Federal districts and their legal nature. The concept of Federal districts of the Russian Federation. Prospects for modernizing the structure and system of federal districts in Russia

14.12.2023

Types of economic zones. Federal districts are a new form of territorial government.

National economic potential of zones - enlarged economic regions. Main economic zones.

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

At the same time, the system of integral territorial-economic division also includes economic zones of various types and functional purposes:

To coordinate and control regional development by the central government, ensuring the territorial unity and integrity of the country (federal districts);

For long-term (10 years or more) territorial socio-economic forecasting and planning (zones - enlarged economic regions);

To determine tactical and strategic policies and general directions of territorial development (European and Asian parts of the country);

For the operational and long-term regulation of economic activity in territories of special interests of the state and business - with favorable regional factors (for example, areas of the European core, the South Siberian strip, etc.) or with extreme conditions (zoya of the Far North, etc.) .

The first type of economic zones includes a number of their varieties according to various functional characteristics related to general federal management throughout the country (policy, operational management, long-term planning, etc.).

The directions of development of the Russian economy have always been associated with the economic, natural, historical characteristics of the country, with its gigantic territory, huge and varied economic resources. In this regard, the role of centralized management, state power and its instruments has always been high here. In addition to state borders and the center, management cells of the state space are needed. Hence, issues of the territorial and organizational structure of the economy became important. In Russia, the initially adopted reform model ignored the active role of the state in its implementation. Given the huge number of regions - subjects of the Federation and their unbridled desire to expand sovereignty, this greatly weakened the central state power.

The state is not only a geographical space outlined by borders where its citizens live and work, but also, above all, law, constitutional order and discipline. The situation became intolerable when a fifth of the legal acts adopted in the regions contradicted the Basic Law of the country, the constitutions of the republics and the charters of the regions diverged from it, and trade barriers and even border pillars were established between the territories and regions. The consequences of such violations of the law could be catastrophic, but it is impossible to closely and strictly monitor the situation in 89 regions from the capital (and 8 interregional associations are not government bodies). In addition to interethnic conflicts and ambitious claims of regional elites on the basis of “sovereignty,” NATO’s advance to the borders of our country and the aggressive plans of hostile foreign countries to fragment it in conditions of crisis weakening and separation of economic ties of peripheral territories from the central ones pose a threat to Russia’s national security and its territorial integrity.

Thus, the question of creating a new form of public administration in Russia at the federal (interregional) level in the form of authorized representations of the central government in enlarged administrative-territorial entities, for example federal districts, is vitally urgent, which is consistent with the Russian Constitution (Article 71), which relates to federal arrangement under the jurisdiction of the Federation1.

By the Decree of the President of Russia of May 13, 2000 “On the Plenipotentiary Representative of the President of the Russian Federation in the Federal District”, in order to ensure the implementation of his constitutional powers, increase the efficiency of the activities of federal government bodies and improve the system of control over the implementation of their decisions, the institution of Plenipotentiary Representatives of the President of Russia in the regions was transformed into the institution of plenipotentiary representatives of the President in the federal districts and the corresponding Regulations and list of federal districts were approved.

Since the organizational and economic function is the most important for the state not only in a planned economy, but also in a regulated market economy, the new form of state-territorial division is based not on a national or formally administrative factor, but primarily on the principles of economic zoning. Since public administration is broadly functional, it is necessary to use elements of special zoning, which has always been used, including in pre-revolutionary Russia (military districts, transportation districts, etc.). Therefore, the upper, interregional link of the territorial division is made into 7 federal administrative and economic entities consisting of groups and individual economic regions with some changes in boundaries (Fig. 12.1). Moreover, the middle, regional link (with all branches of government) is preserved.

