Municipal law of Russia. Rural settlements in Russia: from initiative to municipality What is municipal rural settlements

Urban and rural settlements represent a variety of municipalities in the Russian Federation. Local self-government in them is carried out directly by residents or through elected and other authorized bodies. Let's take a closer look at features of rural settlements.

general characteristics

Rural settlements- one or more points united by a common territory. They may include settlements, villages, villages, kishlaks, farms, auls, villages, etc.

The rights of rural settlements are exercised on the basis of the Constitution and federal legislation through the authorities. The powers of these structures include resolving issues on:

• formation of the local budget;
• municipal property management;
• independent determination of the structure of local government institutions;
• territorial organization of self-government;
• public order, etc.

Features of administrative-territorial units

Rural settlements provided for in Federal Law No. 131 and introduced in the process of municipal reform in 2003.

Quite often, settlements correspond to village councils of the Soviet era or volosts of the post- and pre-Soviet era. For example, in Pskov rural settlement area called "Tyamshanskaya volost". In some regions, the term "village council" is still used today. Moreover, in some rural areas so they are called. For example, Novinsky village council in the Bogorodsky district of the Nizhny Novgorod region.

Population

Territory rural settlement, as a rule, includes one settlement or village. The number of citizens living in them exceeds 1 thousand people. If the territory is characterized by a high population density, then more than 3 thousand people can live on it.

Rural settlements can unite several settlements if the population in them is less than a thousand or 3 thousand (for areas with dense population) people.

In general, 15-20 thousand people can live on the territory of an administrative unit. In Russia, however, there are rural settlements with a larger population (more than 30 thousand people). So, in 2013, more than 60 thousand people lived in Ingushetia in the Ordzhonikidze settlement.

Structural features

The rural settlement has an administrative center. It is the locality in which the representative body is located. The administrative center is determined taking into account the existing infrastructure and local traditions.

The boundaries of a settlement that includes 2 or more settlements are usually established taking into account the walking distance to the administrative center and back for all residents. The round trip distance must be covered in one day. An exception may be areas with low population density, hard-to-reach and remote areas.

Settlement as a specific organizational form

Different states have different definitions of rural settlements. This or that interpretation depends on economic, national, demographic, geographical, social and other factors.

"Rural settlement - a settlement located in where most of the inhabitants are engaged in agriculture."

More precisely, the concept is revealed in modern geographical encyclopedias. In general, a rural settlement is considered as:

• a settlement, most of whose inhabitants are engaged in agriculture;
• a non-agricultural settlement located in a rural area, which does not correspond in terms of the number of inhabitants to a city, associated with servicing transport outside cities (piers, sidings, small stations), forestry (cordons, forestries);
• settlement at industrial enterprises, resorts, quarries, recreation areas, etc.

Federal Law No. 131, which regulates the general principles of organizing territorial self-government, also contains a definition of a settlement.

Specific features

The concept of a rural settlement appeared with the delimitation of the city and the village as independent socio-economic units. The appearance and type of the settlement reflect the nature of production relations characteristic of a particular territory.

At the same time, this organizational form is also influenced by the occupation of the inhabitants, natural conditions, and national traditions.

Population of settlements

It depends on the production functions, the form of settlement, the history of the territory. Population objectively reflects the combined influence of several factors on the development of a rural settlement. However, by itself, this indicator does not reveal the factors.

The size of the settlements determines certain conditions for life, cultural and consumer services for the population. In this regard, the allocation of types of administrative units by population is of more scientific and practical importance.

General classification of settlements by size

When dividing administrative units into types according to population, they are divided into groups from the smallest (1-5 people) to large ones (from 10 thousand inhabitants). In typological terms, it is necessary to identify such population indicators that determine the significant qualitative characteristics of the settlements.

Odnodvorki - a group that includes points, the number of inhabitants in which does not exceed 10 people.

Small settlements with less than 100 inhabitants depend on nearby larger settlements. Only in individual settlements can certain elements of small-scale social infrastructure be created. These are, for example, a first-aid post, an elementary school, a club, a library, a village shop.

With a population of 200-500 people. in the settlement there may also be elements of infrastructure, but of the same small size. Agricultural settlements of this size can become the base for any production unit.

With a population of 1-2 thousand people. there is an opportunity to significantly expand the list of service institutions, increase their size and improve technical equipment. According to regulations planning and development of urban and rural settlements, in such territories a kindergarten, a school for 150-160 students, a club for 200 people, a library, shops for 6 workers are being created for 1 thousand inhabitants. places, a feldsher-obstetrical first-aid post with a small hospital, sports grounds, a post office with a savings bank, etc.

The most favorable conditions for life in settlements with a population of 3-5 thousand people. In such points, conditions can be created to ensure the 1st urban level of improvement, cultural and consumer services. Schools, houses of culture, medical institutions are being built for residents, a specialized trading network is being created, etc. As for production, such settlements often become centers of large farms.

Urban planning: planning and development of rural settlements

The general concept for the development of settlements is given in the Code of Rules SP 42.13330.2011.

As stated in the document, it is carried out on the basis of documentation on territorial planning of the Russian Federation, regions, municipalities. The regulatory framework for this activity is federal laws, presidential decrees, government decrees, legislative and other regulatory acts of the constituent entities of the Russian Federation.

Urban/rural settlements are designed as units of the settlement system of the territory of Russia and the regions included in it. The task of territorial planning is to determine the purpose of settlements in the documentation, taking into account economic, social, environmental and other factors in order to ensure the realization of the interests and needs of citizens, as well as their associations.

The projects should provide for a rational sequence of development of settlements. Prospects for expanding and improving social services beyond the project timeframe should be identified. The settlement period should be up to 20 years, and the urban planning forecast - no more than 30-40 years.

In the process of developing master plans, the authorized bodies should be guided by the results of an assessment of the natural, architectural, economic-geographical, industrial and social potential of the area.

This should:

• Provide for the improvement of the sanitary-hygienic and ecological state of nature, the preservation of cultural and historical monuments.
• Determine rational directions for the development of the area.
• Consider the prospects for expansion of the real estate market.

When planning and developing rural / urban settlements, zoning of the territory is carried out with the definition of types of primary use and restrictions.

