasov Konstantin Valerievich pays great attention to this issue. The sphere of scientific interests of Cherkasov K. V. is the issues of managing the territorial development of the country, interregional public administration, structuring and functioning of the territorial bodies of federal structures. He is the author of more than 180 scientific and educational works. One of his works is devoted to the state and development trends of the federal districts of the Russian Federation.

Federal districts as a whole, as territorial - administrative units of direct subordination to the central authorities of the state, which are not subjects of the Russian Federation, are the object of study of this course work.

The subject of this course work is a number of practical issues functioning of the system of federal districts.

The first group of questions is connected with the history of the functioning of the federal districts, with the introduction of the institution of plenipotentiaries into the regional environment. The second group of practical issues is determined by the problems of the legal status of federal districts and plenipotentiaries. The institute of federal districts is not provided for by the Russian constitution, which predetermines its secondary nature in the territorial-state system, the basis of which was and remains the division of Russia into 83 subjects of the federation. The president himself was forced to repeatedly declare that the federal districts are neither new administrative-territorial formations, nor the prototype of new subjects of the federation.

The third group of questions concerns those institutional conflicts that inevitably arise during the creation of federal districts.

In this term paper I will try to consider whether the created federal districts and the appointed plenipotentiaries of the president in the federal districts contribute to more effective government of their territorial units, I will consider the trends and prospects for the development of federal districts, which is the purpose of this course work.

CHAPTER 1. LEGAL STRUCTURE AND HISTORY OF CREATION

From point of view political geography and the theory of territorial-state construction, the creation of federal districts meant the introduction of a new, auxiliary managerial level, designed to optimize control by the center over the vast and fractional Russian space. At the level of political propaganda, this could be and was presented as strengthening the state and the vertical of power.

The creation of federal districts was aimed at strengthening the administrative hierarchy through the creation of an institution of responsible federal controllers for certain geographical blocks of Russian regions.

The federal districts of the Russian Federation were created in accordance with the Decree of the President of Russia V. V. Putin No. 849 “On the Plenipotentiary Representative of the President of the Russian Federation in the Federal District” dated May 13, 2000. Federal districts are not subjects or other constitutional part of the administrative-territorial division of the Russian Federation and were created by analogy with military districts and economic regions, but did not coincide with their number and composition. This normative Decree is of fundamental importance and is at the junction of the constitutional and administrative law, it was intended to strengthen the vertical line of development and functioning of the executive branch, to strengthen federal government and its interaction with regional authorities, with the power structures of the constituent entities of the Russian Federation.

The Plenipotentiary of the President of the Russian Federation in the federal district is the representative of the President of the Russian Federation and an employee of the Presidential Administration.

The leadership of the districts dominates the incoming subjects, not having constitutional powers, but having the corresponding departmental powers.

Each such plenipotentiary is appointed by the President and is solely responsible to him. The task of this official includes, first of all, the organization of control over the execution in the federal district of decisions of federal authorities, the presentation to the President of regular reports on the state of affairs in the region, mediation in the interaction of presidential structures with state authorities of the subjects of the federation. The introduction of plenipotentiaries of the President of the Russian Federation on the basis of federal districts was another step towards strengthening the Presidential power in Russia. Proceeding from this, the functions and tasks of plenipotentiaries should be considered as tasks aimed primarily at expressing the will of the President. The main tasks and functions of the plenipotentiary representatives of the President of the Russian Federation in the federal districts are determined by the Regulation on the Plenipotentiary Representative of the President of the Russian Federation in the federal district

1. The composition of the federal districts.

At the time of the establishment of the federal districts on May 13, 2000, 7 federal districts were created. The only change in the names of the districts was the renaming of the North Caucasus District to the South on June 21, 2000. On January 19, 2010, in accordance with the decree of President D. A. Medvedev, the number of federal districts was increased to eight by separating the North Caucasus Federal District from the Southern Federal District.

Almost all okrugs consist predominantly or only of krais and oblasts. The only okrug that consists almost entirely of national republics is the North Caucasian okrug. The okrugs have defined city centers that house their governing coordinating bodies in the form of a plenipotentiary representative (plenipotentiary representative) of the President, his staff, and departments of federal departments. The North Caucasus District is the only one in which the city center is not an administrative center or largest city its subject.

In May 2000, seven federal districts were established by decree of the President of the Russian Federation:

Central federal district: Belgorod region, Bryansk region, Vladimir region. Voronezh region, Ivanovo region, Kaluga region, Kostroma region, Kursk region, Lipetsk region, Moscow region, Oryol region, Ryazan region, Smolensk region, Tambov region, Tver region, Tula region, Yaroslavskaya oblast, Moscow. The center of the federal district is Moscow.

Northwestern Federal District: Republic of Karelia, Republic of Komi, Arkhangelsk Region, Vologda Region, Kaliningrad Region, Leningrad region, Murmansk region, Novgorod region, Pskov region, St. Petersburg, Nenets Autonomous Okrug. The center of the federal district is St. Petersburg.

North Caucasian Federal District: Republic of Adygea (Adygea), Republic of Dagestan, Republic of Ingushetia, Kabardino-Balkarian Republic, Republic of Kalmykia, Karachay-Cherkess Republic, Republic of North Ossetia-Alania, Chechen Republic, Krasnodar Territory, Stavropol Territory, Astrakhan Region, Volgograd region, Rostov region. The center of the federal district is the city of Rostov-on-Don.

June 2000, in accordance with Presidential Decree No. 1149, the North Caucasian Federal District was renamed the Southern Federal District, then on January 19, 2010, in accordance with Presidential Decree No. 82, the North Caucasian Federal District was separated from the Southern Federal District, which became the 8th federal district.

Southern Federal District today: Republic of Adygea;

Republic of Kalmykia; Krasnodar region; Astrakhan region; Volgograd region; Rostov region

The center of the federal district is the city of Rostov-on-Don.

Volga Federal District: Republic of Bashkortostan, Republic of Mari El, Republic of Mordovia, Republic of Tatarstan (Tatarstan), Udmurt Republic, Chuvash Republic - Chavash Republic, Kirov Region, Nizhny Novgorod Region, Orenburg region, Penza region, Perm region, Samara region, Saratov region, Ulyanovsk region. The center of the federal district is the city of Nizhny Novgorod.

Ural Federal District: Kurgan Region, Sverdlovsk Region, Tyumen Region, Chelyabinsk Region, Khanty-Mansi Autonomous District, Yamalo-Nenets Autonomous District. The center of the federal district is Yekaterinburg.

Siberian Federal District: Republic of Altai, Republic of Buryatia, Republic of Tyva, Republic of Khakassia, Altai Territory, Krasnoyarsk Territory, Irkutsk Region, Kemerovo Region, Novosibirsk Region, Omsk Region, Tomsk Region, Chita Region, Aginsky Buryat Autonomous Okrug, Taimyrsky (Dolgano-Nenetsky ) Autonomous Okrug, Ust-Orda Buryat Autonomous Okrug, Evenki Autonomous Okrug. The center of the federal district is Novosibirsk.

January 2007, the Taimyr (Dolgano-Nenets) Autonomous Okrug was abolished and the Taimyr Municipal District of the Okrug became part of the Krasnoyarsk Territory.

January 2008 Ust-Orda Buryat Autonomous Okrug became part of the Irkutsk region.

On January 1, 2007, the Evenk Autonomous Okrug, which had previously been an independent subject of the Russian Federation, became the Evensky District of the Krasnoyarsk Territory.

In March 2008, the Trans-Baikal Territory was formed by combining the Chita Region and the Buryat Autonomous Okrug.

Thus, today the Siberian Federal District includes: the Republic of Altai; The Republic of Buryatia; Tyva Republic; The Republic of Khakassia; Altai region; Zabaykalsky District; Krasnoyarsk region; Irkutsk region; Kemerovo region; Novosibirsk region; Omsk region; Tomsk region.

Far Eastern Federal District: Republic of Sakha (Yakutia), Primorsky Territory, Khabarovsk Territory, Amur Region, Kamchatka Region, Magadan Region, Sakhalin Region, Jewish Autonomous region, Koryak Autonomous Okrug, Chukotka Autonomous Okrug. The center of the federal district is the city of Khabarovsk.

July 2007, as a result of the unification of the Kamchatka region and the Koryak Autonomous Okrug, the Kamchatka Territory was formed.

Far Eastern Federal District today: Republic of Sakha (Yakutia), Primorsky Territory, Khabarovsk Territory, Amur Region, Kamchatka Territory, Magadan Region, Sakhalin Region, Jewish Autonomous Region, Chukotka Autonomous Region.

January 2010, in accordance with Presidential Decree No. 82, the North Caucasian Federal District was created, which became the 8th in a row.

To date, the North Caucasian Federal District: the Republic of Dagestan, the Republic of Ingushetia, the Kabardino-Balkarian Republic; Karachay-Cherkess Republic, Republic of North Ossetia - Alania, Chechen Republic. Stavropol region. The center of the federal district is the city of Pyatigorsk.

So, today there are 8 federal districts:

Central Federal District (6th place in terms of territory, 1st place in terms of population);

Northwestern Federal District (4th place in terms of territory and population);

Southern Federal District (7th place in terms of territory, 5th place in terms of population);

North Caucasian Federal District (8th place in terms of territory, 7th place in terms of population);

Privolzhsky Federal District (5th place in terms of territory, 2nd place in terms of population);

Ural Federal District (3rd place in terms of territory, 6th place in terms of population);

Siberian Federal District (2nd place in terms of territory, 3rd place in terms of population);

Far Eastern Federal District (1st place in terms of territory, 8th place in terms of population).

Part Central Federal Districtincludes 18 constituent entities of the Russian Federation (they are listed above). The Central Federal District occupies 650.3 thousand square meters. kilometers (3.8 percent of the territory of the Russian Federation). As of January 1, 2011, the resident population amounted to 38,456.9 thousand people (26.9 percent of the country's population, of which 80.9 percent are urban residents).

Part Northwestern Federal Districtincludes 11 subjects of the Russian Federation (they are listed above). Territory - 1678 thousand km2. Population - 14.5 million people. Federal District in % of Russia: territory - 9.8; population - 9.9; gross regional product - 9.3; industrial products - 11.8; products Agriculture - 6,9.

Part Southern Federal District

In the west, the district has land and water borders with Ukraine, in the east - with Kazakhstan. In the south it borders on Abkhazia and the North Caucasian Federal District. In the north - with the Central and Volga federal districts. In the east, the federal district is bounded by the Caspian Sea, in the west - by the Sea of ​​Azov and the Black Sea.

The Southern Federal District (after the separation of the North Caucasian Federal District from it) includes 2 republics, 3 regions and 1 territory. Its area is 416 thousand 840 square meters. km. Population - 13,798.4 thousand people. This is 9.45% of all Russians.

Part North Caucasian Federal Districtincludes 7 subjects of the Russian Federation (they are listed above).

The population of the federal district, according to the results of the 2010 census, amounted to 9,496,800 people according to Rosstat.