1. Central Federal District:

Belgorod region, Bryansk region, Vladimir region, Voronezh region, Ivanovo region, Kaluga region, Kostroma region, Kursk region, Lipetsk region, Moscow region, Oryol region, Ryazan region, Smolensk region, Tambov region, Tver region, Tula region, Yaroslavl region, Moscow

Center of the Federal District - Moscow 2. Northwestern Federal District: Republic of Karelia, Komi Republic, Arkhangelsk Region,

Vologda region, Kaliningrad region, Leningrad region, Murmansk region, Novgorod region, Pskov region, St. Petersburg, Nenets Autonomous Okrug

Center of the Federal District - St. Petersburg

3. Southern Federal District:

Republic of Adygea (Adygea), Republic of Dagestan, Republic of Ingushetia, Kabardino-Balkarian Republic, Republic of Kalmykia, Karachay-Cherkess Republic, Republic of North Ossetia - Alania, Chechen Republic, Krasnodar Territory, Stavropol Territory, Astrakhan Region, Volgograd Region, Rostov Region

Center of the Federal District - Rostov-on-Don

4. Volga Federal District: Republic of Bashkortostan, Republic of Mari El, Republic of Mordovia, Republic of Tatarstan (Tatarstan), Udmurt Republic, Chuvash Republic – Chavash Republic of Kirov Region,

Nizhny Novgorod region, Orenburg region, Penza region, Perm region,

Samara region, Saratov region, Ulyanovsk region, Komi-Permyak Autonomous Okrug

Center of the Federal District - Nizhny Novgorod

5. Ural Federal District: Kurgan Region, Sverdlovsk Region, Tyumen Region, Chelyabinsk Region, Khanty-Mansi Autonomous District, Yamalo-Nenets Autonomous District

Center of the Federal District - Yekaterinburg

6. Siberian Federal District: Republic of Altai, Republic of Buryatia, Republic of Tyva, Republic of Khakassia, Altai Territory, Krasnoyarsk Territory, Irkutsk Region,

Kemerovo region, Novosibirsk region, Omsk region, Tomsk region, Chita region, Aginsky Buryat Autonomous Okrug, Taimyr (Dolgano-Nenets) Autonomous Okrug; Ust-Ordynsky Buryat Autonomous Okrug, Evenki Autonomous Okrug

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

Center of the Federal District - Khabarovsk

Rice. 12.1. Federal districts of Russia

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

I With the enlarged administrative division, the number of territorial authorities with which the central authorities deal, resolving issues of budget financing, taxation, privatization, etc., is reduced by an order of magnitude and at the same time the federal government, unloading in the center, moves closer to the localities. Instead of 89 administrative “connections” with the regions, the federal center now has a direct connection with 7 federal districts, each of which, in turn, is connected with an average of 12-13 regions. The advantages of macroregions and zones also affect the management of federal energy systems, transportation routes, information and communications, and the provision of defense capability (including mobilization preparation), law and order and national security.

Let us recall that before the revolution, such administrative formations were the general governorships and governorships, which included several provinces and were endowed with greater rights. In the Soviet years, large economic regions and zones were used for territorial planning, an integrated and duplicating economy was created in them, and currently interregional associations of economic interaction function in these territories, without, however, showing active activity due to the lack of state legal status.

Federal districts have special national significance, are intended to solve national problems, cementing a single political and economic space of Russia, and the federal center should primarily rely on them, as the basic structure, in its relations with the territories. Therefore, it made sense that, in accordance with the provisions of the Constitution of Russia, to create in them not regional, but federal authorities (administration), moving a number of relevant functions of regulation, coordination, management and control from the central apparatus to the territorial one (without affecting the functions of the regions), which meets the interests of federalism in the new conditions (there is no need to delegate functions to the districts, because they are established by the center, while the districts are “the center on the periphery”).

In the newly formed federal districts, it is advisable to have authorized representative bodies not only of the President, but also of the Government (having eliminated their numerous representative offices in the constituent entities of the Federation), as well as the administration of military districts, zonal bodies of the FSB, the Ministry of Internal Affairs, the Prosecutor General's Office, etc. (they were created).

