In accordance with the Federal Law that 06.10.2003 "On general principles local government in Russian Federation»On the general principles of organizing local self-government in the Russian Federation: Federal Law of October 6, 2003. No. 131-FZ (as amended on December 7, 2011) // Rossiyskaya Gazeta. 2003. October 08; Russian newspaper. 2011. December 10. local self-government has five types of municipalities, in this paper such a type of municipality as a rural settlement will be considered in more detail, i.e. one or more rural areas united by a common territory settlements(settlements, villages, villages, villages, farms, kishlaks, auls and other rural settlements), in which local self-government is carried out by the population directly and (or) through elected and other bodies of local self-government.
As well as the territories of all settlements, with the exception of the territories of urban districts, as well as inter-settlement territories that arise in territories with low population density, are part of municipal districts. The territory of the settlement is made up of the historically established 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.
The composition of the territory of the settlement includes land, regardless of the form of ownership and purpose. The territory of a rural settlement 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 1000 people each (for an area with a high population density - less than 3000 people each). A rural settlement with a population of less than 1000 people, as a rule, is part of the rural settlement Lapin V., Lyubovny V. Reforms of local self-government and the administrative-territorial structure of Russia. // Municipal government. 2011. No. 7. P. 33..
In accordance with the laws of the subject of the Russian Federation On the general principles of organizing local self-government in the Russian Federation: Federal Law of October 06, 2003. No. 131-FZ (as amended on December 07, 2011) // Rossiyskaya Gazeta. 2003. October 08; Russian newspaper. 2011. December 10. the status of a rural settlement, taking into account the population density of a constituent entity of the Russian Federation and the accessibility of the territory of the settlement, may be granted to a rural settlement with a population of less than 1,000 people. In territories with low population density and in hard-to-reach areas, a rural settlement with a population of less than 100 people may not be granted the status of a settlement, and this settlement may not be part of the settlement, if such a decision was made at a gathering of citizens living in the corresponding settlement.
The boundaries of a rural settlement, which includes two or more settlements, as a rule, are established taking into account the pedestrian accessibility to its administrative center and back during the working day for residents of all settlements that are part of it, and the boundaries of the municipal district - taking into account transport accessibility to its administrative center and back during the working day for residents of all settlements included in its composition. These 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.
The main tasks of municipal government in rural areas can be formulated as follows (Fig. 1).
A rural settlement is the level of local self-government most suitable for the implementation of local self-government. Indeed, in the city, not everyone has, as today, the opportunity to see the leaders of the city, region.
Fig.1. The main tasks of municipal government in rural areas Zotov, V.B., Makasheva, Z.M. Municipal management: Textbook for universities. M., 2007. S. 132.
In a rural settlement, the head lives in a neighboring house, and this accessibility of power is extremely important for the development of local self-government due to the fact that the problem that we often have to face is the indifference of residents, disbelief that local governments can - something to decide. But it is precisely the situation when the head lives nearby, you can really consult with him, he is available and is very important.
At the same time, the organization of local self-government must take into account the socio-economic characteristics and potential of settlements in order to properly implement local self-government, correctly, in the sense that efficiency.
The territorial organization, of course, must take into account demographic features, geography, and population migration. Optimization of the municipal territorial organization of local self-government, which is really talked about a lot, should not turn into a society of interests Dementiev A. New reform of local authorities: history and implementation issues // Municipal law. 2011 No. 5. P. 34..
And transformations municipalities should be based on real grounds, which should be guided by, in particular, the sufficiency of this territory for the effective solution of the issue of local importance. One of the features rural settlements is that many residents who live in the countryside, this is especially true when there is a large city nearby, they live in rural areas, work in urban settlements and taxes are paid in urban settlements.
The main sources of replenishment of local budgets (personal property tax, land tax, deductions from personal income tax, UAT, income from the sale of municipal property, rent payments, fines, etc.) are clearly not enough to cope with the full range of powers vested in the settlements.
Those who live in a rural settlement have a small amount of property that can fall under taxation, respectively, it seems that everyone has the same problems. Although the question of insufficient filling of local budgets, it is typical for everyone: for urban, for rural settlements, it is quite obvious.
The situation with a very modest tax base is further complicated by the procedure for collecting taxes (from the absence of tax workers in the field to the difficulty of paying receipts). For example, there is a difficult situation with the tax on property of individuals, because. there is no mechanism, no law establishing responsibility for not registering the right of ownership. Accordingly, the unformed ownership of property excludes this property from the taxable base. The authorities have no other levers, except for the method of persuasion, but its effectiveness is not high. Yashin N., Grishunin I. Management of expenditures of the budgets of administrative-territorial entities. // Official. 2011. No. 8 P.25..
Due to the fact that the registration of ownership of the property of the population is declarative in nature, the registration of ownership is mainly carried out by those who need to sell property, that is, those who are forced to do this (usually the population is reluctant to do this), however, some district authorities were able to interest the population. Someone is helped financially to carry out land surveying, registration of property rights, for someone they carry out explanatory work (door to door) - these activities are paid from the local budget.
The financial situation of municipalities indicates that in almost all constituent entities of the Russian Federation, local budget revenues do not meet the needs of local governments for the exercise of their own powers, the implementation of capital investments for the development and modernization of housing and communal services, education, healthcare and other social facilities. infrastructure. The current legislation has led to the fact that the well-being of municipalities, especially urban and rural settlements, practically does not depend on the development of the economy in their territories. Most activity taxes legal entities practically does not get into local budgets Yashin N., Grishunin I. Management of expenses of budgets of administrative-territorial formations. // Official. 2011. No. 8 С.26.. It should be noted that the population is not well informed about the content of legislation in the field of local self-government, and the legislation itself still contains many conflicts. Overcoming this situation is facilitated by the restoration of the institution of strategic planning of the work of local authorities. The point is not in the name of this institution, it can be both a socio-economic development plan and a strategic development plan, but in any case, local authorities acquire the skills not only to plan their work, but also master the technologies for managing the development process, improving that body or that territory to which the powers of that authority apply. To develop a program for the development of the territory of the municipality, it is advisable to use the following algorithm:
Preparation and analysis of information on the role of the municipality in the region;
Comparative assessment of the resource and socio-economic potential of municipalities;
Identification of development problems requiring decision-making at the regional level;
Development of a system of priorities for solving problems of the municipality;
Development of an extrapolation forecast for the development of the municipality, taking into account trends in the global, national and regional socio-economic systems;
Development of the concept and strategic directions for the development of the municipality within the framework of the concept of the development of the region;
Development of a target forecast for the development of the municipality in accordance with the selected priorities and strategic directions;
Development of a set of program activities to achieve the goals and objectives of the program;
Formation of investment projects, business plans for priority projects;
Development of mechanisms for the implementation of the program;
Resource support of the program;
Distribution of functions and coordination of the program implementation process;
Predictive assessment of the results and effectiveness of the program.
Filippov Yu., Gassiy V. The development of local communities is the way to the future of Russia. // Municipal authority. 2010. No. 6. P. 24.:
Creation of organizational structures with the definition of forms of participation of the administrations of the region, the municipality and the involved enterprises, organizations, institutions;
Selection and support of investment projects that contribute to solving the problems outlined in the program;
Determination of the algorithm for the implementation of activities;
Financial support, sources, conditions for the provision and return of financial resources;
Information and personnel support for the implementation of the program.
Features of local self-government in municipalities - rural settlements determine the need for their interaction with agricultural producers of the territory, operating in rural areas.
Local self-government and agricultural producers of the municipality are initially inextricably linked, since the specifics of interaction between the municipal government and agricultural producers is based on the fact that the village, being a place of work, is also a place of residence for the villagers. The specifics of a municipality - a rural settlement determines the features of managing a municipality of this type, and is fundamentally different from the management of both a small town and a metropolis, and has features of an economic and managerial nature. These are: "scatteredness" of the territory, remoteness of border settlements from the regional center, in connection with which - the slowness of the "feedback" between the subject and object of management, the loss of dynamism of managerial influence, the absence or a small proportion of industrial enterprises, dominated by economic entities - agricultural producers, in in the best case, there are 1-2 enterprises of the processing industry due to the prevailing disparity in prices for industrial and agricultural products - low incomes of rural producers, a significant number of agricultural enterprises with signs of bankruptcy, as a result - low level of municipal budgets' own incomes low share of small businesses, unattractiveness of rural settlements for small businesses, especially those working in the service sector, trade, low income of citizens in the countryside, lack of highly qualified personnel, a limited circle of employers ( budget institutions, 1-2 agricultural producers) a high degree of unemployment (the bankruptcy of an agricultural enterprise often leads to unemployment of a rural settlement as a whole) a low level of socio-cultural services for the population social and cultural services for the population of rural areas, the need to maintain the entire complex of municipal institutions in each settlement, regardless of the number of residents (village council - school - Kindergarten- a house of culture - a feldsher-midwife station), a high load on transport access to all settlements of the region without exception, the need to maintain an extensive transport network to ensure communication with settlements Pronina L. Local self-government in Russia: to new adventures // Local self-government. 2011. No. 15. P. 21..
The above characteristics of rural settlements create additional difficulties in ensuring the life of rural areas, the standard of living in which is much lower than even in small towns - regional centers. This determines the specifics of management and the need for interaction between local governments and agricultural producers of the territory to ensure the existence of rural settlements.
Agricultural producers of various organizational and legal forms are the main economic entities in the municipality - a rural settlement. The presence and degree of development of agricultural entrepreneurship of various organizational and legal forms contribute to the employment of the rural population in villages and villages, and, as a result, reduce the migration of the rural population from the village to the city, ensure tax revenues to the budget of the region, food security of the region and, in general, ensure the very existence small settlements. While the main functions of providing housing and communal and socio-cultural services to the rural population are entrusted to local self-government.
As a rule, in a rural settlement, the employer is one large agricultural enterprise and several peasant farms, on the effectiveness of the financial and economic activities of which the life of the villagers of a particular territory directly depends.
As experience shows, the more successfully the subjects of agrarian entrepreneurship function, the higher the standard of living of citizens, which confirms the experience of managing and the relatively higher standard of living of the villagers.
Local self-government bodies of rural settlements can be assigned the role of an instrument for the implementation of a priority national project and regional programs for the development of the agrarian complex. 2010. No. 22. P.6..