• The concept and essence of local government
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• Municipal law of Russia as a complex branch of law
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• Municipal law as a science and academic discipline
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• History of the development of local self-government in Russia
  • General characteristics of the development of local government and self-government in Russia until 1775
  • Introduction of noble self-government in 1775
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  • The system and competence of zemstvo institutions in pre-revolutionary Russia
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Territory and lands of the municipality

In the most general form, the territory of a municipal formation is the space (land) within the limits delineated by the boundaries of this municipal formation, regardless of the form of ownership and purpose. Accordingly, it is necessary to distinguish between the territory of a municipal formation as part of the earth's surface, located within the boundaries of the municipal formation, and municipal land as part of the earth's surface, located within the boundaries of the municipal formation and owned by this municipal formation.

Due to the fact that the Federal Law of 2003 clearly defined five types of municipalities, it is necessary to talk about the territory of each type, since each case will have its own specifics.

1) Urban and rural settlements include historically developed lands of settlements, adjacent lands of common use, territories of traditional nature management of the population of the corresponding settlement, recreational lands, lands for the development of the settlement.

In paragraph 5 of part 1 of Art. 11 of the Federal Law "On the General Principles of Organization of Local Self-Government in the Russian Federation" states that the territory of an urban settlement may include one city or one settlement, as well as territories intended for the development of its social, transport and other infrastructure (including the territories of settlements and rural settlements that are not municipalities).

And in the composition of the territory of a rural settlement, in accordance with paragraph 6 of part 1 of Art. 11 of the Law may include, as a rule, one rural settlement or settlement with a population of more than 1,000 people (for a territory with a high population density - more than 3,000 people) and (or) several rural settlements united by a common territory with a population of less than 1,000 people each (for a territory with a high population density - less than 3,000 people each).

It is important that the territory of the settlement should be fully part of the settlement.

2) Into the territory municipal district includes the territories of all settlements within the boundaries of this region, with the exception of the territories of urban districts, as well as inter-settlement territories that arise in territories with a low population density. At the same time, the territory of the settlement (settlements) must be fully included in the territory of the municipal district.

Thus, on the example of a municipal district, a two-level system of territorial organization of local self-government is implemented.

3) Territory city ​​district- this is the territory of an urban settlement, which, in accordance with the law of the subject of the Federation, is endowed with the status of an urban district.

An urban settlement is granted the status of an urban district by the law of a constituent entity of the Russian Federation if there is an existing infrastructure necessary for the local self-government bodies of an urban settlement to independently resolve issues of local importance and exercise certain state powers, as well as if there is an existing infrastructure necessary for independent decision by local self-government bodies of the adjacent (adjacent) ) municipal district (municipal districts) issues of local importance and the exercise of certain state powers by them. At the same time, the urban district is not part of the municipal district.

4) Intracity territory of a city of federal significance- a part of the territory of a city of federal significance, within the boundaries of which local self-government is exercised by the population directly and (or) through elected and other bodies of local self-government.

As for the size of the territory of municipalities, the Law itself, of course, does not contain exact requirements, but it indicates what criteria can be used as the basis for determining the size of the territories of municipalities.

It can be concluded that the approximate radius of a rural settlement cannot be more than 10 kilometers. And the approximate radius of the municipal district is 40-50 kilometers. Of course, these are approximate dimensions, and in practice the territory of the municipality may have other parameters.

The above requirements, in accordance with the laws of the constituent entities of the Russian Federation, may not apply in areas with a low density of the rural population, as well as in remote and hard-to-reach areas.

Sufficiently important criteria for the territorial organization of local self-government, as well as for granting the status of a rural settlement or municipal district to a municipal formation, are paid and population.

Naturally, without the population, even in the presence of all other signs, it is impossible to talk about local self-government and the actual expression of its territorial organization - the municipality.

The federal law "On the General Principles of Organization of Local Self-Government in the Russian Federation" of 2003 implies a conditional division of the country into territories with high and low population density. In territories with low population density, municipal formations and inter-settlement territories between them should be created. In territories with a high population density, municipal formations without inter-settlement territories should be created.

Territories with a low rural population density include the territories of the constituent entities of the Russian Federation, individual municipal districts in the constituent entities of the Russian Federation, in which the density of the rural population is more than three times lower than the average density of the rural population in the Russian Federation.

Territories with a high rural population density include the territories of the constituent entities of the Russian Federation, individual municipal districts in the constituent entities of the Russian Federation, in which the density of the rural population is more than three times higher than the average density of the rural population in the Russian Federation.

The revision of the status of territories with low and high population density, according to Federal Law No. 131 FZ, can be carried out no more than once every 5 years.

To date, the average density of the rural population in the Russian Federation is 2.9 people per km2. Consequently, the density of the rural population in areas with low density is approximately 0.75 people per km 2, and the density of the rural population in areas with high density is at least 9 people per km 2.

• compliance with the requirements of the Federal Law "On the General Principles of Organization of Local Self-Government in the Russian Federation" of 2003 regarding the composition and size of the territory of the municipality, population;
• the maximum possible consideration of the availability of the infrastructure necessary to resolve issues of local importance and the execution of the assigned state powers;
• accounting for the sources of income necessary to form the revenue base of local budgets.

According to paragraph 3 of part 1 of Art. 11 of the Federal Law of 2003, the territory of the settlement is made up of historically established lands of settlements, lands adjacent to them for common use, territories of traditional nature management of the population of the corresponding settlement, recreational lands, lands for the development of the settlement. This construction of the norm of the law cannot be considered successful, since in paragraph 3 of part 1 of Art. 11 dan, based on the letter of the law.

an exhaustive list of lands that make up the territory of the settlement, but this is not so. In addition, there is no separate article in the Federal Law that would list the lands of municipalities.

At the same time, the practice of implementing local self-government in Russia has shown that on the territory of municipalities there is a fairly large number of lands that have a legal regime of a different nature.

The lands of urban and rural settlements are lands located within the boundaries of these settlements, mainly within the boundaries of settlements. They usually include : lands intended for living and socio-cultural services to the population; industrial lands; recreational lands; public land; land intended for the development of settlements; land for burials; other lands.

At the same time, as we noted earlier, the composition of the territory of the settlement includes lands, regardless of the form of ownership and purpose.

On the territory of the municipal district, consisting of several settlements and inter-settlement territory, in addition to the listed types of land, there are agricultural land.