The important tasks of the plenipotentiary representative of the President of Russia in the federal district are the implementation by government bodies of the main directions of the state’s domestic and foreign policy, monitoring the implementation of decisions of federal government bodies, regular reports to the President on ensuring national security, on the political, social and economic situation in the district with the introduction relevant proposals. Among the functions of the authorized representative:

Coordination of the activities of federal executive authorities in the district;

Organization of interaction of these bodies with government bodies of the constituent entities of the Federation, local governments, political parties, other public and religious associations;

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

Organizing control over the implementation of federal laws, decrees and orders of the President, decrees and orders of the Government, and the implementation of federal programs;

Participation in the work of government bodies of the constituent entities of the Federation, as well as local government bodies within the district, etc.

In such multi-resource economic zones, the best conditions can arise for the territorial and economic integration of productive forces, the formation of corporate production and commercial structures, regional markets with large commodity resources and a powerful market infrastructure. Prerequisites are being created for the effective regulation of scientific and technological progress, investment activities, for justified economic incentives (taxes, prices, tariffs, etc.), establishing self-financing and commodity self-sufficiency, organizing a system of state support for underdeveloped territories, and developing comprehensive territorial forecasts and plans. It will be possible) to better overcome market-induced trends towards sharp

Uniformity of economic and social development, implement regular monitoring of its regional levels.

There will always be contradictions between the center and the regions due to their different interests, but their severity can be significantly reduced. More complete information about the state of affairs and personal contacts of various authorities will ensure better mutual understanding, this is facilitated by bringing the federal administration closer to the territories.

An important functional purpose of economic zones - enlarged economic regions (federal districts, etc.) is long-term territorial forecasting and planning. It deals with a relatively small range of indicators, aggregated calculations, the degree of reliability of which decreases both with the expansion of the time horizon and the decrease in the size of territorial units. Therefore, for forecasts for 10 years or more, it is advisable to use diagrams of continuous zones - enlarged economic regions1, representing groupings of macroregions.

In the 40s and 70s, when preparing draft master plans for the development of the national economy of the USSR for 15 years, similar zones were identified.

In the context of the looming relatively long transition period of the formation of a regulated market economy, it may be useful to use the scheme of 5-7 economic zones - enlarged economic regions - in long-term forecasts and programs. For example: Center and North of the European part of Russia (Northern, Northwestern, Central and Volga-Vyatka macroregions), South of the European part (Central Black Earth and North Caucasian macroregions), Volga-Ural (Volga and Ural macroregions), Siberia (Western -Siberian and East Siberian macroregions), Far East (the zone coincides with the macroregion, which, however, is similar in size to the fortified region in terms of territory and resource potential)

The advantage of this scheme is the use of a grid of existing macro-regional complexes.

This zonal-economic division is more of an assessment-resource nature, in contrast to the macro-regional division, which has an assessment-production orientation. It most generally reveals the territorial structure of the country’s production potential. It is revealed, for example, that the regions of the Center and the North, as well as the Volga-Urals, account for about 3/5 of the total population and fixed production assets of Russia, and the regions of Siberia and the Far East account for 9/10 of the fuel and energy resources, 3/4 of the forest resources, almost 70% of the agricultural land fund (Table 12.1). Accordingly, in the long term, the main directions of development of these groups of macroregions are being formed.

The system of these economic zones allows us to reflect the significant features of the development of large parts of the country in the long term. These include large-scale, interregional proportions and problems, primarily the territorial distribution and use of the most important production resources (especially multi-purpose ones), taking into account the differentiation of their economic assessments. These economic zones may completely or almost completely coincide with enlarged territorial-administrative entities such as the recently created federal districts, which increases the importance of economic zones as instruments of state regulation of the economy.

The economic regions of the Center and North of European Russia (with the exception of the North) are old industrial, industrially developed (almost 2/5 of the labor force, 1/3 of the country's production assets), with a predominance of leading manufacturing industries (especially high-tech mechanical engineering, including the military-industrial complex) and consumer complexes, using largely imported fuel, raw materials, and semi-finished products. Valuations of arable land and water, regional costs for the creation of industrial and social infrastructure (the latter are 2.5 times less than in the Far East) are among the lowest. However, fuel and energy resources cost consumers 3 times more than, for example, in Eastern Siberia. Some socio-economic indicators are highly differentiated: per capita cash income in Volga-Vyatka is 2.3 times lower than in the Center. The problems and prospects of the zone are basically the same as those of the regions of the European Core (for the Northern European ones they are the same as those of the Far North zone).