Municipal rural programs are developed taking into account the provisions of federal and regional programs, as well as the powers of local governments to regulate the agro-industrial complex. When developing and implementing programs, local governments interact with enterprises and organizations that carry out basic, auxiliary and service processes in a single system for the production of agricultural goods.
The formation of competitive vertically integrated structures of the agro-industrial complex requires a revision of the methods of legal, organizational, economic and socio-psychological influence. This requires high professionalism of personnel, including at the municipal level. Particular attention should be paid to the task of training management teams of municipal districts and rural settlements in the form of strategic trainings that allow developing sustainable skills to work in project modes of change and realize competitive advantages.
Goals, objectives, functions, organizational structure, management methods, financial and credit and personnel policy of rural municipalities must constantly adapt to various stages of the implementation of programs for the development of the agro-industrial complex.
Along with supporting the agro-industrial complex, the support of small businesses is of great importance for the rural economy, especially in the areas of trade, public catering, and consumer services. Development consumer cooperation can positively affect the organization of purchases, processing and marketing of agricultural products, especially personal subsidiary farms and farms. This task should be one of the priorities for local self-government bodies of both rural settlements and municipal districts. 2010. No. 22. P.7..
It is carried out by the population directly and (or) through elected and other bodies of local self-government. The rural settlement is part of the municipal district.
A rural settlement is one of the types of municipalities in Russia provided for by the municipal reform.
The territory of a rural settlement 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 1000 people each (for an area with a high population density - less than 3000 people each).
Sources
see also
- Rural settlements in Russia by population
Wikimedia Foundation. 2010 .
- rural teacher
- rural bank
See what "Rural settlements" is in other dictionaries:
RURAL SETTLEMENTS- RURAL SETTLEMENTS, all settlements that do not correspond to the country's understanding of urban settlements; all settlements located in rural areas. They are divided into three bases. type 1) with. X. settlements; in the USSR among them ... ... Demographic Encyclopedic Dictionary
RURAL SETTLEMENTS Big Encyclopedic Dictionary
Rural settlements- settlements that do not meet the criteria established in the country for urban settlements. Rural settlements include (regardless of population) points whose inhabitants are mainly engaged in agriculture or forestry, ... ... Political science. Dictionary.
Rural settlements- settlements or settlements that do not meet the criteria established in a given country for urban settlements (See Urban settlements). Populated areas (regardless of their population) are classified as S. in which residents are employed ... ... Great Soviet Encyclopedia
rural settlements- settlements that do not meet the criteria established in the country for urban settlements. Rural settlements include (regardless of population) points whose inhabitants are mainly engaged in agriculture or forestry, ... ... encyclopedic Dictionary
rural settlements- 3.22 rural settlements: Villages, settlement centers, production sites, zaimkas, etc. Source: TSN 31 328 2004: Comprehensive schools. The Republic of Sakha (Yakutia) … Dictionary-reference book of terms of normative and technical documentation
Flags of the Krasnodar Territory (rural settlements)- Flags of rural settlements of the Krasnodar Territory of the Russian Federation. At the beginning of 2011 in Krasnodar Territory There were 352 municipalities with the status of a rural settlement. Current flags ... Wikipedia
Flags of the Moscow region (rural settlements)- This article is about the flags of rural settlements in the Moscow region. For the flags of urban districts, municipal districts and urban settlements, see Flags of the Moscow Region. Flags of rural settlements of the Moscow region of the Russian Federation ... Wikipedia
Flags of the Volgograd region (rural settlements)- See also Flags of urban districts, municipal districts and urban settlements of the Volgograd region Flags of rural settlements of the Volgograd region of the Russian Federation. Current flags ... Wikipedia
Flags of the Leningrad region (rural settlements)- Main article: Flags of municipal districts and urban settlements of the Leningrad Region Flags of rural settlements of the Leningrad Region of the Russian Federation. Current flags ... Wikipedia
Books
- Ancient Russia. City, castle, village, . The book is the first semi-volume of a two-volume edition devoted to archeology. Ancient Russia IX-XIV centuries On the mass material of clothing Russian antiquities, studied by the methods of multi-aspect ...
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 subject 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 pedestrian speed 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, 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 (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 subjects of the Russian Federation and certain areas of subjects of the Russian Federation (within the existing boundaries), related 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 the choice of 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 local self-government 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 reduced 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. Petersburg, was the center certain territory and in this context, the situation described in the law is most likely due to the fact that the municipality, which received the status of an urban district, at one time also accumulated power functions in relation to both its territory and the territory that 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
IN. 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 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 - we do not allow this 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 (and, after all, rural settlements can be granted the status of an urban settlement).
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
Afanasiev A.A.
12.3. CONCEPT AND FORMAL LEGAL SIGNS OF RURAL SETTLEMENTS: TERRITORY, POPULATION, LEGAL REGIME
Afanasiev Alexander Alexandrovich, Ph.D. legal Sciences. Position: associate professor. Place of employment: Omsk Law Academy. Subdivision: Department of Constitutional and Administrative Law. Email: [email protected]
Annotation: The article highlights the formal legal features of a rural settlement: territory, population, legal regime. Based on them, the essence of a rural settlement as a social and legal phenomenon is determined.
Key words: territory, population, state, rural settlement, legal regulation, public administration, local self-government.
THE CONCEPT AND THE FORMAL-LEGAL CHARACTERISTICS OF RURAL SETTLEMENTS: THE TERRITORY, THE POPULATION, THE LEGAL REGIME
Afanasyev Alexander Alexaderovich, PhD at law. Position: associate professor. Place of employment: Omsk law academy. Department: constitutional and administrative law chair. Email: [email protected]
Abstract: The article considers the formal-legal characteristics of a rural settlement: the territory, the population, the legal regime. On their basis determined by the nature of rural settlement as a socio-legal phenomenon. Keywords: the territory, the population, the state, rural settlement, legal regulation, state government, local government.
Rural life as a subject of legal regulation is a single set of social relations - economic, social, power, natural-environmental and historical-cultural, aimed at ensuring life, improving the quality of life and developing the territory of residence of the population of rural settlements, conditions for expanded agricultural production and personal management. subsidiary plots, as well as to improve the efficiency of state and municipal authorities in the implementation public policy in relation to the village. Without understanding a rural settlement as a socio-legal phenomenon, it is impossible to talk about the legal regulation of rural life for the purpose of sustainable integrated socio-economic development of the rural territory of Russia. To determine the essence of a rural settlement, it is necessary to single out its formal
legal features, which in their unity form its formula.
Rural settlements are part of the state territory of the Russian Federation (rural territory), where the population is characterized by a rural lifestyle. In the Dictionary of the Russian Language S.I. Ozhegov, a settlement is understood as a settlement, as well as in general a place where someone lives, lives.1
In the legislation of the Russian Federation (hereinafter referred to as the RF), any territory is characterized by a specific
1 Ozhegov S.I. and Shvedova N.Yu. Dictionary Russian language. M., 2006. S. 567.
spatial criteria: 1) dimensions, i.e. total area; 2) length from north to south and from east to west; 3) compactness, i.e. concentration in a single whole; 4) climatic conditions; 5) population (number and density of the population, its distribution in separate areas); 6) category of land (settlements, forests, swamps, agricultural, etc.); 7) soil properties (fertility, etc.); 8) the nature of the subsoil and the degree of their development.
The Concept of Sustainable Development of Rural Territories of the Russian Federation for the period up to 20202 defines the concept of "rural territories" - the territories of rural settlements and the corresponding inter-settlement territories. The following concepts are also used here: "inter-settlement territories" - territories located outside the boundaries of settlements; "rural settlement" - one or more rural settlements united by a common territory (settlements, villages, villages, villages, farms, kishlaks, auls and other rural settlements), in which local self-government is carried out by the population directly and (or) through elected and other local governments; "rural settlements" - settlements, villages, villages, villages, villages, auls, farms and other rural settlements, classified, regardless of the number of people living in them, as rural settlements by the administrative-territorial division established in the constituent entities of the Russian Federation; they can seasonally accommodate a significant number of urban residents.
In the Constitution of the Russian Federation and a number of federal laws, all settlements of our state are divided into urban and rural. At the same time, in the All-Russian classifier of objects of administrative-territorial division OK 019-95, put into effect on January 1, 19973, settlements are delimited into three levels: cities (federal, regional (krai, republican) district subordination), urban-type settlements and rural settlements. However, it must be recognized that the term "rural" usually has a territorial focus, regardless of the predominance of agricultural or related activities.
In accordance with Art. 2 of the Federal Law of October 6, 2003 No. 131-FZ "On the General Principles of Organization of Local Self-Government in the Russian Federation"4 (hereinafter - the Federal Law No. 131-FZ of 2003), the concept of a rural settlement denotes a type of municipality, the territorial boundaries of which include: lands of settlements, and lands of other categories located within the boundaries of a given municipality. Inter-settlement territories are assigned to the jurisdiction of another municipal formation - a municipal district. These territories provide solutions to issues of local importance of an inter-settlement nature in order to develop them, create attractiveness for life and work. The authority of the municipal district ensures the construction and maintenance of inter-settlement roads, power lines, gas and water pipelines, and more.
2 Decree of the Government of the Russian Federation of November 30, 2010 No. 2136-r // СЗ RF. 2010. No. 50. Art. 6748.
3 See: Decree of the State Standard of Russia dated July 31, 1995 No. 413 // M., IPK Publishing House of Standards, 1997 (volume 3).
4 SZ RF. 2003. No. 40. Art. 3822.
IN scientific literature It is noted that the laws of the constituent entities of the Russian Federation, whose powers include issues of administrative-territorial division (the basis of state power), and federal legislation regulating the territorial structure of local self-government (the basis of the organization of municipal power), do not provide a unified approach to the classification of settlements and rural areas. five
For example, in accordance with Decree of the Government of the Republic of Bashkortostan dated June 11, 2003 No. 141 "On the republican target program "Social Development of the Village in the Republic of Bashkortostan until 2013"6, rural areas are understood to be rural settlements or rural settlements and inter-settlement territories united by a common the territory within the boundaries of the municipal district, as well as rural settlements and workers' settlements that are part of urban settlements or urban districts, on the territory of which activities related to the production and processing of agricultural products predominate.