The center of the district is the city of Pyatigorsk, the only one of the centers of the districts that is neither the administrative center of the subject included in the district, nor the largest city of the district (however, it is part of the large Caucasian-Mineralnye Vody agglomeration).

The only federal district, represented only by the republics, as well as one region.

The regions of the North Caucasian Federal District are included in the North Caucasian Economic Region.

Part Volga Federal Districtincludes 14 subjects of the Russian Federation (they are listed above).

Territory - 1036 thousand km2. Population - 32.0 million people.

Federal District in % of Russia: territory - 6.1, population - 21.9, gross regional product - 20.2; industrial products - 24.2; agricultural products - 24.2.

Part Ural federal districtincludes 6 subjects of the Russian Federation (they are listed above).

Territory - 1789 thousand km2. Population - 12.6 million people.

Federal district in % of Russia: territory - 10.4; population - 8.6; gross regional product - 14.8; industrial products - 18.9; agricultural products - 7.1.

Part Siberian federal districtincludes 12 subjects of the Russian Federation (they are listed above).

In the west, the Siberian Federal District borders on the Ural Federal District, in the east - on the Far Eastern Federal District, in the south - on Kazakhstan and Mongolia. The territory of the district is 30% of the territory of the Russian Federation.

According to the results of the All-Russian population census in 2010, 19,256,426 people live in the Siberian Federal District, which is 13.48% of the total population of Russia.

Part Far East federal districtincludes 9 subjects of the Russian Federation (they are listed above).

Square Far East Russia is 6215.9 thousand km ², 36% the area of ​​the whole country (the largest federal district in terms of area).

According to the data of the All-Russian population census of 2002, as of October 9, 2002, 6 million 692 thousand 865 people lived in the Far Eastern Federal District, which is 4.61% of the population of Russia.

Here are some indicators of the federal districts:

The share of the Central Federal District accounts for 33.9 percent of the total gross regional product, 21.6 percent of agricultural and 26.5 percent of industrial output of the country.

The Central Federal District provides 33 percent of revenues to the budget system of Russia, 43.2 percent of Russian exports and 57.7 percent of imports.

Volga Federal District produces more than 4/5 of Russian automotive products.

Volga Federal District ranks second in the country in terms of total oil production. Oil production is mainly carried out on the territory of the republics of Tatarstan and Bashkiria. The oil refining industry of the Volga Federal District maintains its leading position in the country.

The main wealth of the Ural Federal District is Russia's largest oil and gas resources. natural gas in the Tyumen region. There are large reserves of iron ores and non-ferrous metal ores in the mining Urals.

One of the economic advantages of the Siberian Federal District is the development of territories located in the BAM zone. This area contains gold, rare metals, copper, coal, asbestos, etc. The total investment capacity of these projects (without oil, gas and pipelines) is about 7-10 billion dollars. Gross regional product - 715.2 billion rubles. (or 11.4% of GRP in Russia).

2. Economic, political, social issues addressed by the federal districts.

The creation of federal districts makes it possible to solve national problems related to the formation of a single economic space of Russia based on administrative and economic ties, where not only large financial and monetary capital is used, but also the opportunities of small and medium-sized businesses, public spheres budget. This makes it possible to define specific, clear-cut powers of the Center and subjects of the Federation within the framework of their joint competence, to restore order in the system of territorial structures of federal executive bodies in interbudgetary relations.

Today, eight federal districts are a more rigid form for streamlining work with regional elites.

An important role in the system of federal districts is played by advisory bodies that allow coordinating the activities of regional authorities and integrating regional elites.

For example, in the Central Federal District, the practice of “thematic” Councils has been developed, which are held in certain regions on certain specific issues of national and regional significance. The subject of meetings of the District Councils are also issues of an economic nature, which contributes to economic development and attraction of investments in the subjects of the federation. Events of the Central Federal District, representing the presentation of the economic opportunities of its regions, were even held in London and Brussels. An investment forum in Tambov, nicknamed "Tambov Davos", has become a regular event on the territory of the Okrug. Among other things, it allows to attract interest to the Tambov region - one of the most backward regions of Central Russia. In September 2012, the Asia-Pacific Economic Cooperation (APEC) summit was held in the Far East. In 2015, Ufa will host meetings of the Council of Heads of State of the Shanghai Cooperation Organization (SCO) and meetings of BRICS Heads of State and Government.

All districts have established "parliamentary assemblies" that bring together the speakers of the regional legislative assemblies. The work of these “assemblies”, if properly organized, makes it possible to coordinate the regional legislative process. In this way, compliance of regional legislation with federal legislation can be maintained, and at the same time, preliminary discussions of regional legislative initiatives can take place.

Opportunities for the development of federal districts as integrated territorial systems are being expanded through the creation of intellectual centers in the districts and the implementation of district economic programs. In some federal districts, the Centers for Strategic Research were established (North-Western, Volga, Siberian districts). In a number of cases, attempts were made to develop a strategy for the economic development of the district and to obtain budget funding for it.

The combination of medium-scale regions (oblasts, territories, republics) into large economic regions allows, to a certain extent, to have a generalized idea of ​​the features of the territorial division of labor and territorial-economic relations (in an elementary form expressed economic indicators). Grid of macro-regions, revealing the current and future regional structure National economy, is especially convenient for current and medium-term planning (forecasting) and the development of statistical reports in the territorial context and has long been used as such. It is no coincidence that large economic regions are also called the main ones.

As for the current scheme of federal districts, it includes not only economic zoning, but also elements of defense (military districts) and national-political zoning; this led to the necessary transformation of some (especially the Volga and Ural) territorial and economic macro-complexes.

The federal districts are of special national importance, they are designed to solve national problems, cementing the unified political and economic space of Russia.

Among the functions of an authorized representative:

coordination of activities of federal executive bodies in the district;

organizing the interaction of these bodies with state authorities of the constituent entities of the Federation, local authorities, political parties, other public and religious associations;

development, together with interregional associations of economic interaction, programs for the socio-economic development of territories within the district;

organization of control over the execution of federal laws, decrees and orders of the President, decisions and orders of the Government, over the implementation federal programs;

participation in the work of state authorities of the subjects of the Federation, as well as local governments within the district, etc.

In such multi-resource economic zones, best conditions for territorial and economic integration productive forces, the formation of corporate production and commercial structures, regional markets with large commodity resources and a strong market infrastructure. Prerequisites are being created for the effective regulation of scientific and technological progress, investment activities, for reasonable economic incentives (taxes, prices, tariffs, etc.), the establishment of self-financing and commodity self-sufficiency, the organization of a system state support underdeveloped territories, development of complex territorial forecasts and plans.

An important functional purpose of economic zones - enlarged economic regions (federal districts, etc.) - is long-term territorial forecasting and planning. It deals with a relatively small range of indicators, aggregated calculations, the degree of reliability of which decreases both with the expansion of the time horizon and with the decrease in the size of territorial units. Therefore, for forecasts for 10 years or more, it is advisable to use schemes of continuous zones - enlarged economic regions representing groupings of macroregions.

Allowing to provide organizational and economic mechanisms for the growth of regional economies, the federal districts are able to level out the asymmetry of the socio-economic development of regions, which is the most dangerous for the existence of a federal state, which makes it possible to optimize the economic foundations of Russian federalism. The formal unification of the subjects of the Federation into federal districts and, as a result, the identification of issues common to the regions creates the conditions for their consolidation, leveling the asymmetry of socio-economic development, reducing the degree of separatism, centrifugal aspirations and, ultimately, strengthening the unity of the economic and political space, the territorial integrity of the state. In addition, the interregional nature of the federal districts allows for the implementation of the federal state control still at an intermediate level, contributing to the settlement of inevitable conflicts in the state-administrative sphere both between the center and the regions, and between the subjects of the Federation, and in some cases preventing them.

The importance of horizontal ties between the subjects of the Federation for the development of sustainable federal relations necessitates their strengthening and strengthening. The commonality and uniformity of the socio-economic problems of a number of subjects of the Federation located in different federal districts, in some cases objectively dictates the expediency of their simultaneous resolution. Thus, at the federal level, due attention is paid to complete solution issues of socio-economic development of the subjects of Russia located within the Far Eastern and part of the Siberian federal districts. Based on the results of the working meeting of the plenipotentiaries of the President of the Russian Federation in the Urals and Volga federal districts on December 14, 2000 in Perm, the development and implementation of interdistrict cooperation mechanisms were recognized as a priority task.

In addition, the unification of regions into federal districts gives them the opportunity to jointly defend their common positions before the central government. The implementation of state sovereignty takes place with the active participation in this process of the subjects of Russia and together with them, but with the dominance of the federal center within the constitutional framework, which makes it possible to build a subsidiary state on the basis of mutual responsibility of the authorities.

Summarizing what was stated in the first chapter, it can be stated that the federal districts, allowing to provide organizational and economic mechanisms for the growth of regional economies, are able to level out the asymmetry of the socio-economic development of the regions that is most dangerous for the existence of a federal state, which makes it possible to optimize the economic foundations of Russian federalism.

As a result, instead of many disparate federal territorial structures that do not have a common leadership, a rigid, top-to-bottom, orderly system of executive power was created in 83 regions, which made it possible not only to correct regional legislation, but also to find ways to control the involvement of financial resources to increase the investment attractiveness of the regions.

Thus, the creation of federal districts creates conditions for the development of integration processes within the framework of territorial and economic structures, the formation of a market infrastructure, and contributes to an increase in the efficiency of investment and innovation activities and the functioning of regional markets.

CHAPTER 2. PROSPECTS FOR THE DEVELOPMENT OF THE FEDERAL DISTRICT

At the current stage, the institute of federal districts is in need of stabilization. There is an ongoing debate about the effectiveness of the system, which is largely due to the fact that many elements of the district system have not been finalized, "brought to mind" and standardized for all districts.

The history of the functioning of the federal districts can be divided into stages. At the first stage, the importance of the institute of plenipotentiaries was artificially exaggerated as part of a PR campaign, and the plenipotentiaries themselves behaved harshly, often aggressively, trying to assert their superiority over the main objects of their control - the governors. At the second stage, the institute of federal districts and plenipotentiaries began to pass a new frontier. This stage can be called integration. The effectiveness of the actions of the plenipotentiaries is beginning to be assessed more and more skeptically, which, in the eyes of many observers, casts doubt on the very expediency of the federal districts. But at the same time, a deeper integration of plenipotentiaries into the regional environment begins, the system is evolving from intervention to partnership with regional elites.

The third stage of the functioning of the federal districts can be called stabilization. The system of federal districts is finally built into the relationship between the center and the regions, occupying its intermediate position in it. It was at this stage that we can say that the institute took place. On the one hand, its contradictions with the regional level of power are smoothed out, which leads to a significant reduction in contradictions between the level of federal districts and the level of subjects of the federation. On the other hand, the procedures for implementing centralized control through the system of federal districts are being adjusted and become more routine; they work, but are no longer perceived as gross interference and pressure. However, the stabilization of the federal districts is rather conditional. An analysis of the history of federal districts allows us to talk about the transition from their artificial “implantation” into the system of relations between the federal and regional levels of government, which was inevitably fraught with conflicts, to natural bureaucratic self-regulation. At the current stage, it is dominated by latest trend, and its development allows us to conclude that the institution of the federal districts nevertheless took place as a normal, managerial level, fulfilling the tasks set by the center, as well as the tasks determined during the development of the process. In this regard, the trends in the development of federal districts, which will be discussed below, are of interest.