It must be understood that it is extremely difficult to clearly divide the land according to species within the boundaries of a particular municipality. In addition, within the boundaries of one municipality, there cannot be all the types of land listed by us at once.

As noted by I.V. Vydrin and A.N. Kokotov, “it should be borne in mind that the legislation separates the concepts of “municipal territory” and “municipal lands”, defining their different legal regime. The concept of "municipal territory" serves to designate the spatial framework for the implementation of (...) local self-government ... Not all lands included in the territory of a municipality are its municipal lands. The composition of the territory of a municipal formation, in addition to its own lands, may include state, private, lands of other municipal formations. 3 Vydrin I.V., Kokotov A.N. Municipal law of Russia. M.: Norma, 2000. S. 146..

The number of rural settlements and urban-type settlements continues to decline

As a result of the processes of urbanization and the peculiarities of the historical development of Russia, its rural population in the periods between population censuses has been steadily declining since the mid-1920s. The decline in the urban population has become a new phenomenon since the 1989 census (Fig. 7). Between the 1989 and 2002 censuses, the number of urban dwellers declined even more than rural dwellers (-1.4% vs. -0.8%). Between the 2002 and 2010 censuses, the decline in the rural population was greater (-3.0%) than the urban population (-1.0%). As a result, the share of city dwellers in the total population of Russia, after a period of rapid and steady growth, stabilized at just over 73% (73.4% in 1989, 73.3% in 2002, 73.7% in 2010).

The criterion for referring to the group of urban or rural residents in Russia is permanent residence in an urban or rural settlement. At the same time, urban settlements are considered to be settlements approved by legislative acts as cities and urban-type settlements (working, resort, summer cottages and settlements of closed administrative-territorial formations). All other settlements are considered rural. Information about the administrative-territorial division used in the statistical development of population data is based on official documents received from the authorities of the constituent entities of the Russian Federation.

Figure 7. The number of urban and rural population of Russia according to population censuses, million people

A distinctive feature of the last two intercensal periods was the rapid reduction in the number of urban settlements due to urban-type settlements, which often combine the features of small towns and rural settlements. The number of cities has continued to grow moderately and has practically stabilized in recent years (Fig. 8).

As of October 14, 2010, there were 2,386 cities and urban-type settlements in Russia. The number of urban-type settlements decreased by 554 compared to 2002:

• 413 urban-type settlements, in accordance with the decision of the state authorities of the constituent entities of the Russian Federation and local self-government, were transformed into rural settlements,
• 141 urban-type settlements were excluded from the accounting data due to their inclusion within the boundaries of other urban settlements (127) or liquidation due to the departure of residents (14 urban-type settlements were liquidated, of which 6 - in the Republic of Sakha (Yakutia), 8 - in Chukotka Autonomous Okrug).

Figure 8. Number of urban settlements in Russia according to population censuses

Among 1100 Russian cities, 85% are cities with a population of up to 100 thousand inhabitants, and their number continues to grow (Table 1). The number of the largest cities with a population of one million or more grew steadily until 1989, and then practically stabilized, changing only due to the rise and fall of the rank of Volgograd with a population of about a million people. The number of smaller cities changed due to the increase in the rank of some cities and the decrease in others, moving into a group of smaller cities. The steady growth that characterized the previous decades has come to an end.

Table 1. Distribution of cities in the Russian Federation by number of inhabitants, according to population censuses

Total cities
up to 100 thousand
1 million or more

Despite the decline in the urban population, the trend of concentration of the population in large cities persists. The population living in cities with a population of 100 thousand or more increased by 2 million compared to 2002 (from 68.2 to 70.2 million people), and its share in the urban population of Russia increased from 64% up to 67%.

The number of residents of millionaire cities is steadily increasing (Fig. 9). The population living in cities of 500,000 to 1 million declined between the 1989 and 2002 censuses, but increased markedly between the 2002 and 2010 censuses. The population of smaller towns, which had been growing over 1989-2002, declined between the 2002 and 2010 censuses.

Figure 9. Distribution of the population of Russian cities by cities with different numbers of inhabitants, according to population censuses, millions of people

Although the trend of urban concentration in large cities continues, its speed has clearly slowed down (Table 2). In 2010, as in 2002, 40% of the inhabitants of large cities - with a population of 100,000 people or more - were concentrated in millionaire cities.

Table 2. Distribution of the population of the cities of the Russian Federation by cities of different population size, according to population censuses

Population of all cities
including the number of inhabitants:
up to 100 thousand
100-499.9 thousand
500-999.9 thousand
1 million or more

During the period between the 2002 and 2010 censuses, the population of all millionaire cities increased, with the exception of Nizhny Novgorod, as well as Perm, which dropped out of their number (Table 3). During the previous intercensal period, population growth was recorded only in 5 of 13 cities.

Moscow stands out for its steady and rapid growth in this group of cities due to its significant influx of migrants. The excess of data on the population according to the preliminary results of the VPN-2010 over the number according to the current estimate amounted to 951 thousand people in Moscow (9% of the population). In other major cities of the country, it was less significant, amounting to 248 thousand people (5.4%) in St. Petersburg, 65 thousand people (4.6%) in Novosibirsk, 42 ​​thousand people (4.2%) in Volgograd, Rostov -on-Don - 42 thousand people (4.0%), in the rest - 3% or less. Only in Nizhny Novgorod, during the 2010 census, fewer permanent residents were counted than estimated according to current records - by 20,000, or 1.6%.

Table 3. Population of cities in the Russian Federation with a population of 1 million or more, according to population censuses and current records

			Assessment as of 01.01.10	Census on 10/14/10	2002 to 1989	2010 to 2002	2010 to 1989
St. Petersburg
Novosibirsk
Yekaterinburg
Nizhny Novgorod
Chelyabinsk
Rostov-on-Don
Volgograd

* without settlements subordinated to the city administration

Among the larger cities of a smaller size - with a population of 500 thousand to 1 million - the capital of the Republic of Dagestan stands out with a very high population growth (Table 4). It should be noted that the population of Makhachkala, according to the preliminary data of the VPN-2010, exceeded its estimate according to the current accounting data by 23% (by 109 thousand people). Krasnodar and Tyumen are also distinguished by high population growth in this group of cities, and the discrepancy between the preliminary data of the VPN-2010 and the estimate according to the current accounting data is insignificant (4.4% and 0.3%, respectively). Some cities, losing population, lower their rank, moving into a group of smaller cities.