The legislation of most subjects of the Russian Federation within the framework of the administrative-territorial structure distinguishes cities, workers' settlements, summer cottages and resort settlements, rural settlements. A rural settlement is a village, village, aul, farm and other settlements that are not classified as urban settlements, workers' settlements, summer cottages and resort settlements, and whose inhabitants lead a rural lifestyle. In a number of subjects, a gradation of rural settlements has been established depending on the number of residents.
For example, in the Omsk region, in accordance with Part 2 of. 14 of the Law of the Omsk Region dated October 15, 2003 No. 467-03 "On the administrative-territorial structure of the Omsk region and the procedure for changing it" 7 settlements (settlements) in the Omsk region are divided into urban (cities, workers and summer cottages) and rural (villages , settlements, villages, auls, farms, zaimki and other) settlements. When subdividing settlements (settlements) in the Omsk region into types, the features of settlements are taken into account, incl. their population, scientifically
production specialization of these settlements, as well as their importance in the system of population resettlement and the administrative-territorial structure of the Omsk region (part 1 of 14). In accordance with from. 1 a rural settlement is a settlement (village, settlement, village, aul, farm and others), which is not classified as an urban settlement, and a rural district is a territorial entity of the Omsk Region that has an administrative center, which includes one or more geographically and economically united rural settlements, together with adjacent lands necessary for the development and maintenance of these settlements. At the same time, the assignment of settlements to the category of cities in accordance with Art. 15, 16 is carried out by the law of the Omsk region. To the category of cities
5 See, for example: Anisimov A.P. Actual problems of the legal regime of lands of settlements in the Russian Federation: Monograph. M., 2010. S. 9-23; Minina E.L. Legal regulation of sustainable development of rural areas // Journal Russian law. 2009. No. 12. S. 36-37.
6 Gazette of the State Assembly - Kurultai, President and Government of the Republic of Bashkortostan. 2003. No. 12(168).
Regional significance can be attributed to the largest, large and large cities located on the territory of the Omsk region and being economic and cultural centers and having a developed industry. As an exception, the law of the Omsk region may include medium and small towns, which are economic and cultural centers, with developed industry and prospects, as an exception to the category of cities of regional significance. further development and population growth. The assignment of settlements to the category of workers' settlements and summer cottages is carried out by the law of the Omsk Region. The category of workers' settlements may include settlements on the territory of which there are industrial enterprises, construction sites, railway junctions, hydraulic structures, enterprises for the production and processing of agricultural products and other economically important objects, with a population of at least 3 thousand people, of which workers, employees and members of their families make up at least 85 percent, as well as settlements on the territory of which higher educational institutions and research organizations are located. In some cases, the category of workers' settlements may include settlements with a population of less than 3 thousand people, with the prospect of further economic and social development and population growth. The category of holiday villages can include settlements, the main purpose of which is to serve the population of cities as sanatorium centers or places of summer recreation. Dacha settlements do not lose their character if part of the population lives permanently in them. Settlements of temporary importance and a non-permanent composition of the population and which are objects of official purpose in the corresponding sector of the economy (railway booths, houses of foresters, buoy workers, weather stations, field camps, apiaries, gatehouses, checkpoints, barracks, cordons, etc.), as well as single houses do not constitute independent settlements and are subject to inclusion in the composition of settlements with which these settlements are connected in administrative, industrial or territorial relations.
The problem of classifying settlements as urban or rural is reflected in legal science. So A.P. Anisimov offers modern scientific legal concept settlement as part of the territory of Russia, which has a name, concentrated development and serves as a place of residence for people, divided into urban and rural settlements.8
It should be noted some differences in the definition of this concept in Russian and foreign practice. Thus, the documents of the World Trade Organization include rural areas outside the zone of large cities, where the economy is based on traditional occupations for the rural population, local industries, and the use of natural resources. This definition shows that in foreign countries, as a rule, small towns (with a population of
8 Anisimov A.P. Actual problems of the legal regime of lands of settlements in the Russian Federation: Monograph. M., 2010. S. 23.
LEGAL FEATURES OF RURAL SETTLEMENTS
Afanasiev A.A.
up to 250 thousand people), which are the centers of these territories, in which a significant part of the processing of agricultural products is usually concentrated.
Based on the foregoing, the rural territory of the Russian Federation is the territory of rural settlements within the boundaries of this type of municipality, where a complex of specific social relations (rural life) is formed and operates, aimed at ensuring the vital activity and sustainable development of the territory of residence of rural residents, as well as inter-settlement territories of municipal districts. This territory of the state needs special attention in order to preserve the moral and cultural traditions of the peasantry, the economic and social foundations of Russia. In rural settlements, where rural people live, the vast majority of socio-economic problems are concentrated, in the solution of which the law should show its regulatory function. The development of inter-settlement territories (construction of inter-settlement roads, laying of power lines, main gas and water pipelines, etc.) is important for the functioning of the corresponding infrastructure of the village in order to ensure its attractiveness for life and work. The territory of a rural settlement has specific spatial criteria (total area, length from north to south and from east to west, geographical position on the map, climatic conditions, population, landscape features, fertility and other properties of the soil, the nature of the subsoil and the degree of their development).
In modern scientific legal literature, when considering the features of settlements in the framework of the study of local self-government, integrating signs are distinguished not only of a specific spatial nature (relating to the territory of the municipality), but also of a clearly non-spatial nature. First of all, they include the local population.
A.A. Uvarov sees in the local population not just a group of people living in a certain territory, in which only labor, property, age and other quantitative characteristics of people are important, but a category of a socially active volitional subject that has its own functional and purposeful purpose and independently organizes its life activity.9
A.N. Kostyukov refers to the design elements of the concept of local self-government as the population (a mandatory collective subject of local self-government), local issues related to the direct provision of the population’s livelihoods (object of management), and the content of activities for the implementation of local self-government (municipal legal relations).10 To the design elements of the concept of settlement associated with the implementation of local self-government in rural areas, he refers to the populated area, concentrated development, the presence of boundaries and highlights in it specifically for the rural settlement a specific feature - the sphere of predominant application of labor - agricultural production. In accordance with Federal Law No. 131-FZ of 2003, taking into account the opinion of the population is one
9 Uvarov A.A. Local self-government in Russia. M., 2006. S.
10 Kostyukov A.N. Municipal law as a branch of law. Monograph. M., 2003. S. 144.
him from the basic principles of the territorial organization of local self-government, primarily in the establishment and change of boundaries, the transformation of municipalities.
A.A. Salomatkin identifies as elements of the legal status of the population of rural areas in the Russian Federation: 1) the presence of citizenship of the Russian Federation; 2) the achievement by a citizen of the Russian Federation of the age of 18 and, in connection with this, the acquisition of legal personality, including active suffrage; 3) the presence of permanent or predominant residence in rural areas in the Russian Federation.11 Some authors, when characterizing the rural population, distinguish such socio-psychological features as greater public opinion, the presence of social control, more simplified forms of communication, and others.11 12
The concept of sustainable development of rural territories of the Russian Federation for the period up to 2020 defines the concept of "rural population" - residents permanently residing in the entire set of rural settlements.
In our opinion, the concept of "local self-government of a rural settlement" does not coincide with the concept of "population of a rural settlement" and acts in relation to it control system. With the help of this system, the population of a rural settlement exercises its rights through: 1) the use of forms of direct implementation by the population of local self-government and the participation of the population in the implementation of local self-government on the basis of Art. 22-33 of Federal Law No. 131-FZ of 2003
(referendums, elections, territorial public self-government and other forms) and 2) public representation of the local population, acting in the form of local governments (dated 34 of Federal Law No. 131-FZ of 2003). In legislation, scientific literature, when characterizing certain legal institutions the concepts of "people" and "population" often have an identical meaning. At the same time, when it comes to the state, the word "people" is used to a greater extent, and to characterize local self-government - "population" or "local population", "rural population" as part of the people living in a certain territory. The European Charter of Local Self-Government, ratified by the Federal Law of April 11, 1998 No. 55-FZ "On Ratification of the European Charter of Local Self-Government"13, defines local self-government as the right and real ability of local self-government bodies to regulate and manage a significant part of public affairs, acting within the framework of law, in accordance with its competence and in the interests of the local population.
In accordance with from. 1 of the Federal Law No. 131-FZ of 2003, local self-government is a form of exercise by the people of their power, which ensures, within the limits established by the Constitution of the Russian Federation, federal laws, and in cases established by federal laws, the laws of the constituent entities of the Russian Federation, independently and under their own responsibility decide
11 Salomatkin A.A. Local self-government in rural settlements of Russia. Questions of theory and practice. Chelyabinsk, 1999, p. 36.
12 See, for example: Artamonov A.D. et al. Politics for the development of rural territories in Russia: settlements of the XXI century. Tambov, 2005. S.15-16.
13 SZ RF. 1998. No. 15. Art. 1695.
Gaps in Russian legislation
the population directly and (or) through local self-government bodies of issues of local importance, based on the interests of the population, taking into account historical and other local traditions. Based on the content of Art. 3 of the Constitution of the Russian Federation, we can make an unambiguous conclusion that the people act as a subject of state power as a single entity throughout the country. When it comes to a part of this whole - about the population (local population, rural population), then it is necessary to speak only about the power of non-state, the power of local self-government. The people are the only source of state power and sovereignty, and therefore, next to the words "state", "state power" it is legally justified to use this particular term. This position deserves, in our opinion, a more detailed consolidation at the legislative level.
Foreign citizens and stateless persons permanently residing in the territory of a municipality have limited legal personality in municipal legal relations. In particular, they have the right to participate in territorial public self-government, receive information about the activities of local self-government bodies, get acquainted with the legal acts of local self-government bodies affecting their rights and freedoms, participate in rallies, processions, and pickets. At the same time, stateless persons cannot participate in municipal elections, in a local referendum. In some cases, on the basis of international treaties of the Russian Federation and in the manner prescribed by law, Foreign citizens, constantly
residing on the territory of the municipal formation, have the right to elect and be elected to the bodies of local self-government of the municipal formation, to participate in other electoral actions in these elections on the same conditions as citizens of the Russian Federation.