1. The development trend of the federal districts.

There are various socio-economic strategies for the development of federal districts. I will consider a number of them.

The Strategy for the Socio-Economic Development of the North Caucasus Federal District until 2025 (hereinafter referred to as the Strategy) defines the main directions, methods and means of achieving the strategic goals of sustainable development and ensuring the national security of the Russian Federation in the territories of the Kabardino-Balkarian Republic, the Karachay-Cherkess Republic, the Republic of Dagestan , the Republic of Ingushetia, the Republic of North Ossetia-Alania, the Chechen Republic and the Stavropol Territory, which are part of the North Caucasian Federal District, until 2025.

The strategy was developed taking into account the Concept of long-term socio-economic development of the Russian Federation for the period up to 2020.

The strategy takes into account the current state of the economy of the constituent entities of the Russian Federation that are part of the North Caucasus Federal District, the Russian economy, the global economy and the prospects for their development, as well as the results of the implementation of projects of regional and interregional significance.

The North Caucasian Federal District has favorable conditions for the development of the agro-industrial complex, tourism, the sanatorium and resort sector, the electric power industry, the mining and manufacturing sectors of the industry, as well as developed transit functions.

The main goal of the Strategy is to provide conditions for the accelerated development of the real sector of the economy in the subjects of the Russian Federation that are part of the North Caucasus Federal District, the creation of new jobs, as well as to improve the living standards of the population.

Among the most attractive investment projects in the southern federal district is the development of southern industrial centers. Today, the Volgograd Tractor Plant produces from 2 to 3 thousand units of equipment per year, and is capable of producing up to 50 thousand tractors. With an increase in the harvest in the subjects of the district from 16.5 million to 30-35 million tons of grain, additional agricultural machinery will be required. Accordingly, it is necessary to develop the capacities of the enterprises producing it.

Another direction is the development of tourism and sanatorium base. South of Russia with its unique beaches of the Black Sea coast Krasnodar Territory(Sochi, Anapa, Gelendzhik), with its mild climate and sunny days, is a fertile land. The resorts of the south of Russia are able to receive up to 25 million people annually.

A large resort and recreational complex has been formed in the districts. About 50 out of 150 climatic, balneological, balneological and mud resorts of the country are located in the Southern Federal District. The resort and tourism business in the Southern Federal District is one of the most efficient areas of the region's economy, the development of which will be facilitated by the improvement of existing centers of all-Russian significance, the redistribution of tourist flows across the territory, and the creation of new conditions for winter views recreation, construction of modern resort complexes, providing high service to tourists.

The Strategy for the Socio-Economic Development of Siberia until 2020 (hereinafter referred to as the Strategy) defines the main directions, mechanisms and tools for achieving the strategic goals of the development of Siberia for the period up to 2020.

The strategy was developed taking into account the National Security Strategy of the Russian Federation until 2020.

The priority sectors of the socio-economic development of Siberia in 2010 - 2020 will be: information telecommunication technologies, nanoindustry, biotechnologies;

mechanical engineering (drilling, mining, pipeline, transport, energy and electrical engineering, metallurgical, housing and communal and construction), aircraft building, manufacturing medical equipment and precision instrumentation; extractive industry (extraction of oil, gas, coal, ferrous, non-ferrous, precious and rare earth metals) and increase in mining; geological exploration work; processing industry - deep processing of primary raw materials (oil, gas, coal, wood chemistry), production of cellulose, paper, high-tech fuels and lubricants, wood boards, furniture and metallurgy products; agro-industrial complex (including organic food products); energy complex (including small (municipal) energy and renewable energy sources); infrastructure of rail, road, air, sea, river and pipeline transport; industry building materials; construction of comfortable social housing affordable prices(in cities), individual houses(in rural areas), housing for shift workers and workers of the agro-industrial complex; applied science and scientific support for industry, transport, construction and agro-industrial complex; high-quality (including export-oriented) services of transport, financial sector, education, tourism and recreation, healthcare and culture.

The strategic goal of the development of the Far East and the Baikal region is the implementation of the geopolitical task of securing the population in this territory through the formation of a developed economy and a comfortable human environment in the constituent entities of the Russian Federation located on this territory, as well as achieving the average Russian level of socio-economic development.

To achieve this goal, it is necessary to ensure a comparable or ahead of the average Russian socio-economic development of the constituent entities of the Russian Federation located in the Far East.

The basic scenario for the development of the Far East and the Baikal region, provided for by the Strategy - 2025, is linked to the innovative scenario of the Concept for the long-term socio-economic development of the Russian Federation for the period up to 2020 and relies on the fullest use competitive advantage regional economy, natural resource and transit potential of the territory, sustainable increase in exports of competitive products and modernization of transport infrastructure.

It also seems promising to increase the number of federal districts within the borders of Russia, which will allow, without significantly violating the interregional ties that have developed within the federal districts, to increase the efficiency of functioning government agencies at the level of the federal district, raise by more high level the degree of their interaction with other public authorities, as well as to align the federal districts with each other as much as possible in socio-economic terms, to significantly strengthen the managerial aspect in their placement.

2.2 Strengthening the influence of federal districts on the development of the Russian Federation

The creation and functioning of state bodies at the level of the federal district should be considered in the context of the implementation of administrative reform, the exercise of the powers of federal state bodies, the implementation drastic measures to strengthen the unity of the system of state, primarily executive, power in the country, as well as to level the problematic issues of Russian federalism. One can definitely talk about the completed reformation of a significant part of the executive power structures according to the district principle, the strengthening of the vertical of this power, the deepening of their interaction and ties with the Government and the President of the Russian Federation.

The main point in the formation of federal districts is associated with taking into account a complex of factors that contribute to strengthening the vertical of executive power, strengthening the influence of the central government on political and economic processes in the regions, which allows district state bodies, relying on established institutions, to ensure the implementation of decisions of central federal state bodies on the ground, and in some cases even implement them independently. The federal districts bridge the gap between the central federal state bodies and their territorial divisions in the regions, and contribute to the revival of the norm of state governance that was previously violated. They significantly changed the system of state territorial administration, made it possible to form the missing middle management link, a kind of additional level of exercising the powers of federal state bodies.

Summarizing what was stated in the second chapter, I state that the appearance of powerful territorial and economic complexes in the form of federal districts contributes to the progressive development, alignment of socio-economic differences, economic and political integration of the subjects of the Federation, creates a system of large-scale, multi- and multi-resource segments of a single economic and legal space. If we consider each of them as a kind of national economic complex with its own historical, natural and economic specifics and production potential, then significant reserves are revealed for restructuring and raising the country's economy.

CONCLUSION

Based on the results of the questions discussed above, I can draw the following conclusions.

The creation of federal districts has become a powerful stimulus for the development of "regional capitals", which the state objectively needs. In the Russian space, such capitals play the role of nodes organizing large areas around them. The system of federal districts is a political-geographical structure, through the networks of which innovations spread. The state is interested in organizing and streamlining the innovation process that goes from Moscow to the district capitals, from the latter to the administrative centers of the subjects of the federation, and then to the periphery of individual regions. Such an organization of space can be considered progressive. At the same time, the district capitals themselves become major innovation centers and receive an additional incentive for their development. Increasing their number to 10-12 is also a very useful incentive, since the current eight regional capitals are objectively not enough, and many major centers undeservedly deprived of their potential status as nodes of the first order.

The radical enlargement of the subjects of the federation into this stage just impossible. the main problem is that the enlargement of the subjects of the federation is impossible without the destruction of the institution of national-territorial autonomy: the smallest subjects of the federation are mostly national autonomies. The number of federal subjects cannot be radically changed. Therefore, the preservation and development of the level of federal districts is fully justified by Russian geography, and precisely as a single sub-federal framework, and not as intersecting "departmental" districts. At the intra-regional level, it is justified to preserve the historically established two internal administrative levels, the lower - settlement and sub-regional - the level of large cities and administrative regions that unite settlements.

So, the institution of federal districts is an intermediate management level, characteristic of a large and administratively fragmented country. It is of particular importance at the crisis stage of the development of Russian statehood as a safety element of centralized anti-crisis management. At the same time, as the study shows, the system of federal districts is objectively necessary for optimizing the territorial-state construction in Russia in the long term. At the same time, it needs its own “internal” optimization.

It can be concluded that the institution of federal districts has taken place as a normal, managerial level that fulfills the tasks set by the center, as well as the tasks determined in the course of the development of the process, the emergence of powerful territorial and economic complexes in the form of federal districts contributes to the progressive development, alignment of socio-economic differences, economic and political integration of the subjects of the Federation, creates a system of large-scale, multi- and multi-resource segments of a single economic and legal space.

BIBLIOGRAPHY

Regulations

Decree of the President of the Russian Federation of May 13, 2000 No. No. 849 "On the Plenipotentiary Representative of the President of the Russian Federation in the Federal District" // SZ RF. 2000. No. 20. Art.2112

Decree of the President of the Russian Federation No. No. 82 "On Amendments to the List of Federal Districts, approved by Decree of the President of the Russian Federation of May 13, 2000 No. No. 849 and in the Decree of the President of the Russian Federation of 12.05.2008 No. No. 724 "Issues of the system and structure of federal executive bodies" // SZ RF. 2010. No. 4. Art.369

Decree of the President of the Russian Federation of March 24, 2005 No. No. 337 "On Councils under the Plenipotentiary Representatives of the President of the Russian Federation in the Federal Districts" // SZ RF. 2005. No. 13. Art.1139

Decree of the President of the Russian Federation No. No. 332 "On Amendments to the Decree of the President of the Russian Federation of March 24, 2005 N 337 "On Councils under the Plenipotentiary Representatives of the President of the Russian Federation in Federal Districts" and Recognizing Some Decrees of the President of the Russian Federation as Invalid" // SZ RF. 2010. No. 13. Art.1451

Federal constitutional law of 30.12.2006 No. No. 6-FKZ "On the formation within the Russian Federation as a result of the unification of the Irkutsk region and the Ust-Orda Buryat Autonomous Okrug" // SZ RF. 2007. No. 1 (1 hour). Art.1

Federal constitutional law of 12.07.2006 No. No. 2-FKZ "On the formation within the Russian Federation as a result of the unification of the Kamchatka region and the Koryak Autonomous Okrug" // SZ RF. 2006. No. 29. Art.3119

Federal constitutional law of 21.07.2007 No. No. 5-FKZ "On the formation as part of the Russian Federation of the Russian Federation as a result of the unification of the Chita region and the Aginsky Buryat Autonomous Okrug" // SZ RF. 2007. No. 30. Art.3745

Federal Constitutional Law of March 25, 2004 No. No. 1-FKZ "On the formation as part of the Russian Federation as a result of the unification of the Perm Region and the Komi-Permyak Autonomous Okrug" // SZ RF. 2004. No. 13. Art.1110

Decree of the Government of the Russian Federation of 12.08.2000 No. No. 592 "On the interaction of the government of the Russian Federation and federal executive authorities with the authorized representatives of the President of the Russian Federation in the federal district and the layout of territorial executive authorities" // SZ RF. 2000. No. 34. Art.3473

Special literature

Alaev E. Federal districts - an innovation in the territorial status of Russia. // Federalism, 2000, No. 4, pp. 169-182.