Table 4. Population of cities of the Russian Federation with a population of 500 thousand to 1 million, according to population censuses and current records

	Population, thousand people				Population change between censuses, in %
			Assessment as of 01.01.10	Census on 10/14/10	2002 to 1989	2010 to 2002	2010 to 1989
Krasnoyarsk
Krasnodar
Tolyatti
Ulyanovsk
Vladivostok
Yaroslavl
Makhachkala
Khabarovsk
Novokuznetsk
Orenburg
Kemerovo
Astrakhan
Naberezhnye Chelny

The number of rural settlements declined rapidly and steadily until 1989; in the last intercensal period, this process slowed down (Fig. 10).

Between the 1959 and 1989 censuses, the number of rural settlements almost halved, from 294,059 to 152,922. Between the 1989 and 2002 censuses, the total number of rural settlements, according to Rosstat, increased by 2,367, or At the same time, no one lived in 13,086 settlements (8.4% of the total) at the time of the 2002 census. At the same time, Rosstat did not explain whether such settlements were taken into account in previous population censuses, however, the number of settlements in which no more than 5 people live almost doubled in 1989-2002 (from 16925 to 32997, including settlements in which no one lived at the time 2002 census). The number of rural settlements in which 6 to 10 people live increased by 6.4% (from 13245 to 14029). And the number of rural settlements with 11 to 3000 people, on the contrary, decreased, most of all - by 21% - with the number of inhabitants from 26 to 50 people (from 19939 to 15770). The number of larger rural settlements increased: with a population of 3 to 5 thousand people - by 8.7% (from 803 to 873), with a population of more than 5 thousand people - by 34.3% (from 601 to 807) .

At the time of the 2002 census, 30.3% of the total number of rural settlements were small settlements - with a population of no more than 10 people (including completely without a population), 34.1% - with a population of 11 to 100, 35 .6% - with more than 100 inhabitants.

During the period between the 2002 and 2010 censuses, the number of rural settlements decreased by 2.2 thousand, mainly due to their liquidation due to the lack of inhabitants, consolidation (merger) with other rural settlements or their inclusion in the city.

At the time of the 2010 census, there were 153.1 thousand rural settlements. Among them, the share of small settlements with a population of no more than 10 people increased to 36.3% (including 12.7% without a population), while the share of larger settlements decreased: with a population of 11 to 100 - to 30.4 %, with the number of inhabitants over 100 people - up to 33.2%.

Figure 10. Distribution of rural settlements in Russia by the number of inhabitants, according to population censuses, thousand settlements

* up to 10 people in 2002 and 2010 - including rural settlements without population

About 80% of rural settlements without a population and with a population of no more than 10 people are concentrated in the Central and Northwestern Federal Districts, including about 30% in the Tver, Vologda and Pskov regions.

The share of settlements without population is highest in the Kostroma, Tver, Yaroslavl, Vologda, Pskov, Kirov and Magadan regions, as well as in the Republic of Ingushetia (over 20%).

Compared to the 2002 census, the number of villages and hamlets with a population of 10 people or less has also increased. In 2010, they accounted for almost a quarter of all rural settlements, while in 2002 they accounted for about a fifth. According to the preliminary data of the VPN-2010, only 0.5% of the rural population lives in them (in 1989 and 2002 - 0.4% each). Basically, these rural settlements are concentrated in the Central and Northwestern federal districts. In the Yaroslavl, Vologda, Novgorod and Pskov regions, the share of small villages and farms exceeds 40%.

The position of rural sociology both in the USSR and in post-Soviet Russia was determined by two factors operating in opposite directions. On the one hand, Russian society is traditionally associated with the countryside and has deep "rural roots." This determined the interest of scientists in the countryside. On the other hand, there are many reasons that, as it were, relegate rural issues to the background. The territorial remoteness of the village from the city, the less institutionalized rural environment, the inaccessibility of rural residents for surveys by standard survey methods affect. It is impossible not to take into account the dependence of rural research on the nature of the agrarian policy of the state in certain periods of national history. In the 20th century, the Russian village at least twice, during the period of Stalinist collectivization and the current reforms, was subjected to the most difficult socio-economic transformations. As a result, despite the great social significance of the village for Russia, the attention of sociologists to the village as an object of study at different stages of the country's history did not remain the same, but, on the contrary, changed, at times it disappeared altogether (as happened at the stage of market reforms in the 1990s). .

If we return to the first factor, the exceptional importance of rural issues for Russia, then this significance is already visible from the composition of the population. The share of rural residents in Russia in 2002 was 27%, according to the 2010 census - 21.3% (in the UK and the Netherlands - 11%, in Germany - 14%, in Sweden - 17%, in the USA and Canada - 23 % and 24%). In addition, the division of settlements into "rural" and "urban" in Russia is not alternative, but "continuous", in addition to 26-27% of the villagers, there are about 28% of the country's population living in urban-type settlements and small towns with a population of 50 -100 thousand people Both of these categories of settlements in terms of the entire range of living conditions, in terms of the composition of the population and its mentality, are much closer to the village than to the city.

However, the point is not only where the people of Russia live and where they work. Due to the rapid rate of urbanization of Russian society, the country's urban population retains strong "rural roots" and a strong "rural coloring." The rapid growth of the urban population has led to the fact that the overwhelming majority of the townspeople are people from the village in the first or second generation, and only about 1/6 of the urban population will be the townspeople in the third generation. And there are even fewer descendants of pre-revolutionary townspeople, for example, in Moscow - about 3%. The urban population of Russia is mainly rural natives and their children, who interacted little with the native city dwellers. Some townspeople maintain family ties with the countryside. Seasonal migrations of townspeople to the countryside to relatives, to inherited village houses are massive. As a result, a non-trivial situation has developed: statistics say that Russia is an urban country, 3/4 of the population lives in cities, but in fact a significant part of the urban population has an agrarian mentality: the current "summer residents" are largely associated with "gardening" activities .

Since the 60s, when the sociology of the countryside, like all sociology, was revived, a large group of scientists, whose works greatly contributed to the formation of this branch of sociological thought, were engaged in research into the life of the village and its inhabitants - Yu.V. Harutyunyan, P.P. Veliky, T.I. Zaslavskaya, I.V. Ryvkina, G.A. Lisichkin, P.I. Simush, V.I. Staroverov, A.I. Timush and others.