The population of rural settlements can also be identified according to other conditions, forms and quality indicators of people's vital activity, which in modern literature are united under a common definition - a rural way of life. In addition to the above criterion as predominantly agricultural labor, it is characterized by a historically established specific form of labor, domestic and sociocultural relations, manifested in the community of interests of the villagers and stereotypes. social behavior. The subjects of the rural way of life are individuals united in a rural socio-territorial community. They are also united by: the specifics of employment; demographic behavior; forms of communication, customs and traditions; living conditions, education and culture; opportunities for external and internal communication, etc. The structure of the rural way of life is made up of such indicators as: standard of living - the degree of satisfaction of the material and cultural needs of the villagers; lifestyle - a set of patterns of everyday behavior inherent in a given socio-demographic group; quality of life - the level of received medical, household, educational and cultural services, the state of social security of individuals. The specificity of the rural way of life is manifested in its inseparability from the economy, in the low dissection of everyday life, everyday life, personal farming and participation in social production. The formation of the population of a rural settlement is influenced by
Vie weather and climatic conditions, the spatial dispersal of people, the cyclical nature of the labor process, when periods of great physical stress are replaced by a relative lack of demand for labor. Everyday communication with the natural environment contributes to maintaining the commitment of the villagers to established traditions and norms, forming a certain conservatism of thinking and behavior.
Summarizing what has been said, the population of rural settlements (rural population) can rightfully be attributed to the main elements of the construction of the concept of a rural settlement, which determines its specificity. The population of rural settlements, in our opinion, can be characterized by the following features: 1) permanent or predominant residence in a separate rural area; 2) the occupation of the majority of the population is associated with agriculture; 3) relatively low density and population; 4) the main issues of direct support for the life of the population (issues of local importance) of a rural settlement are regulated by municipal legal acts; 5) from time to time, the population acts as a political community expressing its will, both in resolving issues of local importance of a rural settlement, and in participating in the exercise of state power (residents must have the status of a voter established by law); 6) a stable psychological idea of the population about unity in a community based on a sense of belonging, ownership, responsibility, production, historical and cultural traditions; 7) common infrastructure providing daily social and economic needs residents.
In order to determine the integrating features that characterize a rural settlement, the definition of "sustainable development of rural areas" deserves attention. In the Concept of sustainable development of rural areas of the Russian Federation for the period up to 2020, the sustainable development of rural areas is defined as follows: stable social
economic development of rural areas, an increase in the volume of agricultural and fish production, an increase in the efficiency of agriculture and the fishery complex, the achievement of full employment of the rural population and an increase in their standard of living, the rational use of land, the main goal of the long-term
socio-economic policy of the Russian Federation.
In the scientific literature, sustainable development is understood as a process of change in which the use of natural resources, investment and orientation of scientific and technological development, the development of the human personality are the main and mandatory, coordinated with each other and strengthen the current and future potential to meet human needs and aspirations. In many ways, it is about ensuring the quality of life of people.
Consequently, the analysis of legislation and scientific works shows that when referring a settlement to a certain type, attention is primarily drawn to two main features: territory and population. To a lesser extent, attention is paid to the specialization of the activities of the majority of the rural population.
LEGAL FEATURES OF RURAL SETTLEMENTS
Afanasiev A.A.
The most important element in the analysis of the concept of "rural settlement" is the power acting in the given territory and the legal regime established by it in the given territory.
Any territory of the state objectively represents the spatial limits on which political power is exercised.
In the rural territory of Russia, both forms of political power operate - state power and local self-government.
State power and local self-government, in accordance with the Constitution of the Russian Federation, are two forms of political power that are exercised in the respective territories.
Fairly noting that any community of people implies a relationship of power - subordination, S.N. Baburin defines power as a social relation, which is characterized by the ability and ability of one person or group of people to
the exercise of one's will over other people. Speaking about the possibility of one person or a group of persons to achieve the implementation of their will over other people, it is necessary to pay attention to the most important methodological conclusion that we find in the scientific works of A. I. Ekimov that any will has a purposeful character, and for the purposes pursued with the help of legal norms, reflects the synthesis of interests and values.14 15
The main indicator of the territory, which makes it possible to distinguish between its types, was and remains the legal regime existing on it (or the mechanism for exercising power).
The concept of a legal regime practically coincides with the concept of a system of law, if we consider the relations of citizens, organizations in connection with certain objects (property regime, regime of natural objects, regime of service, etc.).16 17
In relation to the rural area as part of the state territory, the state legal regime operates in the form of an administrative-legal regime, reflecting the specifics of the object of administrative-legal influence and the administrative-legal means used for this.1
It is necessary to distinguish between the effect of two types of state-legal regulation (regime) on the territory of a rural settlement according to the criterion of attitude towards state authorities of the Russian Federation and a constituent entity of the Russian Federation: state-legal regulation (regime) at the federal level and state-legal regulation (regime) of constituent entities of the Russian Federation.
Recognizing the special legal status rural territory, and hence its special legal regime, the state in the Concept of sustainable development of rural areas of the Russian Federation for the period up to 2020, when defining the concept of "rural settlement", one of the main criteria determined the presence in the given territory of local self-government of one or
14 Baburin S.N. The world of empires: the territory of the state and the world order. M., 2010. S. 21.
15 Ekimov A.I. Law, values and interests // Scientific works of the Russian State University of Trade and Economics. M., 2004. S. 314-316, 327-328.
16 Bahrakh D.N. Administrative law of Russia. M., 2000. S. 410.
17 See: Rushailo V.B. Administrative and Legal Regimes: Monograph. M., 2000. S. 15; Baburin S.N. The world of empires: the territory of the state and the world order. M., 2010. S. 23, 24; Kostyukov A.N.
Municipal law as a branch of Russian law. M., 2003. S. 110-130.
several rural settlements united by a common territory (settlements, villages, villages, villages, farms, kishlaks, auls and other rural settlements), in which local self-government is carried out by the population directly and (or) through elected and other bodies of local self-government.
In a rural settlement, the local population exercises political power in the form of local self-government. In rural areas, issues of local importance in the interests of the rural population are resolved by two types of municipalities - local governments of rural settlements (where people live directly) and local governments of the municipal district (in inter-settlement territories), which includes the corresponding rural settlements on the basis of the Federal Law No. 131-FZ of 2003. The closest authority is the local self-government of the rural settlement, which is obliged to resolve the most important issues of the life of the villagers. The main sources of income for the local budget are local taxes and fees from the activities of the local (rural) population, state grants and subventions, financial support of the municipal district.
The operation of the municipal legal regime in rural areas is logical and justified also from the point of view of the responsibility of local governments for the management and regulation of local affairs. Indeed, in the absence of the possibility (ability) to implement them, the measures of responsibility become meaningless, and, in turn, without responsibility, the implementation of any powers becomes uncontrollable and uncontrollable, which can lead to legal nihilism and chaos.18
Thus, revealing the concept of a rural settlement as a social and legal phenomenon, along with the characteristics that characterize it - the territory and the rural population, it is necessary to single out the mechanism for exercising power here: state-legal regulation (regime) and municipal legal regulation (regime) of the complex of public relations (rural life) carried out in the interests of the population of the rural settlement.
Bibliography:
1. Anisimov A.P. Actual problems of the legal regime of lands of settlements in the Russian Federation: Monograph. - M.: Yurlitinform, 2010. - 456 p.
2. Artamonov A.D. et al. Politics for the development of rural territories in Russia: settlements of the XXI century. - Tambov: Yulis Publishing LLC, 2005. - 384 p.
3. Afanasiev A.A. Legal regulation of rural life in the Russian Federation: Monograph - Omsk: Publishing house LLC "Omskblankizdat", 2012. - 308 p.
4. Baburin S.N. World of Empires: State Territory and World Order - M.: Master: INFRA-M, 2010. - 829 p.
5. Bakhrakh D.N. Administrative law of Russia. - M.: Publishing house NORMA (Publishing group NORMA-INFRA), 2000. - 640 p.
18 Uvarov A.A. Local self-government in Russia. M., 2006. S. 11-12.
Gaps in Russian legislation
6. Kostyukov A.N. Municipal law as a branch of Russian law: Monograph. - M.: UNITI-DANA, Law and Law, 2003. - 304 p.
7. Minina E.L. Legal regulation of sustainable development of rural areas // Journal of Russian law. - 2009. - No. 12.
8. All-Russian classifier of objects of administrative-territorial division OK 019-95 (approved by the Decree of the State Standard of Russia of July 31, 1995 No. 413) // M., IPK Standards Publishing House, 1997 (volume 3).
9. Ozhegov S.I. and Shvedova N.Yu. Explanatory dictionary of the Russian language: 80,000 words and phraseological expressions / Russian Academy of Sciences. Institute of the Russian Language. V.V. Vinogradova - M.: LLC "A TEMP", 2006. - 944 p.
10. Rushailo V.B. Administrative - legal regimes: Monograph. - M.: Shield-M, 2000. - 263 p.
11. Salomatkin A.A. Local self-government in rural settlements of Russia. Questions of theory and practice. - Chelyabinsk: Law. coll. Chelyab. region, Chelyab. state un-t, 1999. - 216 p.
12. Uvarov A. A. Local government in Russia. -M.: Norma, 2006. - 320 p.
13. Ekimov A.I. Law, values and interests // Scientific works of the Russian State University of Trade and Economics / Collective of authors. -M.: LLC Publishing House "Edinstvo", 2004.
Introduction
Rural settlements, despite the fact that at present in many countries they are often not given due attention in the management activities of governments, for many years and even centuries remain an important and indispensable element of the state. For a long period of history, rural settlements have been the cornerstone of the system of economic, social, demographic, political and other forms of relationships that exists in every state, regardless of its distinctive characteristics and other features. In essence, rural settlements in the form of villages, villages, farming settlements, agricultural communities, farms, kishlaks, auls and other forms have existed throughout almost the entire history of mankind. And throughout almost the entire history of mankind, they play an important role in the development of each state.
Russia's transition to a market economy is taking place in a very difficult situation. Mistakes in the implementation of economic reforms have had a destructive effect on the fundamental foundations of the life of the population: depopulation processes are growing, labor potential is being destroyed, the state of health and the level of education, morality and culture of a significant part of society are declining.
The crisis of the 1990s particularly deeply and sharply affected agriculture and affected the lives of rural workers. The collapse of collective farms and state farms did not lead to the development of fast and profitable farming. The production of agricultural and livestock products has sharply decreased, the employment of peasants and their income have decreased. The material resources of the social sphere have decreased several times, the network of medical and educational institutions, clubs, libraries, cinema installations, etc.