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Federal districts and the new regional policy

Medvedeva V.K.

Analyzing the problems of the political and legal status of the federal districts, experts identify at least two aspects. First, questions related to the strategy of the prospective reorganization of the system of the federal structure of Russia. And, secondly, questions related to the new regional policy of the federal center, concerning the prospects for creating a unified system of executive power and opportunities for the redistribution of powers between the center and the provinces. In addition, political scientists and lawyers are interested in the mechanism for implementing the planned strategy. It's about about whether the proposed changes will take place within the framework of the current constitutional and legal space, or whether the federal government will attempt to change some constitutional norms.

Based on the foundations of the constitutional system modern Russia, we can say that the federal districts do not yet fit into the framework of the existing federal legislation, since their status is not separately defined by law, and their formation is associated only with the Presidential Decree when approving the institution of plenipotentiaries of the President of Russia.

In this regard, it can be assumed that within the territories of the seven federal districts, it is theoretically possible to enlarge the constituent entities of the Russian Federation, but this will require constitutional changes, as it will affect changes in the entire system of the federal structure of Russia. From a political point of view, both the President of Russia and the Federal Assembly are ready for this today. And problems can arise only at the level of the legislative assemblies of the constituent entities of the Russian Federation, since without their approval of the proposed amendments to the Constitution, it is impossible to change the system of the federal structure. Therefore, in the near future, federal districts should not be considered as links in the new territorial structure of the state. And there is no need to formalize the content side of the problem of consolidation of the subjects of the Federation. If, indeed, we assume that the President's actions are aimed at a strategy of changing the system of the country's territorial structure, then we should already explain today what are the reasons for such radical prospects. In doing so, it must be borne in mind that operating system The regional structure of Russia is connected not simply with the formal definition of the boundaries of one or another subject of the Federation. These are traditionally established territorial communities under more or less monotonous economic, social and cultural conditions, so the destruction of existing regional infrastructures for the sake of formal consolidation of territories can become an irreparable political mistake.

Although there are other points of view on this issue. Many experts note that nowhere in the world is there a situation when proposals from 89 subjects of the Federation are received at the federal level. Such big number subjects of the Federation complicates public administration, reduces its effectiveness, contributes to the duplication of many state functions at the regional level, repeatedly increases the staff of local officials.

During the first decade of the existence of independent Russia, attempts were repeatedly made to streamline the system of federal government in the country.

As V.V. Klimanov emphasizes in his monograph, “Decree of President V. Putin dated May 13, 2000 No. 849 “On the Plenipotentiary Representative of the President of the Russian Federation” is not just an attempt to continue the development of federalism in Russia and strengthen the power vertical of power, but In fact, it contains a new form of administrative-territorial division, which deserves a deeper discussion and understanding (Klimanov V.V. Regional development and economic independence of the subjects of the Russian Federation. - M., 2000 - P. 48-49).

The names of the federal districts for the most part correspond to the geographical location of the subjects of the regions included in them. But there are also discrepancies: for example, the Southern Federal District (originally the North Caucasian) includes not only the Ciscaucasian subjects of the Federation, but also neighboring regions - the Astrakhan and Volgograd regions and the Republic of Kalmykia. In the Central District, five subjects of the Federation are border regions. Half of the territory of Western Siberia (the Tyumen region with two autonomous districts) ended up as part of the Urals district, and not the Siberian one, and half of the Urals (Bashkortostan, Udmurtia, Orenburg and Perm regions) fell into the Volga district. It is interesting that the Kirov region, which is listed as part of the Volga-Vyatka economic region, also became part of the latter, but has repeatedly made attempts to “link” itself with the European North. One of the last such cases took place in St. Petersburg in September 1999, when it was one of the items on the agenda at a meeting of the Coordinating Council of the interregional association "North-West". Decision Council of the association was literally as follows: "Ask the Government of the Russian Federation to include the Kirov region in the register of regions of the North-Western economic region."

In general, the “transitional position” of individual subjects of the Federation in relation to the macro-regions of the country makes it possible to assess the division of federal districts in two ways. So, for example, the bewilderment of the leadership of Bashkortostan about the inclusion of the republic into the Volga region, which followed immediately after the appearance of the Decree of May 13, and the words that the republic has always been associated with the Ural region, are not entirely true: until the 70s. Bashkiria was part of the Volga economic region. On the whole, it would still be more correct to call the new “patrimony” of S.V. Kiriyenko the Volga-Ural (or Ural-Volga) district. The state authorities of the Tyumen region are now participating in the work of two interregional associations: the Urals and the Siberian Agreement. Therefore, the assignment by the developers of the presidential decree of the main region of oil and gas production to the Urals can also be considered economically expedient with a stretch.”

Further, the author emphasizes that “the division of the country into federal districts pursued more political than economic goals. The desire to create federal government structures independent of regional leaders in the territories predetermined the departure of the grid of dividing the country into federal districts from the objectively established by the end of the 1990s. macro-regions in the form of eight inter-regional associations of economic interaction, uniting public authorities of all subjects of the Federation (some regions, represented by their leaders, are included in two associations at once).

Meanwhile, the formation of such associations proceeded rather complicatedly and for a long time from 1990-1991, when, with the abolition of the planned economy and the collapse of the USSR, new integration formations of regions began to emerge from below, designed to “replace” the large economic regions of the State Planning Commission. The quantitative composition of interregional associations changed until 1998, and the legislative status of these associations was established only in December 1999 in one of the last federal laws of the "era of President B.N. Yeltsin." Thus, along with the traditional territorial grid that unites individual subjects of the Federation into large economic regions, a new division of the country has also taken shape, “fitting” the regions into interregional associations of economic interaction.

It can be assumed how many big and small difficulties will stand in the way of building a new hypothetical scheme of administrative-territorial division on the basis of federal districts formed by the Decree of the President of the Russian Federation of May 13, 2000. The North-Western and Far Eastern districts are in a more “winning” position in this respect . It is these districts that are most of all superimposed on the boundaries of existing interregional associations and economic regions. At the other extreme is the Volga District, which includes the most diverse subjects of the Federation (from three economic regions and three interregional associations at once), and the center of the district is “shifted” towards Moscow, being located not in Samara or Kazan, but in Nizhny Novgorod. In general, the federal districts have slightly reduced the existing socio-economic asymmetry between the regions, but have not eliminated it to a problem that no longer needs to be addressed. Within the new borders, two districts (Siberian and Far Eastern) occupy 2/3 of the country's territory, but most of the products are produced in the European part of Russia.

Such a description of the reasons for the creation of federal districts by specialists in economic geography helps us to give our own political and legal assessment of the options and strategies for the development of Russian federalism in the new conditions.

Considering that the President, when approving the federal districts, called the main reason the task of strengthening the unified system of executive power in the Russian Federation, it can be assumed that further actions of the federal center will be associated with the redistribution of functions and powers of state authorities at three levels, namely, at the level federal center, at the level of federal districts and at the level of subjects of the Federation.

It is clear that the three-tier system of public administration will have its pluses and minuses. It can be considered positive in this scheme that the federal government will strengthen its position with the help of the President's representatives in the federal districts, will receive more reliable provincial information and tighten its control functions, at least in terms of the legality of the use of budgetary funds and the constitutionality of the actions of regional authorities. Negative in the three-level scheme can be considered the constitutional uncertainty of the subjects of jurisdiction and powers of all state power structures created at the level of federal districts and the cumbersomeness of the bureaucratic apparatus of government.

It should also be emphasized that there are no analogues of the three-level system of federalism in world practice either. Trends in the development of foreign federalism are aimed at the democratization of national political systems with decentralization of power. Political science in the West is focused on modeling self-developing public systems, and this is only possible under conditions of systemic debureaucratization of the state and building an open civil society.

The vector of development of Russian federalism in the context of the creation of seven federal districts has a slightly different direction. Perhaps it is justified in the conditions of the transitional period of formation of the legal Russian state. Further comprehensive studies of the problems of the functioning of the three-level system of Russian federalism will provide an opportunity for a deeper analysis of the essence and trends in the development of modern Russian statehood.

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on the topic "Federal districtsRussian Federation: analysis and development perspective»

by discipline"Constitutional law"

UFA - 2012

Introduction

Chapter 1. Legal structure and history of creation

1.1 Composition of federal districts

1.2 Economic, political, social issues addressed by the federal districts

Chapter 2. Prospects for the development of federal districts

2.1 Development trend of federal districts

Conclusion

Bibliography

INTRODUCTION

Russian federal district

The relevance of this topic lies in the fact that researchers are still discussing the feasibility of creating the institution of federal districts, its compliance with the norms of federalism.

When studying the institution of federal districts, the question arises of what the system of federal districts is. Is it understood as simply a managerial level, where federal bodies that are not connected with each other function, or as its own hierarchical system of relations, in the center of which is the plenipotentiary representative of the president, as the “head” of the federal district.

Many political scientists, economists, and lawyers are engaged in research on this topic. In particular, a political scientist, professor of the Faculty of Political Science of Moscow State University named after M.V. M.V. Lomonosov Turovsky Rostislav Feliksovich. One of his works is devoted to the federal districts and the political-geographical approach in theory and practice. Also, Doctor of Law Cherkasov Konstantin Valerievich pays great attention to this issue. The sphere of scientific interests of Cherkasov K. V. is the issues of managing the territorial development of the country, interregional public administration, structuring and functioning of the territorial bodies of federal structures. He is the author of more than 180 scientific and educational works. One of his works is devoted to the state and development trends of the federal districts of the Russian Federation.

Federal districts as a whole, as territorial - administrative units of direct subordination to the central authorities of the state, which are not subjects of the Russian Federation, are the object of study of this course work.

The subject of this course work is a number of practical issues of the functioning of the system of federal districts.

The first group of questions is connected with the history of the functioning of the federal districts, with the introduction of the institution of plenipotentiaries into the regional environment. The second group of practical issues is determined by the problems of the legal status of federal districts and plenipotentiaries. The institute of federal districts is not provided for by the Russian constitution, which predetermines its secondary nature in the territorial-state system, the basis of which was and remains the division of Russia into 83 subjects of the federation. The president himself was forced to repeatedly declare that the federal districts are neither new administrative-territorial formations, nor the prototype of new subjects of the federation.

The third group of questions concerns those institutional conflicts that inevitably arise during the creation of federal districts.

In this term paper, I will try to consider whether the created federal districts and the appointed plenipotentiaries of the president in the federal districts contribute to more effective government of their territorial units, I will consider trends and prospects for the development of federal districts, which is the purpose of this course work.