Rural settlement- a settlement, the majority of whose inhabitants are employed in agriculture, or a non-agricultural settlement located in a rural area that does not correspond to a city in terms of population. Rural settlements in the Russian Federation - villages, villages, villages, farms, kishlaks, auls, camps, zaimki, etc.

A typology of rural settlements can be drawn on a number of grounds.

According to the time of residence, these are permanent and seasonally inhabited (temporary). Seasonally inhabited include "winter roads" and "letniks" of livestock breeders in places where livestock is kept, field camps associated with the use of remote arable land, as well as non-agricultural points associated with recreational services for the population (summer camp sites, children's health camps). There are temporary settlements created for a certain period, for example, lumber camps, expedition bases.

According to the compactness of settlement - settlements are group and scattered. Group (village form) prevail in Russia, foreign Europe, China, Japan, in most developing countries. Scattered rural settlements (farming form) are common in the USA, Canada, Australia, and in the Baltic countries. In Russia, there are several thousand households with a changeable fate.

The population scale of rural settlements is a system for classifying them according to the number of inhabitants living in them. In accordance with it, the following rural settlements are distinguished: the smallest (up to 50 inhabitants), small (51-100 inhabitants), medium (100-500 inhabitants), large (501-1000 inhabitants), largest (over 1000 inhabitants).

To determine the functional type of a rural settlement, an important criterion is the structure of the “settlement-forming” group of the self-employed population, consisting of workers employed in various sectors of the national economy, and those whose activities represent a direct contribution of the inhabitants of this settlement to the national economy of the country. Their ratio in the "settlement-forming" population reflects the economic basis of life in a given settlement. But the main difference between rural and urban settlements is that their inhabitants are mainly engaged in agriculture. In fact, in modern Russia only 55% of the rural population is engaged in agriculture, the remaining 45% work in industry, transport, non-manufacturing and other "urban" sectors of the economy. Often these are residents of rural settlements located near cities (especially within urban agglomerations), working in urban settlements. But in many cases, non-agricultural enterprises (mainly service sector institutions) are located directly in rural settlements, especially in the largest ones.

In the structure of rural-type settlements, one can single out non-agricultural settlements located in rural areas, but in terms of their size they do not meet the established qualification of urban settlements; various types of settlements for workers of industrial enterprises, means of communication, builders at new buildings; timber industry and forest protection, fishing and hunting and fishing villages, scientific stations, permanent (at observatories, meteorological stations, etc.) or temporary (bases of exploration parties, expeditions), health care institutions, summer cottages, suburban residential. All this suggests that the stratification structure of the rural population is no less diverse and complex than that of the urban population.

rural lifestyle

Ø In rural settlements, less developed labor prevails in social production, lagging behind in terms of the degree of mechanization and power supply. It is subject to the rhythms and cycles of nature. The unity of work and life is preserved, the need for work in the household subsidiary farm.

Ø Interpersonal relations in the village are specific. Socially and nationally homogeneous families predominate here, there is no anonymity of communication, and social roles are poorly formalized. Strong social control of the community over the behavior of people is of great importance.

Ø The rhythm of life in the countryside is predominantly less stressful compared to the city, a person experiences less psychological stress, uses simpler forms of communication.

Ø Compared to the urban lifestyle, the rural lifestyle provides fewer opportunities to choose not only forms of employment, but also ways to spend leisure time.

3. General scheme of resettlement on the territory of Russia.

The supporting frame of settlement is a network of the most significant settlements of a certain territory and transport communications connecting them. The key elements of the supporting frame of the country's settlement are, as a rule, large cities and urban agglomerations, combining the functions of organizing and comprehensively servicing the surrounding territories.

Among the main features of the living space of Russia stand out: the vastness of the territory, the severity of natural conditions, the multinational population.

One of the most characteristic features of modern urbanization in Russia is the development of polarization processes in settlement. The population is concentrated in the nodal centers along the main transport routes, which, together with the main centers, form the supporting frame of settlement and the territorial structure of the economy. The process of urbanization, which previously took place in the country at an intensive pace, practically stopped in the last intercensal period: the ratio of urban and rural residents remained at the level of 1989 - 73% and 26-27%, respectively (See Appendix 2). Regional differences in the level of urbanization are associated with different times of the beginning of urbanization processes and the nature of the development of the territory. The most urbanized are the old industrial territories around Moscow and St. Petersburg - the European Center and the North-West. The proportion of the urban population is also high in the northern and northeastern regions of new development with extreme natural conditions. In the agrarian south of the country and in the least developed national republics, less affected by industrialization, the share of the urban population in a number of subjects of the Russian Federation does not exceed 40-60%.

The population of the Russian Federation lives in 2940 urban settlements (cities and urban-type settlements) and 142 thousand rural settlements.

More than 90% of the urban population lives in cities, the rest of the urban population lives in urban-type settlements. During the intercensal period, the number of cities increased by 61. An increase in the number of cities and the population in them was noted in the groups of small (up to 50 thousand people), large (from 100 to 250 thousand people) and largest cities - millionaires. Small towns with a population of up to 50,000 people predominate (70% of all cities), but only 17% of city dwellers live in them.

In the inter-main spaces, in the "outback", the population is declining, its density is declining, and the network of settlements is being curtailed. During the intercensal period, the number of rural settlements decreased by almost 11 thousand. This happened due to the elimination and exclusion from the accounting data in accordance with the decisions of the authorities of the constituent entities of the Russian Federation of rural settlements in which the population does not live due to leaving for other (urban or rural ) settlements and natural population decline. Russia remains not only a country of large cities, but also a country of vast rural spaces, a significant part of which is located outside the zones of influence of large centers. In Russia, 65% of rural administrative districts are outside the two-hour reach of cities.

Almost half of all rural settlements in the country are the smallest and smallest, and only 3% of the rural population lives in them. The share of the smallest settlements in the total rural population is gradually decreasing. In 1959 it was about 6%. Modern tiny settlements in the past tended to be fairly large villages, but lost most of their population through migration. Mostly young people left, and today these are “endangered villages”, where the population is predominantly older than working age, where there is no or poorly developed social and economic infrastructure. Most of the houses are abandoned by the residents. People of younger ages (children and grandchildren of modern residents) appear in them only for the summer months, helping their relatives in work on household plots and using the surroundings for recreation. In the coming decades, most of the smallest villages are likely to disappear or turn into summer inhabited dacha settlements.