The purpose of this work is to study rural settlements from an organizational point of view, to identify their specific organizational features, differences both within, among themselves, and in comparison with other organizational forms both in modern times and throughout the historical development of these types of formations. Basically, the paper considers the theoretical base, but, in addition to the main research focus, this study also has a purely practical significance. As already stated above, current situation in agriculture on the territory of the Russian Federation is quite difficult and negative for the state content. It is quite obvious that such a specific sector of the economy as agriculture is realized mainly through rural settlements: farms, villages, villages, auls, villages, farms, and so on. It becomes clear that rural settlements are a kind of way, a channel through which the state receives resources (food, labor, industrial crops, and so on) that are so necessary for its existence and development. Therefore, in this work, in addition to theoretical analysis, various, quite practical ways of solving the problems that have arisen, ways out of the current situation are proposed, which, in our opinion, can at least somehow change the situation in our country.
1. Rural settlements as a special organizational form
What, in fact, is such an ancient organizational form as a rural settlement? In different countries, there are many definitions that differ among themselves depending on the political system of states, as well as on national, economic, demographic, social, geographical and other characteristics of countries. The most general definition, which is known to almost every person, is that a rural settlement is a settlement located in a rural area in which the majority of residents work in agriculture. Of course, this definition is the most general one that can be given and does not take into account the peculiarities of different countries.
A more accurate and complete definition of rural settlements is given by modern geographical encyclopedias: “a rural settlement is 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 in terms of population to a city, associated with forestry (forestries and cordons), servicing transport outside cities (small stations, sidings, piers); or - a settlement at individual industrial enterprises, quarries, resorts, recreation areas, settlements of search engines, settlements of a mixed type (agro-industrial settlements) ???”.
Federal Law FZ - 131 "On the General Principles of the Organization of Local Self-Government in the Russian Federation" adopted in Russia State Duma dated September 16, 2003, gives this organizational form the following definition: “a rural settlement is one or more rural settlements united by a common territory (villages, villages, villages, farms, kishlaks, auls and other rural settlements), in which local self-government is exercised population directly and (or) through elected and other bodies of local self-government.
The concept of "rural settlement" appeared when the city and village were distinguished as socio-economic categories. The types and appearance of a rural settlement reflect the level of productive forces and production relations inherent in a given socio-historical formation. At the same time, this type of organizational form is always influenced by the occupations of the villagers (farmers, vine growers, etc.), national traditions and natural conditions, which often determine the location, layout, and size of settlements.
Rural settlements are one of the many organizational forms that exist in modern world: cartels, trusts, associations, conglomerates, urban and other types of territorial entities, as well as many other forms of organizations of one type or another. But at the same time, settlements that exist and develop in rural areas, in an environment that is closest to natural conditions, and often largely dependent on them, represent a completely special type of organizational form, fundamentally different from other types of organizations.
These differences are determined by various factors in the development of rural settlements, both historical and modern. Modern we will consider Historical include the factor that rural settlements are the most ancient organizational form among all existing ones, which has been developing for a very long period of time and has a number of features that have formed over this period. In particular, the structure of building a rural settlement. As already mentioned, this type of settlement is one of the most ancient territorial organizational forms, but its structure has not changed much over such a long period of time, although, of course, some innovations have taken place. This is a rather unusual fact, because if we compare it with other territorial entities and other types of organizations, for example, with the same urban-type settlements and with cities proper, then the dynamics of external and internal changes in these organizational forms is very high. These changes have occurred largely for necessary reasons, as organizations must adapt to environment This is one of the conditions for their survival. But there are also changes of a different kind, in particular, in social, cultural plans, and so on. And rural settlements are distinguished by sharp conservatism in this respect, which, however, did not prevent them from existing for such a long period of time.
In addition to structural peculiarities in these types of organizations, in rural-type settlements there is a very special type of social relationship, which includes such aspects as the preservation of traditions both in production and in the domestic and cultural and leisure areas, veneration of elders, etc.
Rural settlements, of course, do not represent identical objects. This is a set of territorial entities (organizations), each of which has specific features, depending on various factors of their location. Rural-type settlements, and quite a large part of them, appeared at a time when there were no well-established information communications between different parts and regions of both our country and the whole world, so some of the settlements were not affected by the process of globalization and standardization, which is so characteristic of others organizational forms, both territorial (cities, urban-type settlements) and other types (trusts, corporations, etc.).
Therefore, each rural settlement is a unique organizational form, which, although similar in some respects, have their own originality. For further consideration of rural settlements, it seems to us, it is necessary to somehow classify and rank this phenomenon in order to understand its essence as accurately and fully as possible.
2. Typology of rural settlements
Rural settlements, as already stated above, do not represent identical objects. Depending on their geographical location, as well as demographic, social, economic reasons, they differ in many characteristics. Therefore, rural settlements are usually classified according to a number of criteria. We considered it necessary to consider this typology in order to more clearly and distinctly present the composition and structure of this phenomenon.
However, rural settlements differ from each other in many ways. Is it possible to create a single, universal typological scheme, sufficient for various scientific and practical needs, characterizing rural settlements in a sufficiently versatile way?
The task of constructing a unified complex typology seems very tempting, but little progress has been made in this area, and this is no coincidence. Settlements, and even more so their territorial groups, are a rather complex and multifaceted object of study; at the same time, any typological scheme can use only a limited number of features that characterize the objects of the typology.
Therefore, two ways are possible: either to create a “one-sided” typology with a distinct bias towards one or another group of features, or to choose one feature from different groups, resulting in a “universal”, but in fact not having a core and rather abstract scheme. .
The first way is by no means vicious, it is the right way. But it follows from it that a single, "universal", typological scheme is indispensable for characterizing settlements. Undoubtedly, for example, the most urgent task is to identify a system of functional types of rural settlements, with highlighting as the leading features that connect resettlement with certain socio-economic and technical and economic conditions. This typological scheme is basic in its theoretical and practical significance. But it is impossible to “squeeze” other features of the settlements that are also quite significant for the geographical characteristics of the settlements without damage.
Consequently, one should think not about a universal, for all occasions, typology of settlements, but about several "typological lines" that complement each other. It would be wrong to oppose them, each type of typology has its own tasks, purpose and capabilities.
2.1 Size (population) of settlements
The population density of settlements (i.e., their size in terms of the number of inhabitants) is associated with the production functions of the settlement, with the form of settlement, with the history of the given settlement. This indicator objectively reflects the total effect of a number of factors on the development of the settlement, but does not reveal these factors by itself. At the same time, the size of the settlements creates certain conditions for their life, for the organization of cultural and community services for their inhabitants, therefore, the identification of a number of characteristic types of rural settlements on this basis is of scientific and practical importance.
When classifying settlements according to their population in statistical accounting, they are all divided into a greater or lesser number of groups, from the smallest (1-5 inhabitants) to the largest (10 thousand inhabitants or more). From a typological point of view, it is important to single out such values of population that are associated with significant qualitative features of settlements.
So, a special type - odnodvorki, single detached housing - represents most of the places with a population of less than 10 people. Small settlements with up to 100 inhabitants, as well as isolated residential areas, are most dependent on the nearest larger settlements in terms of servicing their population. Only selectively (in one small village for a whole territorial group of them) can certain elements of public services be created ( Primary School, a medical center, a library or a club, a village shop - all of the smallest sizes).
With a size of 200-500 inhabitants, each settlement can have a similar minimum set of service institutions, but just as small in size, providing the population with relatively limited opportunities for cultural and community services. An agricultural settlement of this size can be organizationally the base of a certain production unit.
In settlements with a population of 1-2 thousand people, which are already large for rural areas, opportunities are being created for a noticeable expansion of the range of service institutions, increasing their size and technical equipment. According to the standards applied in the design of new rural settlements of a modern type, a kindergarten, an incomplete secondary school for 150-160 children, a club with a cinema hall for 200 children and a library, a feldsher-obstetric station with a small hospital, shops for 6 workplaces, branch office with a savings bank, sports grounds, etc. While serving the population of the nearest settlements, it is possible to build a secondary school, a district hospital and further increase the size of most institutions.
With the size of a rural settlement of 3-5 thousand inhabitants, the most favorable opportunities are created for providing urban 1st level of improvement and cultural and community services with the construction of large standard schools, cultural centers, medical institutions, a specialized trading network, etc. In terms of production, such settlements are recognized as optimal as centers of large farms in conditions that allow a significant concentration of labor and production facilities.
2.2 Functional types of settlements
people are engaged various types activities, and settlements play a different role in the territorial organization of social production. These differences are taken into account primarily in the functional typology. The function common to all settlements - to be a residential place - remains, as it were, secondary.
To determine the functional type of a rural settlement, an important criterion is the structure of the "settlement-forming" group of the economically active population - the ratio of the number of workers employed in various sectors of the national economy, workers whose activities represent a direct contribution of the inhabitants of this settlement to the national economy of the country. The size and composition of the "settlement-forming" population (just as in the cities of the "city-forming") reflect the economic basis of the life of a given settlement.
In the population of settlements, several groups can be distinguished: 1) those employed in agriculture; 2) employed in forestry; 3) employed in external transport; 4) employed in industry; 5) combining occupations in agriculture and industry in the same locality (during different seasons of the year); 6) employed in institutions (economic, administrative, cultural, medical, trade), to a large extent serving other villages of the district; 7) employed in various institutions, mainly serving the "temporary" population arriving in a given place for recreation, treatment.
The predominance of the first group creates a type of agricultural settlement in its two socio-economic forms: collective farm and state farm (which have now been replaced mainly by agricultural cooperatives). Close to the latter are the settlements of state auxiliary agricultural enterprises, which some factories and trade organizations have.
The predominance of the second, third and fourth groups creates different types of non-agricultural settlements in rural areas. A significant proportion of the seventh group is typical for special types of non-agricultural settlements - resort settlements, settlements attached to hospitals, tourist camps, etc.
The combination of the first, fourth and fifth groups creates different types agro-industrial settlements in rural areas; the fifth group is typical for a special type of agro-industrial settlements, which should be greatly developed in the future.
A significant proportion of the sixth group indicates that the settlement functions as a local center in a rural area. But these functions, as a rule, are combined with production: various types of agricultural, agro-industrial, non-agricultural (for example, near-station) settlements with developed functions of local centers are formed.