CHAPTER 1. LEGAL STRUCTURE AND HISTORY OF CREATION

From the point of view of political geography and the theory of territorial-state construction, the creation of federal districts meant the introduction of a new, auxiliary managerial level, designed to optimize control from the center over the vast and fractional Russian space. At the level of political propaganda, this could be and was presented as strengthening the state and the vertical of power. Turovsky R.F. Federal districts: political and geographical approach in theory and practice // Federalism. - 2003. - No. 1. - pp. 217-250

The creation of federal districts was aimed at strengthening the administrative hierarchy through the creation of an institution of responsible federal controllers for certain geographical blocks of Russian regions.

The federal districts of the Russian Federation were created in accordance with the Decree of the President of Russia V. V. Putin No. 849 “On the Plenipotentiary Representative of the President of the Russian Federation in the Federal District” dated May 13, 2000. Federal districts are not subjects or other constitutional part of the administrative-territorial division of the Russian Federation and were created by analogy with military districts and economic regions, but did not coincide with their number and composition. This normative Decree is of fundamental importance and is located at the intersection of constitutional and administrative law, it was intended to strengthen the vertical line of development and functioning of the executive branch, to strengthen the federal government and its interaction with regional authorities, with the power structures of the constituent entities of the Russian Federation.

The Plenipotentiary of the President of the Russian Federation in the federal district is the representative of the President of the Russian Federation and an employee of the Presidential Administration.

The leadership of the districts dominates the incoming subjects, not having constitutional powers, but having the corresponding departmental powers.

Each such plenipotentiary is appointed by the President and is solely responsible to him. The tasks of this official include, first of all, the organization of control over the execution in the federal district of decisions of federal authorities, the presentation to the President of regular reports on the state of affairs in the region, mediation in the interaction of presidential structures with state authorities of the subjects of the federation. The introduction of plenipotentiaries of the President of the Russian Federation on the basis of federal districts was another step towards strengthening the Presidential power in Russia. Proceeding from this, the functions and tasks of plenipotentiaries should be considered as tasks aimed primarily at expressing the will of the President. The main tasks and functions of the plenipotentiary representatives of the President of the Russian Federation in the federal districts are determined by the Regulation on the Plenipotentiary Representative of the President of the Russian Federation in the federal district

1.1. The composition of the federal districts.

At the time of the establishment of the federal districts on May 13, 2000, 7 federal districts were created. The only change in the names of the districts was the renaming of the North Caucasus District to the South on June 21, 2000. On January 19, 2010, in accordance with the decree of President D. A. Medvedev, the number of federal districts was increased to eight by separating the North Caucasus Federal District from the Southern Federal District.

Almost all okrugs consist predominantly or only of krais and oblasts. The only okrug that consists almost entirely of national republics is the North Caucasian okrug. The okrugs have defined city centers that house their governing coordinating bodies in the form of a plenipotentiary representative (plenipotentiary representative) of the President, his staff, and departments of federal departments. The North Caucasus District is the only one in which the city center is not the administrative center or the largest city of its subject.

In May 2000, seven federal districts were established by decree of the President of the Russian Federation:

1. Central federal district: Belgorod region, Bryansk region, Vladimir region. Voronezh Region, Ivanovo Region, Kaluga Region, Kostroma Region, Kursk Region, Lipetsk Region, Moscow Region, Oryol Region, Ryazan Region, Smolensk Region, Tambov Region, Tver Region, Tula Region, Yaroslavl Region, Moscow. The center of the federal district is Moscow.

2. Northwestern Federal District: Republic of Karelia, Republic of Komi, Arkhangelsk Region, Vologda Region, Kaliningrad Region, Leningrad Region, Murmansk Region, Novgorod Region, Pskov Region, St. Petersburg, Nenets Autonomous District. The center of the federal district is St. Petersburg.

3. North Caucasian Federal District: Republic of Adygea (Adygea), Republic of Dagestan, Republic of Ingushetia, Kabardino-Balkarian Republic, Republic of Kalmykia, Karachay-Cherkess Republic, Republic of North Ossetia-Alania, Chechen Republic, Krasnodar Territory, Stavropol Territory, Astrakhan Region , Volgograd region, Rostov region. The center of the federal district is the city of Rostov-on-Don.

On June 21, 2000, in accordance with Presidential Decree No. 1149, the North Caucasian Federal District was renamed into Southern, then on January 19, 2010, in accordance with Presidential Decree No. 82, the North Caucasian Federal District was separated from the Southern Federal District, which became the 8th federal district.

Southern Federal District today: Republic of Adygea;

Republic of Kalmykia; Krasnodar region; Astrakhan region; Volgograd region; Rostov region

The center of the federal district is the city of Rostov-on-Don.

4. Volga Federal District: Republic of Bashkortostan, Republic of Mari El, Republic of Mordovia, Republic of Tatarstan (Tatarstan), Udmurt Republic, Chuvash Republic - Chavash Republic, Kirov Region, Nizhny Novgorod Region, Orenburg Region, Penza Region, Perm Territory, Samara Region, Saratovskaya region, Ulyanovsk region. The center of the federal district is the city of Nizhny Novgorod.

5. Ural Federal District: Kurgan Region, Sverdlovsk Region, Tyumen Region, Chelyabinsk Region, Khanty-Mansi Autonomous District, Yamalo-Nenets Autonomous District. The center of the federal district is Yekaterinburg.

6. Siberian Federal District: Republic of Altai, Republic of Buryatia, Republic of Tyva, Republic of Khakassia, Altai Territory, Krasnoyarsk Territory, Irkutsk Region, Kemerovo Region, Novosibirsk Region, Omsk Region, Tomsk Region, Chita Region, Aginsky Buryat Autonomous Okrug, Taimyrsky (Dolgano - Nenets) Autonomous Okrug, Ust-Orda Buryat Autonomous Okrug, Evenki Autonomous Okrug. The center of the federal district is Novosibirsk.

On January 1, 2007, the Taimyr (Dolgano-Nenets) Autonomous Okrug was abolished and the Taimyr Municipal District of the Okrug became part of the Krasnoyarsk Territory.

On January 1, 2008, the Ust-Orda Buryat Autonomous Okrug became part of the Irkutsk Region.

On January 1, 2007, the Evenk Autonomous Okrug, which had previously been an independent subject of the Russian Federation, became the Evensky District of the Krasnoyarsk Territory.

On March 1, 2008, the Trans-Baikal Territory was formed by combining the Chita Region and the Buryat Autonomous Okrug.

Thus, today the Siberian Federal District includes: the Republic of Altai; The Republic of Buryatia; Tyva Republic; The Republic of Khakassia; Altai region; Zabaykalsky District; Krasnoyarsk region; Irkutsk region; Kemerovo region; Novosibirsk region; Omsk region; Tomsk region.

7. Far Eastern Federal District: Republic of Sakha (Yakutia), Primorsky Territory, Khabarovsk Territory, Amur Region, Kamchatka Region, Magadan Region, Sakhalin Region, Jewish Autonomous Region, Koryak Autonomous Region, Chukotka Autonomous Region. The center of the federal district is the city of Khabarovsk.

On July 1, 2007, as a result of the unification of the Kamchatka region and the Koryak Autonomous Okrug, the Kamchatka Territory was formed.

Far Eastern Federal District today: Republic of Sakha (Yakutia), Primorsky Territory, Khabarovsk Territory, Amur Region, Kamchatka Territory, Magadan Region, Sakhalin Region, Jewish Autonomous Region, Chukotka Autonomous Region.

On January 19, 2010, in accordance with Presidential Decree No. 82, the North Caucasian Federal District was created, which became the 8th in a row.

To date, the North Caucasian Federal District: the Republic of Dagestan, the Republic of Ingushetia, the Kabardino-Balkarian Republic; Karachay-Cherkess Republic, Republic of North Ossetia - Alania, Chechen Republic. Stavropol region. The center of the federal district is the city of Pyatigorsk.

So, today there are 8 federal districts:

1. Central Federal District (6th place in terms of territory, 1st place in terms of population);

2. Northwestern Federal District (4th place in terms of territory and population);

3. Southern Federal District (7th place in terms of territory, 5th place in terms of population);

4. North Caucasian Federal District (8th place in terms of territory, 7th place in terms of population);

5. Volga Federal District (5th place in terms of territory, 2nd place in terms of population);

6. Ural Federal District (3rd place in terms of territory, 6th place in terms of population);

7. Siberian Federal District (2nd place in terms of territory, 3rd place in terms of population);

8. Far Eastern Federal District (1st place in terms of territory, 8th place in terms of population).

Part Central Federal District includes 18 constituent entities of the Russian Federation (they are listed above). The Central Federal District occupies 650.3 thousand square meters. kilometers (3.8 percent of the territory of the Russian Federation). As of January 1, 2011, the resident population amounted to 38,456.9 thousand people (26.9 percent of the country's population, of which 80.9 percent are urban residents).

Part Northwestern Federal District includes 11 subjects of the Russian Federation (they are listed above). Territory - 1678 thousand km2. Population - 14.5 million people. Federal district in % of Russia: territory - 9.8; population - 9.9; gross regional product -- 9.3; industrial products -- 11.8; agricultural products -- 6.9.

Part Southern Federal District

In the west, the district has land and water borders with Ukraine, in the east - with Kazakhstan. In the south it borders on Abkhazia and the North Caucasian Federal District. In the north - with the Central and Volga federal districts. In the east, the federal district is bounded by the Caspian Sea, in the west by the Sea of ​​Azov and the Black Sea.

The Southern Federal District (after the separation of the North Caucasian Federal District from it) includes 2 republics, 3 regions and 1 territory. Its area is 416 thousand 840 square meters. km. Population - 13,798.4 thousand people. This is 9.45% of all Russians.

Part North CaucasusFederal District includes 7 subjects of the Russian Federation (they are listed above).

The area of ​​the district is about one percent of the area of ​​the territory of the Russian Federation. It is the smallest federal district in Russia and the only one where ethnic Russians are a minority of the population compared to all the rest combined.

The population of the federal district, according to the results of the 2010 census, amounted to 9,496,800 people according to Rosstat.

The center of the district is the city of Pyatigorsk, the only one of the centers of the districts that is neither the administrative center of the subject included in the district, nor the largest city of the district (however, it is part of the large Caucasian-Mineralnye Vody agglomeration).

The only federal district, represented only by the republics, as well as one region.

The regions of the North Caucasian Federal District are included in the North Caucasian Economic Region.

Part Volga Federal District includes 14 subjects of the Russian Federation (they are listed above).

Territory - 1036 thousand km2. Population - 32.0 million people.

Federal District in % of Russia: territory - 6.1, population - 21.9, gross regional product - 20.2; industrial products -- 24.2; agricultural products -- 24.2.

Part Ural federal district includes 6 subjects of the Russian Federation (they are listed above).

Territory - 1789 thousand km2. Population - 12.6 million people.