The largest share of rural residents (almost half) lives in the largest settlements (more than 1000 people), although there are only 5% of the total number of rural settlements in the country. The share of the largest settlements in the total rural population is increasing. In 1959 it was about 30%, in 2010 - 33%. We can say that in Russia there is a stratification and polarization of rural settlements. Settlements of intermediate groups are losing population (small and medium), while large ones are gaining it, gradually replenishing the extreme groups of settlements - the smallest and largest.

The socio-territorial organization of Russian society in the transition period gives rise to many internal problems, which we discussed earlier. But we should not forget about the external - the growing territorial appetites of neighboring countries. The solution of problems depends on the effectiveness and purposefulness of the state's efforts in important areas:

· Reform of the administrative-territorial structure (ATU). A nationwide program is needed to promote and explain the goals and objectives of the reform with the active participation of the media. The reform inevitably brings to the fore new issues of territorial structure and those that need to be resolved for decades, since the formation of the current subjects of the Federation. Therefore, in order to determine the general principles and approaches in matters of adjustment in all parts of the ATU, as it was said, a Constitutional Law on the basic principles of the ATU in the Russian Federation is needed. The need for this law has existed for a long time, since the current legislation does not answer many of the questions that arise, and such a law is simply necessary during the reform.

· Alignment of starting opportunities for deployment of business projects in small and large cities. Taking measures to increase the investment attractiveness of small towns and leveling the conditions for the economic development of different Russian cities. In small towns, special economic conditions can be created - technology parks, industrial zones, innovation centers, legal and patent centers. Venture capital, insured by the state, should come to small towns.

· Development of infrastructure, communication systems between rural settlements. Construction of roads and housing, expansion of modern communication systems, energy and gasification. It is also necessary to stop the process of curtailing the network of state, financial and other institutions serving the territory, located in rural areas, for example, branches of Sberbank and the Russian Post.

· Optimization of the relationship of the settlement structure with the prospects for the development of the education system in Russia, with the definition of types, levels, quantity and quality of educational institutions in different territories.

LITERATURE

1. http://www.gks.ru Official website of the Federal State Statistics Service.

2. Zaborova E.N. City on the verge of centuries. - Yekaterinburg: Ural Publishing House. state economy un-ta, 2007. - 272p.

3. Lappo M.G. Geography of cities. M.: Humanit. Ed. Center VLADOS, 1997. - 480 p.

4. About Russia in the language of numbers / All-Russian population census. Rosstat. 2010

5. Pivovarov Yu. L. Modern urbanism. Lecture course. Moscow: Russian Open University, 1994.

6. Pirogov S.V. Sociology of the city. Tomsk 2003

Test tasks

1. What units of the administrative-territorial structure exist in modern Russia?:

b. province

2. Most of the cities of Russia in terms of population are:

a. millionaires b. small c. medium sized large

3. Rural lifestyle is characterized by:

a. subordination of labor to the cycles of nature

b. employment in industry and services

in. high social control over personal life

d. variety of places of work, leisure, study

4. The following federal districts are distinguished in Russia:

b. Central

in. Siberian

Central

village Privolzhsky

e. (What else, add) …………………………

…………………………………………………………………

5. The process of increasing the role of cities and urban lifestyle in history is:

a. Migration b. urbanization c. gentrification

6. The number of rural population in Russia in recent decades:

a. increases

b. decreases

in. remains unchanged

7. In the history of sociology, the following models of cities stood out:

a. concentric zone model

b. sector model

in. polarization model

d. multiple center model

8. The network of the most significant settlements of the country and the transport communications connecting them are:

a. transport node

b. support frame

in. road junction

9. From the proposed list, select megalopolises:

a. London

b. Shanghai

in. Boswash

Chipitts

Moscow

Terminological dictionary.

Agglomeration- a compact spatial grouping of settlements united by intensive industrial and cultural ties into a complex multicomponent dynamic system. There are monocentric and polycentric agglomerations.

Administrative-territorial division(ATO) - a system of territorial organization of the state, on the basis of which the bodies of state power and administration are formed and function. In the Russian Federation, administrative-territorial units are territories, regions and districts.

Aul- a mountain village in the national republics of the North Caucasus.

City- a settlement with a population of at least 12 thousand people, where about 85% of the population is employed in industry and services.

urban district- an urban settlement that is not part of a municipal district, the local self-government bodies of which have the powers of both a settlement and a municipal district. The status of the city district as a municipality is determined by the Federal Law of October 6, 2003 No. 131-FZ "On the General Principles of Organizing Local Self-Government in the Russian Federation". The territory of an urban district may include one city or one settlement, as well as, in accordance with the master plan for the development of an urban settlement, territories intended to optimize its social, transport and other infrastructure.

Village- in a broad sense - a socio-territorial community, characterized by a small, compared with the city, concentration of the population, mainly engaged in agriculture.

Zaimka ( in Siberia) - a one-yard settlement with an adjacent land plot away from the developed territories.

BUT(Closed administrative-territorial formation) - an urban district within which there is an object for which a special regime for the safe operation and preservation of state secrets is established by the Decree of the President of the Russian Federation.

Megalopolis- the largest form of settlement, formed during the merging of a large number of neighboring urban agglomerations.

Monocentric urban agglomeration- an urban agglomeration that is formed around one large core city.

Lifestyle- the concept reflects the daily life of people and serves to identify the ratio of established, typical and variable, individual characteristics of the life of various people in various fields. The content of the lifestyle is determined by how people live, what they do, what types of activities and interactions with each other fill their lives. Consequently, a way of life is a dynamic socio-cultural "portrait" of the members of society who are part of a particular settlement community.

Polycentric urban agglomeration- an urban agglomeration that has several core cities with their natural areas

Settlement- type of settlement, in terms of population occupying an intermediate position between the city and the village.

Pochinok is a small newly settled village.

Region(from lat. regio - country, region) - a large individual territorial unit (for example, economic, political). Regional - relating to any particular territory (district, region, country, group of countries).

urbanization- the process of spreading urban forms and living conditions to the countryside.