The combination of many groups of the settlement-forming population is generally a common phenomenon, creating a number of transitional and mixed functional types of settlements in rural areas.
Unfortunately, our statistics, while dividing the entire economically active population by branches and types of activity, do not distinguish between "city-forming" and "city-serving" groups in cities and similar groups in rural settlements. In addition, in statistical accounting, the employed population is distributed by sectors of the economy only in general for rural administrative regions, and not for each rural settlement separately. Therefore, when identifying the existing functional types of settlements and assessing their prevalence, one has to rely on the materials of special expeditionary studies or use indirect data. Such gaps in population records make it difficult to study the use of labor resources in a certain way (obscuring large differences between settlements in terms of the use of labor resources and the specialization of workers).
One or another structure of the active population is the main feature of a certain functional type of a settlement. But there are some important additional features. Thus, the functional types of agricultural settlements, with a general predominance among their inhabitants employed in agriculture, differ depending on the place of this settlement in the system of territorial organization. The same applies to "forest settlements" that are part of the system of settlements of a certain timber industry enterprise or forestry, to railway settlements that form their own territorial systems, etc. A characteristic feature of the villages that perform the functions of local centers is the significant development of various ties between them and a certain group of settlements gravitating towards them. Small industrial settlements in rural areas differ in their industrial specialization.
Consider the most common functional types of rural settlements in the Russian Federation.
Agricultural settlements - they are assigned a certain economic territory adjacent to this village, it has its own production facilities (economic yard), and all this constitutes the site of a cooperative or other form of agricultural association.
Other common types of settlements are undifferentiated "ordinary" settlements and various kinds of specialized settlements.
Surviving (and very numerous in some areas) small villages, former settlements, etc. usually represent "branches" of collective farm settlements.. Naturally, this functional type of agricultural settlements cannot be considered as progressive, reflecting the historically established small settlements in many regions of the country..
For the same reasons, there are "ordinary" villages that are not differentiated in their position.
Along with this, there are several types of highly specialized settlements, usually of small size. Of these, near-farm settlements are most common at those livestock farms that are located according to local conditions (mainly due to the need to bring them closer to natural fodder lands and fields that require manure fertilizer) remotely from existing settlements. Their sizes are limited by the size of farms admissible for economic reasons and also depend on the degree of mechanization of labor operations in animal husbandry.
Typically, such settlements are much smaller in size than agricultural ones, are less "independent" in the sense of being served by all the necessary institutions, and, accordingly, are closely connected with the local center. Farm settlements acquire a special character in the conditions of transhumance and pasture animal husbandry in the dry steppe and semi-desert zones, in mountainous conditions. Their large, as a rule, distance from the main settlements and the presence of a mass of seasonally inhabited settlements on the surrounding pasture lands, for which the farm settlement is the main service center, leads to greater "autonomy" of such settlements. They are equipped with many necessary institutions, not only for the small population of the village itself, but for a more significant contingent - shepherds, who are on numerous summer and winter roads, with herds.
Very small sizes are specialized settlements at apiaries, fish farms, nurseries, remote from settlements. Sometimes these are single-yard residential points.
A special functional type is made up of permanent specialized settlements of workers and employees at separately located procurement points (especially for the procurement of livestock, which is kept and fattened at such a point until the batches are completed for shipment to meat processing plants). They are usually very small.
Seasonally inhabited areas - "second dwellings", used by part of the workers in collective farms and state farms for temporary stay in places of the economic territory remote from the main settlements, represent a wide variety in their functional types. They always have one or another industrial buildings and a place to sleep, sometimes devices for domestic and cultural services, functioning temporarily, during the period of use of this point.
The most common are agricultural field camps and livestock breeding centers on seasonal pastures, which differ in seasons and duration of use. Along with them, in different regions there are haymaking, horticultural mills, points for receiving and delivering agricultural products, etc.
Field camps at short term uses (sowing, harvesting, sometimes caring for crops and preparing land for sowing) accommodate a fairly large population (field-growing team or a significant part of it, up to 60-100 people) and in modern form they represent a group of dormitory houses with a dining room, a shower room, a red corner, a first-aid post, a trading stall, etc., with sheds for storing inventory and fertilizers; in their most primitive form, they represent a group of light buildings adapted for temporary lodging, eating and storing the necessary property. They are common in areas where agriculture is carried out on vast tracts of arable land with a rare network of permanent settlements.
Seasonal livestock settlements are especially common in areas of desert-pasture and mountain animal husbandry, where their number is many times greater than the number of permanent settlements. Their types and variants are extremely diverse, most often they consist of 1-2 residential buildings near wells, livestock buildings or pens. There are also more complex forms, up to entire seasonal villages with schools, medical centers, shops that play the role of temporary centers for livestock workers in remote intensively used pasture areas (for example, in the Tien Shan syrts in summer).
Non-agricultural settlements in rural areas are represented by very different types associated with the performance of various national economic functions.
Among the non-agricultural rural settlements, the following functional types, or groups of types, are distinguished.
1. Settlements of industrial enterprises, in terms of their size, do not meet the "qualification" established for urban settlements. According to the degree of their ties with agriculture of various kinds, small workers' settlements in rural areas constitute a certain "typological series" - from completely "autonomous" (for example, mining enterprises, individual textile and other factories with their settlements) to closely associated with it (settlements with starch, vegetable-drying, wine-making, dairy and other factories; settlements of the RTS, local enterprises for the production of building materials).
Most of them belong to the state sector (settlements of workers and employees), but there are also industrial settlements at individual enterprises in large agricultural centers.
2. Settlements on communication routes. Most of them are connected with railway transport - from one-yard "residential points" of trackmen scattered along the line, to sidings and small stations. A smaller number of them are served by waterways (estates of buoy-makers, carriers, settlements on locks, piers, etc.), small airports, and highways (settlements on road sections, gas stations, etc.). IN last years settlements appear that serve gas and product pipelines, their pumping stations, as well as long-distance power lines.
3. Settlements of builders at new buildings. Most of them, for a limited period of their existence, belong to "rural" settlements, constituting a special, specific type of inhabited places (more precisely, a group of types, since along with crowded workers' settlements there are also single "barracks" - hostels on lines under construction, gatehouses and hostels at warehouses and bases, etc.). Upon fulfilling their functions, they either disappear or are absorbed by the urban settlement that arises at the new industrial point, and sometimes turn into a rural non-agricultural settlement of a different type (industrial, transport settlement).
4. Timber industry and forest protection villages. Timber settlements are located, as a rule, on timber transportation routes and very often on rafting tracks, at the exit points of logging roads to rafting tracks. Their main types are: a) settlements of forest plots where brigades of lumberjacks live; b) settlements of logging stations, uniting several sites; c) the center of the timber industry - the central settlement for a certain local system of forest settlements; d) intermediate settlements on timber export routes (rafting, transshipment); e) settlements at the exit of the forest to the main roads (usually these are settlements of a mixed type, combined with a pristansky or station settlement); f) settlements on the main roads - roadsteads, near the floodwaters, etc. Settlements of type "a" (often others) usually have a limited lifespan (until the forest resources in a given place are exhausted); when designing logging, it is determined at 10-15 years. But similar settlements quickly spring up elsewhere. Settlements of forestries and forest protection services (cordons, forest lodges) are smaller in size, but more durable.
5. Fishing and hunting settlements. A large state fishing industry creates, as a rule, large urban-type settlements with ports, fish factories, refrigerators, etc. But there are many fishing collective farms and fishing brigades in agricultural collective farms with their settlements on the coasts of moraines and lakes, on rivers and river channels, in deltas, etc. settlements - supply bases for reindeer breeding brigades, etc.
Along with permanent settlements, seasonally inhabited settlements of a special type almost always appear; on fishing pits, in places convenient for mooring ships and taking out the catch. In size, they are more similar to field camps than to livestock stations on pastures (see above); this is a temporary housing for the whole brigade and a storage place for bulky fishing equipment.
Commercial hunting camps usually consist of 1-2 huts in the forest, far from any habitation, complementing the main villages of the northern fishing villages.
6. Settlements of scientific stations, permanent (at observatories, meteorological stations, etc.) or temporary (bases of exploration parties, expeditions).
7. Villages of health and education institutions are of various types: a) staff camps at rural schools and hospitals located at some distance from the villages; b) out-of-town hospitals, nursing homes, sanatoriums, forming entire villages with their own facilities; c) orphanages, forest boarding schools located among nature, in rural areas; d) settlements of rest houses, out-of-town sports and tourist bases. Most of these functional types are characterized by the predominance (or a significant proportion) of the temporary, "variable" population.
Along with the permanent ones, there are also seasonally inhabited settlements of this kind - at tourist bases for winter or summer use, climbing camps, and summer pioneer camps.
8. Dacha settlements - the second housing of the urban population in the summer. In fact, this is a special type of seasonally inhabited settlements, which differ from the previous group (tourist bases, rest houses, etc.) in that, like most modern agricultural settlements, they consist of individual cells - single-family houses, estates. Collective-farm settlements used simultaneously as dachas (renting rooms for the summer) or resorts do not belong to this type, as do “bedroom settlements”, the population of which works in the city (see below).
9. Out-of-town residential settlements of workers and employees (villages - "bedrooms" in the countryside). This specific type of settlements is widespread in the near suburban area of large cities, forming a kind of "residential branches" of the city. They historically arose in the process of urbanization in all countries of the world with large cities, with convenient and fast transport links with the city as a place of work for their inhabitants. They are often large in size, constituting a special kind of satellite of a large city and greatly increasing the daily passenger traffic between it and its suburban area. This type of settlements is distinguished by the fact that the function of “housing place” common to all settlements is the only one here.
Agro-industrial settlements in rural areas should be divided into two fundamentally different groups: in some cases, work in industry and work in agriculture are carried out by different persons living in a given settlement, in other cases, the labor of the same persons is used in different time(mainly seasonally) in various industries. The existing types of agro-industrial settlements belong to the first group. The second form of combining various branches of production in rural settlements is just beginning to develop (being very progressive and promising) and still exists in the initial stages in settlements that have their own production enterprises.
Among the agro-industrial settlements of the first group, representing a combination of an agricultural settlement and an industrial settlement, several types are distinguished depending on the nature of industrial production and its links with agriculture.