Federal District in % of Russia: territory - 10.4; population - 8.6; gross regional product -- 14.8; industrial products - 18.9; agricultural products -- 7.1.

Part Siberian federal district includes 12 subjects of the Russian Federation (they are listed above).

In the west, the Siberian Federal District borders on the Ural Federal District, in the east - on the Far Eastern Federal District, in the south - on Kazakhstan and Mongolia. The territory of the district is 30% of the territory of the Russian Federation.

According to the results of the All-Russian population census in 2010, 19,256,426 people live in the Siberian Federal District, which is 13.48% of the total population of Russia.

Part Far East federal district includes 9 subjects of the Russian Federation (they are listed above).

The area of ​​the Far East of Russia is 6215.9 thousand km², 36% of the area of ​​the entire country (the largest federal district in terms of area).

According to the data of the All-Russian population census of 2002, as of October 9, 2002, 6 million 692 thousand 865 people lived in the Far Eastern Federal District, which is 4.61% of the population of Russia.

Here are some indicators of the federal districts:

The share of the Central Federal District accounts for 33.9 percent of the total gross regional product, 21.6 percent of agricultural and 26.5 percent of industrial output of the country.

The Central Federal District provides 33 percent of revenues to the budget system of Russia, 43.2 percent of Russian exports and 57.7 percent of imports.

Volga Federal District produces more than 4/5 of Russian automotive products.

Volga Federal District ranks second in the country in terms of total oil production. Oil production is mainly carried out on the territory of the republics of Tatarstan and Bashkiria. The oil refining industry of the Volga Federal District maintains its leading position in the country.

The main wealth of the Urals Federal District is Russia's largest oil and natural gas resources in the Tyumen region. There are large reserves of iron ores and non-ferrous metal ores in the mining Urals.

One of the economic advantages of the Siberian Federal District is the development of territories located in the BAM zone. This area contains gold, rare metals, copper, coal, asbestos, etc. The total investment capacity of these projects (without oil, gas and pipelines) is about 7-10 billion dollars. Gross regional product - 715.2 billion rubles. (or 11.4% of GRP in Russia).

1.2. Economic, political, social issues addressed by the federal districts.

The creation of federal districts makes it possible to solve national problems related to the formation of a single economic space of Russia, based on administrative and economic ties, where not only large financial and monetary capital is used, but also the opportunities of small and medium-sized businesses, state budget spheres. This makes it possible to define specific, clear-cut powers of the Center and subjects of the Federation within the framework of their joint competence, to restore order in the system of territorial structures of federal executive bodies in interbudgetary relations.

Today, eight federal districts are a more rigid form for streamlining work with regional elites.

An important role in the system of federal districts is played by advisory bodies that allow coordinating the activities of regional authorities and integrating regional elites.

For example, in the Central Federal District, the practice of “thematic” Councils has been developed, which are held in certain regions on certain specific issues of national and regional significance. The subject of meetings of the District Councils are also issues of an economic nature, which contributes to economic development and attraction of investments in the subjects of the federation. Events of the Central Federal District, representing the presentation of the economic opportunities of its regions, were even held in London and Brussels. An investment forum in Tambov, nicknamed "Tambov Davos", has become a regular event on the territory of the Okrug. Among other things, it allows to attract interest to the Tambov region - one of the most backward regions of Central Russia. In September 2012, the Asia-Pacific Economic Cooperation (APEC) summit was held in the Far East. In 2015, Ufa will host meetings of the Council of Heads of State - members of the Shanghai Cooperation Organization (SCO) and meetings of BRICS heads of state and government.

All districts have established "parliamentary assemblies" that bring together the speakers of the regional legislative assemblies. The work of these “assemblies”, if properly organized, makes it possible to coordinate the regional legislative process. In this way, compliance of regional legislation with federal legislation can be maintained, and at the same time, preliminary discussions of regional legislative initiatives can take place.

Opportunities for the development of federal districts as integrated territorial systems are being expanded through the creation of intellectual centers in the districts and the implementation of district economic programs. In some federal districts, the Centers for Strategic Research were established (North-Western, Volga, Siberian districts). In a number of cases, attempts were made to develop a strategy for the economic development of the district and to obtain budget funding for it.

Combining medium-scale regions (oblasts, territories, republics) into large economic regions allows, to a certain extent, to have a generalized idea of ​​the features of the territorial division of labor and territorial-economic relations (in an elementary form expressed by economic indicators). The grid of macroregions, revealing the current and prospective regional structure of the national economy, is especially convenient for current and medium-term planning (forecasting) and the development of statistical reports in the territorial context and has long been used as such. It is no coincidence that large economic regions are also called the main ones.

As for the current scheme of federal districts, it includes not only economic zoning, but also elements of defense (military districts) and national-political zoning; this led to the necessary transformation of some (especially the Volga and Ural) territorial and economic macro-complexes.

The federal districts are of special national importance, they are designed to solve national problems, cementing the unified political and economic space of Russia.

Among the functions of an authorized representative:

* coordination of activities of federal executive bodies in the district;

* organizing the interaction of these bodies with state authorities of the subjects of the Federation, local authorities, political parties, other public and religious associations;

* development, together with interregional associations of economic cooperation, programs for the socio-economic development of territories within the district;

* organization of control over the execution of federal laws, decrees and orders of the President, resolutions and orders of the Government, over the implementation of federal programs;

* participation in the work of state authorities of the subjects of the Federation, as well as local governments within the district, etc.

In such multi-resource economic zones, the best conditions are formed for the territorial and economic integration of productive forces, the formation of corporate production and commercial structures, regional markets with large commodity resources and a powerful market infrastructure. Prerequisites are being created for the effective regulation of scientific and technological progress, investment activity, for reasonable economic incentives (taxes, prices, tariffs, etc.), the establishment of self-financing and commodity self-sufficiency, the organization of a system of state support for underdeveloped territories, the development of comprehensive territorial forecasts and plans.

An important functional purpose of economic zones - enlarged economic regions (federal districts, etc.) - is long-term territorial forecasting and planning. It deals with a relatively small range of indicators, aggregated calculations, the degree of reliability of which decreases both with the expansion of the time horizon and with the decrease in the size of territorial units. Therefore, for forecasts for 10 years or more, it is advisable to use schemes of continuous zones - enlarged economic regions representing groupings of macroregions.

Allowing to provide organizational and economic mechanisms for the growth of regional economies, the federal districts are able to level out the asymmetry of the socio-economic development of regions, which is the most dangerous for the existence of a federal state, which makes it possible to optimize the economic foundations of Russian federalism. The formal unification of the subjects of the Federation into federal districts and, as a result, the identification of issues common to the regions creates the conditions for their consolidation, leveling the asymmetry of socio-economic development, reducing the degree of separatism, centrifugal aspirations and, ultimately, strengthening the unity of the economic and political space, the territorial integrity of the state. In addition, the interregional nature of the federal districts makes it possible to exercise federal state control at an intermediate level, contributing to the settlement of inevitable conflicts in the state-administrative sphere both between the center and the regions, and between the subjects of the Federation, and in some cases preventing them.

The importance of horizontal ties between the subjects of the Federation for the development of sustainable federal relations necessitates their strengthening and strengthening Cherkasov K.V. Federal districts in the Russian Federation: state and development trends. - Legislation and Economics, 2009. The commonality and uniformity of the socio-economic problems of a number of subjects of the Federation located in different federal districts, in some cases, objectively dictates the expediency of their simultaneous resolution. Thus, at the federal level, due attention is paid to the comprehensive solution of issues of socio-economic development of the subjects of Russia located within the Far Eastern and part of the Siberian federal districts. Based on the results of the working meeting of the plenipotentiaries of the President of the Russian Federation in the Urals and Volga federal districts on December 14, 2000 in Perm, the development and implementation of interdistrict cooperation mechanisms were recognized as a priority task.

In addition, the unification of regions into federal districts gives them the opportunity to jointly defend their common positions before the central government. The implementation of state sovereignty takes place with the active participation in this process of the subjects of Russia and together with them, but with the dominance of the federal center within the constitutional framework, which makes it possible to build a subsidiary state on the basis of mutual responsibility of the authorities.

Summarizing what was stated in the first chapter, it can be stated that the federal districts, allowing to provide organizational and economic mechanisms for the growth of regional economies, are able to level out the asymmetry of the socio-economic development of the regions that is most dangerous for the existence of a federal state, which makes it possible to optimize the economic foundations of Russian federalism.

As a result, instead of many disparate federal territorial structures that do not have a common leadership, a rigid, top-to-bottom, orderly system of executive power was created in 83 regions, which made it possible not only to adjust regional legislation, but also to find ways to control the attraction of financial resources, to increase the investment attractiveness of the regions ..

Thus, the creation of federal districts creates conditions for the development of integration processes within the framework of territorial and economic structures, the formation of a market infrastructure, and contributes to an increase in the efficiency of investment and innovation activities and the functioning of regional markets.

CHAPTER 2. PROSPECTS FOR THE DEVELOPMENT OF THE FEDERAL DISTRICT

At the current stage, the institute of federal districts is in need of stabilization. There is an ongoing debate about the effectiveness of the system, which is largely due to the fact that many elements of the district system have not been finalized, "brought to mind" and standardized for all districts.

The history of the functioning of the federal districts can be divided into stages. At the first stage, the importance of the institute of plenipotentiaries was artificially exaggerated as part of a PR campaign, and the plenipotentiaries themselves behaved harshly, often aggressively, trying to assert their superiority over the main objects of their control - the governors. At the second stage, the institute of federal districts and plenipotentiaries began to pass a new frontier. This stage can be called integration. The effectiveness of the actions of the plenipotentiaries is beginning to be assessed more and more skeptically, which, in the eyes of many observers, casts doubt on the very expediency of the federal districts. But at the same time, a deeper integration of plenipotentiaries into the regional environment begins, the system is evolving from intervention to partnership with regional elites.

The third stage of the functioning of the federal districts can be called stabilization. The system of federal districts is finally built into the relationship between the center and the regions, occupying its intermediate position in it. It was at this stage that we can say that the institute took place. On the one hand, its contradictions with the regional level of power are smoothed out, which leads to a significant reduction in contradictions between the level of federal districts and the level of subjects of the federation. On the other hand, the procedures for implementing centralized control through the system of federal districts are being adjusted and become more routine; they work, but are no longer perceived as gross interference and pressure. However, the stabilization of the federal districts is rather conditional. An analysis of the history of federal districts allows us to talk about the transition from their artificial “implantation” into the system of relations between the federal and regional levels of government, which was inevitably fraught with conflicts, to natural bureaucratic self-regulation. At the current stage, the latter trend prevails, and its development allows us to conclude that the institution of federal districts has nevertheless taken place as a normal, managerial level that fulfills the tasks set by the center, as well as the tasks that have been determined in the course of the development of the process. In this regard, the trends in the development of federal districts, which will be discussed below, are of interest.

2.1. Development trend of federal districts.

There are various socio-economic strategies for the development of federal districts. I will consider a number of them.