Village- a large village with the status of an administrative center. In the history of Russia, the village differed from the village also by the presence of a church.

village ( in the Russian regions of the North Caucasus) - a large Cossack rural settlement or an administrative-territorial unit that unites several small Cossack villages.

Farm- a single-yard rural settlement, a detached estate with outbuildings and a land plot that is in individual use.

The status of a rural settlement is obtained by one or several rural settlements united by a common territory, taking into account the following criteria:

A) Population criterion:

Rural settlement - one rural settlement (settlement), if its population is more than 1,000 people (for a territory with a high population density - more than 3,000 people) (clause 6, part 1, article 11 of the Federal Law No. 131);

Rural settlement - several rural settlements united by a common territory, if the population in each of them is less than 1000 (for a territory with a high population density - less than 3000 people) (clause 6, part 1, article 11 of the Federal Law No. 131);

Exception: rural settlement - a rural settlement with a population of less than 1000 people, taking into account population density of the subject of the Russian Federation and accessibility of the territory of the settlement(clause 8, part 1, article 11 of the Federal Law No. 131).

Lecture: For a rural settlement, the basic point is the number. Not every territorially united community can claim the status of a municipal formation. i.e., in this case, the population must be more than 1000 people (in some areas this requirement is increased). When this requirement does not apply, see above.

Again, within the territory there must be at least one rural settlement, i.e., the population must be territorially united. If the population is excessively dispersed throughout the territory and a settlement has not been formed, then it is problematic to say that this territory claims to receive the status of a rural settlement.

B) Accessibility criterion for the administrative center of a rural settlement:

Pedestrian accessibility to the administrative center of the settlement and back during the working day for residents of all settlements included in it: the exception is territories with a low density of the rural population, remote and hard-to-reach areas (clause 11, part 1, article 11 of the Federal Law No. 131) .

Lecture: The criterion of transport accessibility. This is one of the most uncertain criteria (as well as the sufficiency of the infrastructure). In fact, it cannot be said that both the municipalities themselves and in the constituent entity of the Russian Federation did not try to think about this topic. In this regard, the State Duma received a number of appeals, on which the State Duma was asked to provide an explanation:

Let's start with the fact that transport accessibility is a category that is not defined in the law. In general, it should be noted that 131-FZ, in principle, does not spoil us with terminology, and in this sense, the concept of the law, that it does not give an understanding of the categories that it uses, is terrible.

The question arose, how to determine transport accessibility? That is, whether we are talking about the accessibility of the administrative center by means of route transport or public transport. In this regard, in a specific request, the question was raised that the rural settlements that are part of the municipality are not sufficiently provided with route transport. How does this relate to the accessibility criterion, is it respected or not? To which the State Duma gave a simple but ingenious answer: the criterion is essentially recommendatory in nature, and local self-government should contribute to the development of route transport.

How this criterion was understood in another MO. They tried to mathematically calculate transport accessibility and take the speed of pedestrian movement as a basis. And in this regard, a question arose for the State Duma - what speed of pedestrian movement should be taken as the basis for calculating transport and pedestrian accessibility to the center of the municipality. The problem is the following - the speed of pedestrians of different ages is different, how to calculate the distance (whether to calculate walking distance taking into account the roads along which the pedestrian will go or to calculate according to the geographical principle - take a map, connect two settlements with a straight line, measure the distance between them and it doesn’t matter what is there 5 km swamp). In this regard, the State Duma gave an answer - the requirements of paragraph 11 of Part 1 of Art. 11 are advisory in nature, so no calculations are required.

è The legislator himself does not imagine what he has established.

Territories with low and high population density

To areas with high density The population includes the territories of the constituent entities of the Russian Federation, individual municipal districts, in which the density of the rural population is more than three times higher than the average density of the rural population in the Russian Federation (part 4 of article 11 of the Federal Law No. 131)

To areas with low density The population includes the territories of the constituent entities of the Russian Federation, individual municipal districts, the density of the rural population in which is more than three times lower than the average density of the rural population in the Russian Federation (part 3 of article 11 of the Federal Law No. 131)

! Decree of the Government of the Russian Federation of May 25, 2004 No. 707-r"On Approval of the Lists of the Subjects of the Russian Federation and Certain Regions of the Subjects of the Russian Federation (within the existing boundaries) belonging to territories with low or high population density"

Municipal area.

The composition of the territory of the municipal district

Municipal areas include the territories of urban and rural settlements, with the exception of urban districts, as well as inter-settlement territories (clause 2, part 1, article 11 of the Federal Law No. 131). In addition, the composition of the municipal district may directly include settlements in territories with low population density and in hard-to-reach areas with a population of less than 100 people that are not endowed with the status of a rural settlement and are not part of the settlement, if the decision to directly enter the district is made on gathering of citizens living in the respective locality (clause 9, part 1, article 11 of the Federal Law No. 131)

Lecture: These are territories of mixed composition and complex. They include both rural and urban settlements, and may also include only rural or only urban settlements. In addition, they include territories that do not have the status of a MO, the so-called. inter-settlement territories - they are included directly in the municipal district and in connection with this, the population that lives in inter-settlement territories has access to local self-government.

Criteria for determining the boundaries of a municipal district (MR)

Clause 11, part 1, article 11 of the Federal Law No. 131:

The need to create conditions for resolving issues of local importance of an inter-settlement nature, as well as for the exercise throughout the territory of the MR of certain state powers transferred by laws (sufficiency of infrastructure)

Transport accessibility to the administrative center of the municipal district and back during the working day for residents of all settlements included in the district (except for areas with low rural population density, remote and hard-to-reach areas) (transport accessibility)

That is, we have norms, some requirements, but they do not allow us to endow the territory suitable status, i.e. today we cannot say with sufficient certainty that this territory is an urban district, this one is an urban settlement, and this one is a municipal district.

The concept of the law is such that the maximum amount of the territory of the Russian Federation is covered by municipal districts and there should be a maximum territorial coverage by a two-level system of local self-government. Therefore, we have municipal districts - this is everything that can be (regardless of what we have with transport accessibility, infrastructure).