One of the types is characterized by the development in the agricultural settlement of industrial processing of local agricultural products (sugar, oil mills, butter, vegetable canning, starch and other plants). Another type is formed when agricultural and timber enterprises are combined (and the former often turn into an auxiliary "food shop" of a timber industry enterprise). The third type is created with the development in the agricultural settlement of industries serving local needs, working wholly or partially on local raw materials. The fourth type is made up of settlements where, along with agriculture, small non-local enterprises have emerged using local subsoil resources. The fifth type includes the occurring combination of an agricultural settlement and the settlement of a small industrial enterprise that is not associated with the use of local raw materials and the local market (such, for example, are many metalworking and textile industries that historically developed in rural settlements that were previously centers of the corresponding handicrafts).
Types of agrarian-industrial settlements are formed on the basis of both former and a few modern collective farm and state farm settlements.
A special place is occupied by the type of settlement characteristic of many suburban areas, where part of the inhabitants are employed on the spot, and the other significant part works in the nearest city or non-agricultural rural settlement (factory or station settlement, etc.).
Many rural settlements, especially large ones, are of a mixed nature, combining the features of various functional types. Such settlements form a number of transitional and mixed forms, with a predominance of either agricultural, or agro-industrial, or non-agricultural functions.
The typology does not pursue the task of showing all existing combinations of features, all variants: only the main, most common mixed forms should be noted.
Thus, complicated types of agricultural settlements are formed when a combination of collective farm and state farm population in one settlement, a combination of a village and an RTS settlement, when scientific agricultural institutions or special educational institutions are located in existing agricultural settlements (which is becoming more common). Workers of nurseries, hatcheries, etc. often live in villages. A special type develops with the development of "resort" functions in an agricultural settlement.
The types of agro-industrial settlements are very often complicated by the development of the functions of a transport hub (when located near a station, pier), the presence of special educational institutions, etc.
Among non-agricultural rural settlements, along with their specialization, single-functionality, more complex forms are also common (most often, a combination of the functions of servicing industry and transport).
In many rural settlements, to one degree or another, the functions of the local center are added to their production functions - in relation to other, nearest settlements. These functions can be made up of various elements: leadership in organizational and economic terms, through the organization of public education, health care, and the operation of the trade network; organization of purchases, procurement and processing of agricultural products; the implementation of the production supply of collective farms and state farms: the implementation of administrative functions, etc. All this creates a system of permanent links between the settlement - the local center - and a certain group of settlements gravitating towards it.
Some meaning of "local center" sometimes has an ordinary settlement-center, if other, less "independent" settlements gravitate towards it and are closely connected with it. The settlement always represents the local center for all settlements of this agricultural enterprise. But usually, only when we go beyond the framework of on-farm settlement, considering the functions and connections of settlements on a wider territorial scale, do we encounter such a degree of development of “center-forming” functions that they, along with directly production functions, clearly become typological features.
The most clearly expressed type of complex local center for rural areas is now settlements - the centers of enlarged rural areas. They are primarily characterized by an organizational and economic role. Many administrative functions are also concentrated in the district centers, managing the work of institutions serving the cultural and everyday needs of the population of the district - a network of schools, clubs, libraries, hospitals, a trading network and procurement centers, etc. At the same time, as a rule, the largest, basic institutions of this kind are located in the district center.
Such a set of functions is inherent in only one settlement in the district - its official central point, and has a "settlement-forming" value, since a certain number of personnel, a significant part of the working population of the district center, are employed in the performance of these functions.
With rare exceptions, these functions in district centers are always combined with one or another production activity. The district center is both an agricultural settlement and has industrial enterprises (usually associated with the processing of local agricultural products, or with the satisfaction of various local needs). It often combines the features of an agricultural and industrial settlement, and to this is added the role of a local transport hub - a station settlement, etc.
Thus, this type of rural settlements, in the presence of specific functions that other settlements of the region do not have, is characterized by multifunctionality. Depending on the prevailing production functions, it is divided into several subtypes (agricultural settlements - district centers, agro-industrial settlements - district centers, forestry settlements - district centers, etc.). Only a small number of district centers, even before the enlargement of districts, were only local centers. With a significant development of industrial or transport functions, many centers of rural areas have rapidly turned into urban settlements in recent years.
In almost every rural district, along with the district center, there are other settlements that play the role of additional local centers due to the peculiarities of their economic and geographical position. Sometimes these are former district centers that have lost part of their functions due to the enlargement of districts, or central villages of individual former or existing large collective farms and state farms, as well as farming communities and cooperatives, serving in many respects a whole group of settlements closest to them. Often, station settlements located far from the district center, on the periphery of the district, or workers' settlements at fairly large industrial enterprises act as local centers.
Between the district center and similar additional local centers (or "second order" centers), a kind of division of labor is developing. Bodies of state administration - in their district level - are located in the district center with its production management. All other functions in the line of servicing the economy of the region and the various cultural and everyday needs of its population are partly concentrated in the regional center, partly decentralized.
Among the additional centers, two main types are distinguished: a) specialized local centers - most often near-station settlements within the region, as the location of procurement points and storage depots, sometimes individual industrial enterprises associated with the agriculture of the region; b) small local centers of a complex nature, similar to the district center in many respects, but without its administrative and organizational functions; usually they are formed on the basis of individual large villages in the depths of the region, at a distance from the regional center, but at the junctions of local roads, with an advantageous economic and geographical position. Their formation is stimulated by the large territory of the region, the dismemberment of settlement in it into separate areas or "spots", separated by forest, swampy and other uninhabited territories. In mountainous regions, where settlement is concentrated in a number of mountain valleys, in each of them one of the villages usually takes on the role of such an additional local central point.
Additional local centers always have certain production functions, representing settlements of a mixed nature (a station settlement is a specialized local center; the central settlement of a collective farm is a small complex local center, etc.). The functions of the local center arise as additional ones, especially often in settlements on communication routes and crossroads.
Along with district centers and additional local centers, there are also centers of inter-district significance. Their role is played in most cases by cities, but sometimes also by rural settlements favorably located on the main routes, whose functions in this case are correspondingly expanded.
Such is the typology of rural settlements that exist in the modern world. However, it should be borne in mind that this typology is not complete; it indicates only two features of the classification, which we consider the most important and which should have been mentioned in this work. Such typological points as the type of settlement, historically established types of settlements, etc., were omitted due to the fact that they do not have special practical significance and are not particularly important in this area of research.
3. Rural settlements of foreign states.
For a more complete and clear understanding of any phenomenon, process or object that occurs or exists in reality, it is always important to compare it with another phenomenon (object, process) similar to this one, to analyze similarities and differences. By doing this, we achieve a clearer and more complete understanding of the current situation, identify all the positive and negative sides analyzed objects, their advantages and disadvantages. Knowledge and possession of this information provides us with a rather weighty information base, the material of which we can use to make any adjustments to the analyzed event or phenomenon, eliminate its shortcomings, further develop its advantageous features, that is, to improve it.
This approach is quite applicable to such a class of organizational forms as rural settlements. Moreover, it would be a serious mistake not to conduct a comparative analysis of rural settlements in different states, given the research direction this work. To improve the situation in which Russian rural settlements currently find themselves, it is simply necessary to compare them with foreign settlements of this type, especially in those countries where they successfully exist and develop.
Unfortunately, significant amendments to the comparative analysis are also introduced by the specificity, the peculiarity of the phenomenon under study. It lies again in the absence of standardity, typicality, integrity of this class of organizational forms. At first glance, it seems that the phenomenon under study has just an exceptional similarity, which consists in the external simplicity of the goals of this organizational form: ensuring the existence of people in conditions that are closest to extreme. The second main goal, which the process of achieving which is present in the life of far from all rural settlements, is to provide the state with products of such a sector of the economy as agriculture. But the methods and ways of achieving the listed goals, the material and social bases from which one must build and which must be used in the same process of fulfilling one's mission, do not have such a similarity. Moreover, the difference is huge. It consists in national peculiarities, economic differences in development, differences in the social base, peculiarities of geographical conditions, and in a number of other features. Each rural settlement has its own type of social relationships, the state of the material base, as well as the totality of life values and guidelines for the living population. The listed features, of course, are in many respects similar, especially among settlements located in the same region, in the same geographical conditions, and so on. But if at least one factor in the settlements differs - for example, the type of social relationships, the natural conditions in which the settlement exists, the historical features of development, etc., then it, like a chain reaction, leads to changes in most areas of the settlement's life.
Another reason that does not allow us to fully apply the method of comparative analysis in the study of this phenomenon lies in such a fundamental factor as the human factor. In any country, in any nation, in any settlement, the main factor of development, the main asset is a person. It is man who constitutes the main productive force of society, plays an active role in its development, acts as the creator of all material and spiritual values, and is the main consumer of all material goods. But it is natural that it is impossible to compare people from different countries in detail, because everyone has their own traditions, their own culture, their own mentality.
It seems that we can not mention, because we will only repeat ourselves, about the peculiar mentality of Russian citizens. The events that befell our people in the 90s of the XX century greatly affected the mass psyche of the population and left deep traces in their minds. The people living in villages, villages and other types of rural settlements were no exception. Gradually, life returned to normal, most quickly this process occurred in cities. But in rural areas, where changes come much more slowly, the so-called "remnants of the nineties" still remain, along with all their inherent social, cultural, demographic problems. As before, in some settlements there is a degradation of the population, a decline in the cultural level, and a further destruction of spiritual values.
Therefore, the comparative analysis carried out will not give a special result for the final result. It is impossible to compare settlements in developed foreign countries and in Russia in detail, at a deep level, in detail, since the mentality of the population is very different - the main factor, the influence of which on the life and activities of the settlement is largely determining. This is, to put it mildly, pointless.
All we can do in this situation is to review the general characteristics of this phenomenon in foreign countries, as well as highlight the most distinctive features of rural settlements in foreign countries.
The total number of rural settlements around the world, even permanent ones, cannot be counted, since in different countries the concept of a separate settlement, including a rural settlement, is defined differently. Therefore, it is impossible to accurately indicate the number of rural settlements in any country, and even more so to compare them with the number of rural settlements in the Russian Federation. Not only will it be rather approximate, even abstract information, it will not give anything from a practical point of view.