The Strategy for the Socio-Economic Development of the North Caucasus Federal District until 2025 (hereinafter referred to as the Strategy) defines the main directions, methods and means of achieving the strategic goals of sustainable development and ensuring the national security of the Russian Federation in the territories of the Kabardino-Balkarian Republic, the Karachay-Cherkess Republic, the Republic of Dagestan , the Republic of Ingushetia, the Republic of North Ossetia-Alania, the Chechen Republic and the Stavropol Territory, which are part of the North Caucasian Federal District, until 2025.

The strategy was developed taking into account the Concept of long-term socio-economic development of the Russian Federation for the period up to 2020.

The strategy takes into account the current state of the economy of the constituent entities of the Russian Federation that are part of the North Caucasus Federal District, the Russian economy, the global economy and the prospects for their development, as well as the results of the implementation of projects of regional and interregional significance.

The North Caucasian Federal District has favorable conditions for the development of the agro-industrial complex, tourism, the sanatorium and resort sector, the electric power industry, the mining and manufacturing sectors of industry, as well as developed transit functions.

The main goal of the Strategy is to provide conditions for the accelerated development of the real sector of the economy in the subjects of the Russian Federation that are part of the North Caucasus Federal District, the creation of new jobs, as well as to improve the living standards of the population.

Among the most attractive investment projects in the southern federal district is the development of southern industrial centers. Today, the Volgograd Tractor Plant produces from 2 to 3 thousand units of equipment per year, and is capable of producing up to 50 thousand tractors. With an increase in the harvest in the subjects of the district from 16.5 million to 30-35 million tons of grain, additional agricultural machinery will be required. Accordingly, it is necessary to develop the capacities of the enterprises producing it.

Another direction is the development of tourism and sanatorium base. The south of Russia, with its unique beaches of the Black Sea coast of the Krasnodar Territory (Sochi, Anapa, Gelendzhik), with its mild climate and sunny days, is a fertile region. The resorts of the south of Russia are able to receive up to 25 million people annually.

A large resort and recreational complex has been formed in the districts. About 50 out of 150 climatic, balneological, balneological and mud resorts of the country are located in the Southern Federal District. The resort and tourism business in the Southern Federal District is one of the most effective areas of the region's economy, the development of which will be facilitated by the improvement of existing centers of national significance, the redistribution of tourist flows across the territory, the creation of new conditions for winter recreation, the construction of modern resort complexes, and the provision of high service. tourists.

The Strategy for the Socio-Economic Development of Siberia until 2020 (hereinafter referred to as the Strategy) defines the main directions, mechanisms and tools for achieving the strategic goals of the development of Siberia for the period up to 2020.

The strategy was developed taking into account the National Security Strategy of the Russian Federation until 2020.

The priority sectors of the socio-economic development of Siberia in 2010 - 2020 will be: information telecommunication technologies, nanoindustry, biotechnologies;

mechanical engineering (drilling, mining, pipeline, transport, energy and electrical engineering, metallurgical, housing and communal and construction), aircraft building, production of medical equipment and precision instrumentation; extractive industry (extraction of oil, gas, coal, ferrous, non-ferrous, precious and rare earth metals) and increase in mining; geological exploration work; processing industry - deep processing of primary raw materials (oil, gas, coal, wood chemistry), production of cellulose, paper, high-tech fuels and lubricants, wood boards, furniture and metallurgy products; agro-industrial complex (including organic food products); energy complex (including small (municipal) energy and renewable energy sources); infrastructure of rail, road, air, sea, river and pipeline transport; building materials industry; construction of comfortable social housing at affordable prices (in cities), individual houses (in rural areas), housing for shift workers and workers of the agro-industrial complex; applied science and scientific support for industry, transport, construction and agro-industrial complex; high-quality (including export-oriented) services of transport, financial sector, education, tourism and recreation, healthcare and culture.

The strategic goal of the development of the Far East and the Baikal region is the implementation of the geopolitical task of securing the population in this territory through the formation of a developed economy and a comfortable human environment in the constituent entities of the Russian Federation located on this territory, as well as achieving the average Russian level of socio-economic development.

To achieve this goal, it is necessary to ensure a comparable or ahead of the average Russian socio-economic development of the constituent entities of the Russian Federation located in the Far East.

The basic scenario for the development of the Far East and the Baikal region, envisaged by the Strategy - 2025, is linked to the innovative scenario of the Concept of long-term socio-economic development of the Russian Federation for the period up to 2020 and is based on the fullest use of the competitive advantage of the regional economy, the natural resource and transit potential of the territory, sustainable increasing the export of competitive products and modernizing the transport infrastructure.

It is also promising to increase the number of federal districts within the borders of Russia, which will allow, without significantly violating the interregional ties that have developed within the federal districts, to increase the efficiency of the functioning of state bodies at the level of the federal district, to raise the degree of their interaction with other public authorities to a higher level, and also to maximally align the federal districts with each other in socio-economic terms, to significantly strengthen the managerial aspect in their placement.

2.2 Strengthening the influence of federal districts on the development of the Russian Federation

The need to maintain the state unity of modern Russia necessitates not only the enlargement of the subjects of the Federation, but also the formation of larger management units than the subjects of the Federation. Before the creation of the federal districts, the absence of an intermediate link in the system of federal territorial administration made it much more difficult to govern the country, the interaction of state bodies at various levels of power, and reduced the efficiency and capabilities of the central government in exercising control over regional processes. The establishment of federal districts, the reorganization of the institution of plenipotentiaries of the President of the Russian Federation in federal districts, the formation of other state bodies at the level of the federal district has become a forced and necessary administrative measure on the way to improving state territorial administration, an important tool for centralizing executive power and increasing the effectiveness of the functioning of territorial bodies.

The creation and functioning of state bodies at the level of the federal district should be considered in the context of the implementation of administrative reform, the exercise of the powers of federal state bodies, the implementation of cardinal measures to strengthen the unity of the system of state, primarily executive, power in the country, as well as leveling the problematic issues of Russian federalism. One can definitely talk about the completed reformation of a significant part of the executive power structures according to the district principle, the strengthening of the vertical of this power, the deepening of their interaction and ties with the Government and the President of the Russian Federation.

The main point in the formation of federal districts is associated with taking into account a complex of factors that contribute to strengthening the vertical of executive power, strengthening the influence of the central government on political and economic processes in the regions, which allows district state bodies, relying on established institutions, to ensure the implementation of decisions of central federal state bodies on the ground, and in some cases even implement them independently. The federal districts bridge the gap between the central federal state bodies and their territorial divisions in the regions, and contribute to the revival of the norm of state governance that was previously violated. They significantly changed the system of state territorial administration, made it possible to form the missing middle management link, a kind of additional level of exercising the powers of federal state bodies.

Summarizing what was stated in the second chapter, I state that the appearance of powerful territorial and economic complexes in the form of federal districts contributes to the progressive development, alignment of socio-economic differences, economic and political integration of the subjects of the Federation, creates a system of large-scale, multi- and multi-resource segments of a single economic and legal space. If we consider each of them as a kind of national economic complex with its own historical, natural and economic specifics and production potential, then significant reserves are revealed for restructuring and raising the country's economy.

CONCLUSION

Based on the results of the questions discussed above, I can draw the following conclusions.

The creation of federal districts has become a powerful stimulus for the development of "regional capitals", which the state objectively needs. In the Russian space, such capitals play the role of nodes organizing large areas around them. The system of federal districts is a political-geographical structure, through the networks of which innovations spread. The state is interested in organizing and streamlining the innovation process that goes from Moscow to the district capitals, from the latter to the administrative centers of the subjects of the federation, and then to the periphery of individual regions. Such an organization of space can be considered progressive. At the same time, the district capitals themselves become major innovation centers and receive an additional incentive for their development. Increasing their number to 10-12 is also a very useful incentive, since the current eight regional capitals are objectively insufficient, and many large centers have been undeservedly deprived of their potential status as first-order nodes.

A radical enlargement of the subjects of the federation at this stage is simply impossible. The main problem is that the enlargement of the subjects of the federation is impossible without the destruction of the institution of national-territorial autonomy: the smallest subjects of the federation are mostly national autonomies. The number of federal subjects cannot be radically changed. Therefore, the preservation and development of the level of federal districts is fully justified by Russian geography, and precisely as a single sub-federal framework, and not as intersecting "departmental" districts. At the intra-regional level, it is justified to preserve the historically established two internal administrative levels, the lower - settlement and sub-regional - the level of large cities and administrative regions that unite settlements.

So, the institution of federal districts is an intermediate management level, characteristic of a large and administratively fragmented country. It is of particular importance at the crisis stage of the development of Russian statehood as a safety element of centralized anti-crisis management. At the same time, as the study shows, the system of federal districts is objectively necessary for optimizing the territorial-state construction in Russia in the long term. At the same time, it needs its own “internal” optimization.

It can be concluded that the institution of federal districts has taken place as a normal, managerial level that fulfills the tasks set by the center, as well as the tasks determined in the course of the development of the process, the emergence of powerful territorial and economic complexes in the form of federal districts contributes to the progressive development, alignment of socio-economic differences, economic and political integration of the subjects of the Federation, creates a system of large-scale, multi- and multi-resource segments of a single economic and legal space.

BIBLIOGRAPHY

Regulations

1. Decree of the President of the Russian Federation of May 13, 2000 No. No. 849 "On the Plenipotentiary Representative of the President of the Russian Federation in the Federal District" // SZ RF. 2000. No. 20. Art.2112

2. Decree of the President of the Russian Federation No. 19.01.2010 No. 82 "On Amendments to the List of Federal Districts, approved by Decree of the President of the Russian Federation of May 13, 2000 No. No. 849 and in the Decree of the President of the Russian Federation of 12.05.2008 No. No. 724 "Issues of the system and structure of federal executive bodies" // SZ RF. 2010. No. 4. Art.369

3. Decree of the President of the Russian Federation No. 24.03.2005 No. 337 "On Councils under the Plenipotentiary Representatives of the President of the Russian Federation in the Federal Districts" // SZ RF. 2005. No. 13. Art.1139

4. Decree of the President of the Russian Federation No. 22.03.2010 No. 332 "On Amendments to the Decree of the President of the Russian Federation of March 24, 2005 N 337 "On Councils under the Plenipotentiary Representatives of the President of the Russian Federation in Federal Districts" and Recognizing Some Decrees of the President of the Russian Federation as Invalid" // SZ RF. 2010. No. 13. Art.1451

5. Federal constitutional law of December 30, 2006 No. 6-FKZ "On the formation within the Russian Federation as a result of the unification of the Irkutsk region and the Ust-Orda Buryat Autonomous Okrug" // SZ RF. 2007. No. 1 (1 hour). Art.1

6. Federal constitutional law of 12.07.2006 No. 2-FKZ "On the formation within the Russian Federation as a result of the unification of the Kamchatka region and the Koryak Autonomous Okrug" // SZ RF. 2006. No. 29. Art.3119

7. Federal constitutional law of 21.07.2007 No. 5-FKZ "On the formation as part of the Russian Federation of the Russian Federation as a result of the unification of the Chita region and the Aginsky Buryat Autonomous Okrug" // SZ RF. 2007. No. 30. Art.3745

8. Federal constitutional law of 25.03.2004 No. 1-FKZ "On the formation as part of the Russian Federation as a result of the unification of the Perm Region and the Komi-Permyak Autonomous Okrug" // SZ RF. 2004. No. 13. Art.1110

9. Decree of the Government of the Russian Federation of 12.08.2000 No. No. 592 "On the interaction of the government of the Russian Federation and federal executive authorities with the authorized representatives of the President of the Russian Federation in the federal district and the layout of territorial executive authorities" // SZ RF. 2000. No. 34. Art.3473

Special literature

1. Alaev E. Federal districts - an innovation in the territorial status of Russia. // Federalism, 2000, No. 4, pp. 169-182.