There were subjects of the Russian Federation that tried to circumvent this situation. It was Kaliningrad. He went along a very interesting path - he began to endow all municipalities with the status of an urban district and bypass the two-level model of local self-government established by law. From the point of view of the reasonableness of this idea, one can raise the question that not all territories meet the requirements that apply to an urban district. In this regard, the conclusion logically suggests itself that the subject of the Russian Federation is limited in choosing a model of local self-government - today the subject of the Russian Federation does not have the right to choose, everywhere there should be a two-level model, urban districts are rather an exception.

Administrative center

Administrative center of the municipal district- a settlement in which the location of the LSG bodies of the district, and, above all, the district representative body, is established by the law of the constituent entity of the Russian Federation: the status of an administrative center can also be given to a city (settlement) that has the status of an urban district and is located within the boundaries of a municipal district (n .10 part 1 article 11 of the Federal Law No. 131).

It's about the town. A municipal district is always several settlements. Based on this, in order to determine the question of where the authorities of the municipal district are located, it is necessary to establish what is the administrative center.

What is the problem in this situation.

1. We have already noted that when using the term "administrative center" there is a confusion of such categories as administrative-territorial structure and municipal-territorial structure.

2. The administrative center of the MR is an urban district located within the boundaries of a municipal district. That is, it seems that we are talking about the fact that the city district is a MO of the same level as the MR. But it turns out that the administrative center of one municipality is located in another municipality of the same level. In fact, this situation tells us that the status of the city district is being lowered in connection with this, although in theory this should not happen. As for the logic of finding the administrative center of one public unit on the territory of another public unit, we have it at the level of subjects of the federation - the public authorities of the Leningrad Region are located in St. Petersburg. It just so happened historically that the city of Leningrad, and then St. accumulated power functions in relation to both its territory and the territory, which became a municipal district. Or another situation - when a municipal district consists of so many settlements, and small ones, and none of them can claim the status of an administrative center.

The specifics of municipalities in the GFZ.

Types of intracity territories of federal cities

There are 111 intracity municipalities in St. Petersburg:

81 municipal districts,

9 cities,

21 settlements (total 111 municipalities),

Compare: located within the boundaries of 18 administrative districts of St. Petersburg, representing the territorial level of city government

(Art. 2, 7 of the Law of St. Petersburg No. 411-68)

In Moscow: 125 VGT GFZ within the boundaries of 123 districts and 10 AO
(Law of the city of Moscow No. 59 dated October 15, 2003 "On the names and boundaries of intra-city municipalities in the city of Moscow")

The GFZ does not have a second level of local self-government. For the SFZ, there is nothing like a la municipal district. The municipal district is the primary link, as well as the city and the village. Do not confuse municipal district and municipal district. These 111 municipalities are located on the territory of 19 administrative districts of St. Petersburg. An administrative region is the level of state power of a constituent entity of the Russian Federation.

Municipal-territorial transformations in the transition period (October 2003 - March 2005)

Giving the status of pre-existing and newly formed MOs by the laws of the constituent entities of the Russian Federation (Compare: 1757 laws as of 1.10.2006; Leningrad region: 18 laws)

The abolition of the MO, the existence of which did not meet the requirements of the Federal Law No. 131

Change of borders and transformation of MO that existed on 8.10.2003

! Collisions resulting from the application of these procedures in practice

Transformation of municipalities

Transformation of municipalities - procedures related to changing the status of existing municipalities (may be associated with a change in boundaries).

We are talking about changing the status of existing municipalities. This change in status may be due to a change in boundaries.

Types of MO transformations

BUT. Consolidation of municipalities- the merger of two or more municipalities of the same level, as a result of which the previously existing municipalities cease to exist, and a new municipality is created on their territory, or the accession of a lower-level municipality (settlement) to an urban district, as a result of which the settlement loses the status of a municipality education

B. Separation of municipalities- transformation by division of a municipality, as a result of which two or more municipalities are formed, and the divided municipality ceases to exist

The following types of transformations are purely related to status

AT. Change in the status of an urban settlement in connection with granting it the status of an urban district- transformation of the urban settlement and the adjacent municipal district, as a result of which the urban settlement acquires the status of an urban district and is separated from the composition of the municipal district

G. Change in the status of an urban settlement in connection with the deprivation of its status of an urban district- transformation of the urban district and the adjacent municipal district, as a result of which the urban district acquires the status of an urban settlement and is included in the composition of the municipal district

Forms of transformations that are in the law:

Union-Related Transformations

1. Consolidation of settlements within the boundaries of one municipal district (that is, we had, relatively speaking, three settlements in one municipal district, two merged into one - as a result, there were two settlements within the municipal district)

2. Consolidation of the urban district and the settlement.

3. Consolidation of municipal districts

Converting MOs by separating them

1. Division of settlements into two or more settlements

2. Division of the municipality into two or more municipal districts

Change of MO status

1. Transformation of an urban settlement and into an urban district

2. Transformation of the urban district into an urban settlement.

Abolition of the MO - the law focuses on the abolition of rural settlements. With the abolition of urban settlements, there are problems in terms of legal regulation.

And now what is not in the law:

1. It is impossible to unite the settlements of different municipal districts. That is, on the one hand, municipalities have a certain freedom within the framework of territorial transformations (if two settlements decide to unite within one municipal district, agree, the opinion of the population will be duly taken into account, etc., then who will prevent them; in essence this is their business), but if these settlements are located on the territory of two different municipal districts, then no one will allow the creation of a municipality that would be simultaneously within the boundaries of two municipal districts - this is not allowed in our country, and in connection with this, such a transformation in the law and not mentioned.

2. Consolidation of city districts. It is not clear why two municipal districts can be merged, but two urban districts cannot.

3. The law does not include the unification of a municipal district and all its settlements into a single urban district, i.e. it is impossible to move from a municipal district to an urban district in one action (even if there is the desire and consent of all residents of the municipalities that are part of municipal area). Through several transformations, it is still possible, but not in one action.

4. There is no such form in the law as the division of an urban district into two or more urban districts. Why is unclear.

5. It is impossible, based on the lack of legal norms, to divide the urban district into a municipal district and its constituent settlements. You can't do it in one step.

6. The law does not mention the transformation of an urban settlement into a rural settlement and a rural settlement into an urban one (even though the status of an urban settlement can be granted to rural settlements).

è The law does not provide for all forms of territorial transformations that are necessary.

Stages of transformation, abolition, changes in the boundaries of municipalities