So, in the United States, approximately 1/5 of the rural population in the 90s of the last century were residents of "officially registered" rural settlements, that is, those settlements that are an administrative unit (have local governments or (in the United States of America, administrative bodies each state defines differently what characteristics a settlement needs to have in order to constitute an administrative unit), and the rest of the farm population, which in fact also represents the population of rural settlements, is taken into account as a whole by territorial units. regardless of whether these settlements are administrative units, they are, first of all, detached farms.Also, rural settlements can be called the settlements of the so-called Mormons.These two categories of rural settlements in the United States of America are mainly limited.
In the countries of Western Europe there is no clearly defined category of rural settlements. Due to the large population and relatively small territory of these countries (especially in comparison with Russia), with the almost constant proximity of large villages, as well as many different estates and individual farms located in relative proximity to each other, all settlements within one administrative-territorial unit are taken into account as one whole. This is observed in countries such as France, Belgium, Germany, etc.
In a number of countries (Sweden, Norway, Iceland), a settlement with a population of less than two hundred people is referred to as a rural settlement (settlements with a population of over two hundred are already classified as urban). There is also an activity factor here, that is, the nature of the occupations of the population of the settlement is taken into account. Of course, it should be mainly agricultural, but this type of settlement in Northern Europe is extremely rare. Basically, there are fishing, forestry and other types of settlements.
Also, in foreign countries, such as Brazil, China, Denmark, any settlement, regardless of the number, that does not have the function of administrative and territorial management, is equated to rural settlements. Otherwise, this settlement is already considered a city.
As we can see, different countries have different approaches to this issue. Therefore, it is extremely difficult to conduct a comparative analysis between foreign and Russian rural settlements.
But one fact can be singled out that will be quite useful for our study. Without taking into account European countries, where, due to their small territory and large population, villages are not, so to speak, local centers, in foreign countries, let's take, for example, the United States, almost all rural settlements fulfill their second function (which was indicated above). That is, rural settlements in a given country are specialized suppliers of agricultural products. People who do not work in this sector of the economy prefer to live in cities and urban-type settlements. Russian rural settlements initially played the role of a stronghold, a local center in the development of the surrounding territory. With further development of territories, the appearance of cities, rural settlements lost the function of a local center. That is, the population there is engaged not only in agriculture, but also ensures the performance of a number of functions that are necessary for acceptable living conditions in settlements: medicine, trade, and so on. The reasons for this can also be a rather large distance between settlements, as well as the deplorable state of the transport infrastructure between them, mainly the poor quality of roads. Therefore, Russian rural settlements have a higher degree of self-sufficiency than American ones, due to the availability of the necessary specialists and institutions, although, of course, there remains a constant dependence on the local center as a source of resources.
Therefore, it is necessary to understand that rural settlements in the Russian Federation can survive only if they play the role of large centers, at least in the agricultural sector. Therefore, it is necessary to take actions to develop agriculture in rural settlements.
4. Problems of development of rural settlements in the Russian Federation
Rural settlements in the Russian Federation have a number of problems that, in our opinion, are common, that is, these problems do not depend on the national, geographical, economic characteristics of a single settlement. In principle, it is fashionable to put them into several main groups:
1. Economic problems are typical, probably, for every rural settlement in the Russian Federation. They include the low financial security of the settlement, the lack of funds and resources for the normal functioning of schools, kindergartens and other rural institutions, holding cultural and other events, repairing equipment, structures, vehicles and other municipal property, as well as meeting other needs of the settlement.
One of the acute economic problems facing the villagers is the provision of housing. Although at present the government of the Russian Federation is making attempts to solve this problem. In particular, since 2003 alone, more than 200 thousand villagers have been provided with housing at the expense of budgetary funds, of which about 50 thousand are young people. Today, a program to provide housing for young people is being actively promoted, including using the possibilities of mortgage lending. Currently, a competition is being held for housing programs for 2010, rural settlements should take an active part in them, since these programs are designed for villagers. In 11 rural settlements in 9 constituent entities of the Russian Federation, construction is underway to co-finance the provision of land plots with communal infrastructure. It is expected that over 183,000 square meters of housing will be built in these regions in the coming years.
2. Sociocultural problems include the low morale of the rural population, the destruction of the habitual way of life of the population, the loss of habitual psychological and moral guidelines among the inhabitants of Russian villages, the outbreak of crime, mass unemployment and alcoholism, as well as other social and cultural problems. As mentioned above, these given type of problems were mainly caused by turning points in Russian history, the so-called "dashing nineties", economic and political crises that occurred during this period, etc. These problems, in our opinion, can be overcome only by a gradual increase in the cultural level of the population of villages and villages.
3. Demographic problems include a sharp decline in the rural population due to the relocation of families to urban areas, high mortality and low birth rates. This situation is especially reflected in young people, because every year the proportion of the young population in rural settlements decreases. In addition, the difficult demographic situation among the rural population has other consequences.
One of the demographic trends manifesting itself in rural settlements is the depopulation and disappearance of small rural settlements. According to the 2002 census, 8% of rural settlements completely lost their population. Medium-sized settlements are degrading, some of them are moving into a group of small and smallest (less than 25 people). The second trend of recent decades is the concentration of rural residents in larger settlements, more than half of the rural population of Russia already lives in them. For 1979 - 2002 The share of residents of the largest villages with a population of more than 5,000 people grew the fastest. Most of them are located in the south of the country and grew due to the high birth rate and migration influx. In other regions, growth is due not only to migration, but also to the administrative-territorial transformation of urban-type settlements into rural settlements.
These, in our opinion, are the general problems of the development of rural settlements at the present time. It is possible, of course, to consider this issue more deeply, but this, as it seems to us, will not give any special effect. We must first solve those problems that are in plain sight and which can be detected, so to speak, with the naked eye. Therefore, we will not dwell on the details, but move on to specific proposals.
5. Rural settlements of the Russian Federation: how to correct the situation?
Having identified the key problems of rural development, it is also necessary to identify solutions that include measures of a socio-economic, legal, administrative and managerial nature.
In our opinion, a separate state program for training and retaining personnel in the countryside is needed, including the creation of regional educational complexes for training personnel for the system of municipal administration and management of rural areas. The program should provide for the provision of housing, material incentive bonuses to wages specialists. It is required to create centers for innovative development of rural areas, presumably at the regional level, where technologies, resources and investment proposals will be accumulated.
A program is needed to develop cooperation in rural areas, which provides for subsidies to consumer cooperation enterprises when purchasing for state and municipal needs, a program to support housing construction in rural areas and the development of communal, social and transport infrastructure.
Consideration should be given to the creation of special rural areas specializing in the development of one or another agricultural production, for example, dairy production; provide in the Tax Code of the Russian Federation the right of local governments to increase by 2-5 times the land tax rate on agricultural land that is not used or used inefficiently.
It is necessary to increase deductions from federal and regional tax revenues to local budgets, approve regulations for interaction with cadastral authorities on the prompt submission of information contained in the State Real Estate Cadastre to local governments, allocate funds for technical registration of utility, social and transport infrastructure, it is also necessary to resolve the issue of financial support for the powers vested in rural settlements.
It is necessary to support measures to create jobs, to provide conditions for work and life, it is necessary to increase the effectiveness of programs for the socio-economic development of rural settlements, develop a draft federal law on strategic planning for the development of territorial entities and provide qualified personnel for the strategic planning process. Particular attention should be paid to the basic training of village leaders for the management of rural settlements and their development.
It is important to organize interaction between the executive and legislative authorities to ensure state support for rural youth. Society and the state should become, so to speak, systemic investors in human capital.
It is also necessary:
1. Develop a federal program to support rural youth, which includes measures to stimulate the influx of young professionals to the countryside, the development of youth agribusiness;
2. To develop regulatory legal acts providing for preferences in allocating land to young families moving to live and work in the village, support in employment and leisure activities;
3. Consider the possibility of increasing the amount of funds allocated to finance youth policy, in particular housing programs, as well as issuing a fixed start-up capital for young professionals returning after graduating from higher education institutions, develop a system to inform young people about the possibilities of realizing their potential and measures of state support ;
4. Use the platforms of agricultural educational institutions for the training of managerial personnel, work to form a positive public opinion on the issues of life and work in the countryside and disseminate the experience of agricultural science in the practice of small enterprises.
Conclusion
So what conclusion can be drawn from all of the above?
Rural settlements are undoubtedly a special phenomenon both as an organizational form, and as a territorial entity, and as a social community of people, and also from many other points of view. This phenomenon cannot be put into the framework of any one concept of research, to draw any unambiguous conclusions. Rural settlements as a whole, in our opinion, are a set of territorial entities with many distinctive features and characteristics compared to other organizational forms, including territorial ones (cities, urban-type settlements, etc.). Also, this set is extremely heterogeneous in its internal structure, since its elements (the settlements themselves), although they have the same goals and objectives of their existence, their structure, living conditions, history of emergence and development differ. It makes no sense to re-list all the specific features of rural settlements, since they are all set out above.
I would like to highlight the fact that in each country rural settlements are in a special position, it is impossible to draw analogies, as between urban settlements. But the Russian specificity of the existence of rural settlements stands out sharply against the background of the global one. This is also explained by the fact that our country has a vast territory with different natural, economic, political and other conditions, so the settlements of each region have their own differences, as well as the state of the rural settlements of the Russian Federation at the present time. As is already clear, the Russian village today has many problems that threaten the continued existence of many settlements, and even the existence of such a sector of the economy as agriculture.
These problems are very relevant at the present time, so they need to be addressed. Without repeating specific, detailed proposals, one general conclusion can be drawn that the main way out of this situation is to involve the human factor in the life of rural settlements. Qualified and. what is important, young cadres who will be interested in their successful activities in rural settlements. It is also necessary to develop conditions in the countryside so that young specialists can invest their efforts in any business. It's all the same agribusiness, etc. In principle, all decisions fit into one phrase - it is necessary to make life in rural settlements attractive for young people. This is the main task, in our opinion, on which we need to focus our efforts.
Of course, the efforts of the state alone are not enough for this. Movement is needed, striving both "from above", on the part of the government, and "from below", one hundred sides of local, district, and regional administrations. Thus, the state of rural settlements directly depends on the actions of both the government of the Russian Federation, other state bodies, district and regional administrations, and the actions of the inhabitants of the settlements themselves. Only effective interaction of all levels of power can change the difficult situation in which Russian villages and villages find themselves.