2. Gokhberg M. Ya. Federal districts of the Russian Federation: analysis and development prospects. - M.: Finance and statistics, 2002.

3. Kistanov VV Federal districts of Russia: an important step in strengthening the state. - M.: Economics, 2000.

4. Turovsky R.F. Federal districts: political and geographical approach in theory and practice // Federalism. - 2003. - No. 1. - S. 217-250.

5. Khursevich S. The role of federal districts in the development of Russian federalism // Federalism, 2000, No. 4, p. 183-192.

6. Cherkasov K.V. Federal districts in the Russian Federation: state and development trends. - Legislation and economics, 2009.

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Content

Introduction.
The history of the formation of the Federal Districts
The composition of the federal districts.
Plenipotentiary representative, his tasks and main functions.
Prospects for the development of the Federal Districts.
Conclusion.
Bibliography.

Introduction.

The system of federal districts was formed by Decree of the President of Russia No. 849 dated May 13, 2000 and was a set of seven (according to the number of districts) structural units of the new political division of Russia. The first change in their number (increase to eight) and composition was the allocationNorth Caucasian Federal District from Southern Federal Districtby presidential decree YES. Medvedev January 19, 2010
Each federal district is the scene of activity of one of the eight plenipotentiaries of the President. The plenipotentiary is appointed and dismissed by the President of the Russian Federation on the proposal of the head of the Presidential Administration. Directly reports to the President of the Russian Federation and is accountable to him.The plenipotentiary ensures the implementation of the constitutional powers of the head of state within his "domains". The tasks of this official include, first of all, the organization of control over the execution in the federal district of decisions of federal authorities, the presentation to the President of regular reports on the state of affairs in the region, mediation in the interaction of presidential structures with state authorities of the subjects of the federation. The scope of powers of the President's representatives in the federal districts is quite wide and affects the control functions, informational, coordinating, but to a greater extent, the nature of these powers is represented by executive functions. The institution of plenipotentiaries, referred by law to the system of presidential administration bodies, is in fact a branch of executive power.

History of formation of Federal districts.

In the prevailing in the 90s. the system of territorial organization of management has exceeded the "threshold of controllability". There was a weak federal center, which performed its managerial functions extremely inefficiently, and regions, most of which were simply not able to independently and effectively implement all the powers they had assumed for the benefit of society. There was a managerial gap between the central federal executive authorities and their territorial divisions in the subjects of the Federation. An excessive number of controlled elements did not allow effective control over the execution of decisions, and often there was an obstruction of the system for “vertical” control signals. The consequences of maintaining a “weak center and weak regions” could be very serious for the country. The idea of ​​creating a special institution representing the presidential power in the localities and at the same time coordinating the activities of local representative offices of federal departments found practical implementation already at the end of the term of the first Russian president. Boris Yeltsin then signed a decree on federal collegiums. This was a reaction to the change in the real status of the plenipotentiaries of the President of the Russian Federation in the subjects of the Federation, who gradually, for the most part, turned into insignificant figures under the governors, who only informed the Center, and even then not always objectively, about the activities of regional administrations. And many of the territorial bodies of the federal executive power were under the control of the authorities of the constituent entities of the Federation.
The formation of federal districts was primarily the result of awareness at the state level of the relevant management tasks, dissatisfaction with the state of law in the subjects of the Federation and the low degree of efficiency of the territorial divisions of federal executive bodies. The formation of districts is an act of vertical deconcentration of the powers of the presidential power, bringing the federal administrative apparatus closer to the subjects of the Federation, to the population. At the same time, the process of deconcentration of the powers of the federal executive power (Government) has intensified through the restructuring and optimization of the system of territorial structures of federal executive bodies, the formation of their district structures. It became possible to increase the effectiveness of the implementation of state policy in the field of territorial development at the district level, to ensure the unity of the legal and economic space of the Russian Federation both vertically and horizontally, to increase the possibilities of interregional integration, to optimize the interaction of regional and municipal levels of government.
The period from 1990 to 1993 is characterized by the so-called "parade of sovereignties". The legislation of this period is characterized by extreme instability, weakening of the legal mechanisms for regulating social relations. Many subjects of the Federation adopted declarations of sovereignty, assigned additional powers not granted to them by the Constitution of the Russian Federation and related to the prerogative of the federal center. The constitutions, statutes and legislation of most subjects of the Federation of that period grossly contradicted federal legislation. In some subjects of the Federation, referendums were held on the issue of their state sovereignty. As a compromise between the center and the regions, in 1992 the Federal Treaty was signed, which stabilized the fragile balance of interests in the sphere of territorial organization of power.
Since 2000, the legislative base of federal relations has been stabilizing. Key federal laws came into force (in particular, Federal Law No. 184-FZ “On the General Principles of Organization of Legislative (Representative) and Executive Bodies of State Power of the Subjects of the Russian Federation”). 7 federal districts have been created. The gradual bringing of the legislation of the constituent entities of the Federation into line with the Constitution of the Russian Federation and federal laws has begun.
One of the main goals of the undertaken administrative reform is to optimize the organization of the economic and political space to ensure the economic integration of the country, improve the efficiency of state territorial administration and equalize the potentials of the regions.
Federal districts are an administrative-territorial structure at the level of which it is possible to organize an effective system of regional management and solve the whole range of problems of state policy in the field of regional development.

The composition of the federal districts.

Central Federal District: Belgorod region, Bryansk region, Vladimir region. Voronezh Region, Ivanovo Region, Kaluga Region, Kostroma Region, Kursk Region, Lipetsk Region, Moscow Region, Oryol Region, Ryazan Region, Smolensk Region, Tambov Region, Tver Region, Tula Region, Yaroslavl Region, Moscow. The center of the federal district is Moscow.
Northwestern Federal District: Republic of Karelia, Republic of Komi, Arkhangelsk Region, Vologda Region, Kaliningrad Region, Leningrad Region, Murmansk Region, Novgorod Region, Pskov Region, St. Petersburg, Nenets Autonomous Okrug. The center of the federal district is St. Petersburg.
Southern Federal District: Republic of Adygea, Republic of Kalmykia, Krasnodar Territory, Astrakhan Region, Volgograd Region, Rostov Region, Center of the Federal District - Rostov-on-Don.
Volga Federal District: Republic of Bashkortostan, Republic of Mari El, Republic of Mordovia, Republic of Tatarstan (Tatarstan), Udmurt Republic, Chuvash Republic, Kirov Region, Nizhny Novgorod Region, Orenburg Region, Penza Region, Perm Region, Samara Region, Saratov Region, Ulyanovsk Region, Komi-Permyatsky Autonomous district. The center of the federal district is the city of Nizhny Novgorod.
Ural federal district: Kurgan region, Sverdlovsk region, Tyumen region, Chelyabinsk region, Khanty-Mansi Autonomous Okrug, Yamalo-Nenets Autonomous Okrug. The center of the federal district is Yekaterinburg.
Siberian Federal District: Republic of Altai, Republic of Buryatia, Republic of Tyva, Republic of Khakassia, Altai Territory, Krasnoyarsk Territory, Irkutsk Region, Kemerovo Region, Novosibirsk Region, Omsk Region, Tomsk Region, Chita Region, Aginsky Buryat Autonomous Okrug, Taimyr (Dolgano-Nenetsky) Autonomous Okrug , Ust-Orda Buryat Autonomous Okrug, Evenk Autonomous Okrug. The center of the federal district is Novosibirsk.
Far Eastern Federal District: Republic of Sakha (Yakutia), Primorsky Territory, Khabarovsk Territory, Amur Region, Kamchatka Region, Magadan Region, Sakhalin Region, Jewish Autonomous Region, Koryak Autonomous Okrug, Chukotka Autonomous Okrug. The center of the federal district is the city of Khabarovsk.
North Caucasian Federal District: Republic of Dagestan, Republic of Dagestan, Republic of Ingushetia, Kabardino-Balkarian Republic, Karachay-Cherkess Republic, Republic of North Ossetia-Alania, Chechen Republic, Stavropol Territory. Center of the federal district - Pyatigorsk

Plenipotentiary representative, his tasks and main functions.

Plenipotentiary representative of the President of the Russian Federation in the federal district is an official representing the President of the Russian Federation in the territory of the corresponding federal district. The main tasks and functions of the authorized representatives of the President of the Russian Federation in the federal districts are determined by the Regulations on the Plenipotentiary Representative of the President of the Russian Federation in the federal district. The main tasks of the authorized representative are:
- organization in the relevant federal district of work on the implementation by public authorities of the main directions of internal and foreign policy states determined by the President of the Russian Federation;
- organization of control over the execution in the federal district of decisions of federal government bodies;
- ensuring the implementation in the federal district personnel policy the President of the Russian Federation;
- submission to the President of the Russian Federation of regular reports on ensuring national security in the federal district, as well as on the political, social and economic situation in the federal district, making relevant proposals to the President of the Russian Federation.
Thus, it follows from the Regulations that the main tasks of the plenipotentiary are of a purely executive nature. For example, ensuring the implementation of the personnel policy of the President of the Russian Federation in the federal district, the implementation of the main directions of the state's domestic and foreign policy. The institution of plenipotentiaries in this context acts as a structure of executive power that implements the orders of the President on the ground.
The same Regulation determined the functions of the plenipotentiary representative of the President of the Russian Federation: - ensures the coordination of the activities of federal executive bodies in the relevant federal district;
- analyzes the effectiveness of law enforcement agencies in the federal district, as well as the state of staffing in these agencies, makes appropriate proposals to the President of the Russian Federation;
- organizes the interaction of federal executive bodies with state authorities of the constituent entities of the Russian Federation, local authorities, political parties, other public and religious associations;
- develops, together with interregional associations of economic interaction of the constituent entities of the Russian Federation, programs for the socio-economic development of territories within the federal district;
- approves candidates for appointment to positions of federal civil servants and candidates for appointment to other positions within the federal district, if the appointment to these positions is carried out by the President of the Russian Federation, the Government of the Russian Federation or federal executive bodies;
- organizes control over the implementation of federal laws, decrees and orders of the President of the Russian Federation, decisions and orders of the Government of the Russian Federation, over the implementation of federal programs in the federal district;
- approves draft decisions of federal government bodies affecting the interests of a federal district or a constituent entity of the Russian Federation located within this district;
etc.................