The south of European Russia has a powerful agro-industrial complex (1/5 of the country's production), including grain farming, production of valuable industrial crops (sunflower, sugar beets, etc.), large agricultural and a number of other branches of mechanical engineering, and large-scale recreational resources. Until recently, the share of agricultural production in the zone in the country was not inferior to the four regions of the Center and North, but became 1.5 times lower. The zone contains 1/6 of all agricultural land. The value of arable land is twice as high as in the Center. Water and forest resources are insufficient, and energy resources are practically absent. However, here is the world's largest iron ore basin - KMA (about 3/5 of Russian ore reserves).

The Volga-Ural zone is one of the most industrially developed in Russia (various mechanical engineering, especially military, heavy and complex, petrochemical industry, oil and gas production and refining) with a powerful agro-industrial complex (about 1/3 of the country's industrial and agricultural production). The production potential was largely formed on its own fuel and raw materials basis, which has not yet exhausted its capabilities (1/4 of the population, over 1/4 of fixed assets, 1/6 of iron ore reserves, 1/3 of agricultural land). At the same time, economic estimates of the most important production resources have intermediate values compared to the Center and Siberia. Complicating factors are the relative limited supplies of fuel and water (especially in the Urals). Environmental problems are acute (pollution of the Volga, consequences of a radiation explosion in the Southern Urals, etc.). The main tasks are related to the modernization of the industrial production apparatus (metallurgy, etc.), structural restructuring (conversion of the military-industrial complex), rationalization of inter-district and external fuel and raw materials relations.

The regions of Siberia are distinguished by powerful and highly economical natural resources (3/5 of all-Russian fuel and energy resources, almost 1/2 forest, over 1/3 water, etc.) and created significant production potential (almost 1/4 of fixed assets). At the same time, the development of natural resources, especially fuel and energy resources, is highly effective. The given costs for energy fuel for Siberian consumers are the lowest, as well as for water. In a number of cases, these and other valuable resources are successfully combined, creating a broad basis for their combined use within industrial hubs and industrial complexes. The agricultural land fund is huge, but the value of arable land is 2-3 times lower than in the south of Russia.

The Far East is a vast region of Russia (2/5 of its territory), combining huge and valuable natural resources (non-ferrous, precious and rare metals, diamonds, timber, furs, fish and other seafood) with an advantageous geographical location (neighborhood of the countries of the Asia-Pacific region with a population of about half the world).

In the coming decades, Siberia and the Far East should provide most of our needs for fuel, electricity, non-ferrous metals, wood, and a significant part for chemical materials. The power of Russia, as M.V. Lomonosov foresaw, “will grow with Siberia.” The most important task is to accelerate the creation of a wide market for semi-finished and finished products, consumer goods and to narrow the commodity market. At the same time, negative factors should be taken into account - the “rigidity” of natural conditions, especially in the northern part of the zone. The cost of construction and installation work, even in the south, is much higher here (in the Far East - by 35-40%) than in the central regions. About 2/3 of the territory is sparsely populated, regional wage coefficients are up to 1.8-2 and higher, regional costs for production and social infrastructure are also the highest. The solution of national economic problems is facilitated by the use of an appropriate division of labor between the south and north of the zone. Other problems and prospects are outlined when characterizing the Asian zone.

Of priority importance for the development of such a huge country as Russia is the rationalization of economic proportions between the main economic zones - the European and eastern regions. The territorial scope of effective management, progressive structural restructuring and intensification of production is primarily determined by the production, scientific and technical potential of the European zone. At the same time, our economy is significantly dependent on the fuel, energy and raw materials resources of the East. Since the time of industrialization, there has been a continuous increase in the share of the eastern regions in industrial production: in 1965 it was 17, in 1985 - 21, and now - about 29% (1913 - 3%).

The role of the European zone will increase primarily in the development of complex, knowledge-intensive industrial production, ensuring scientific and technological progress, especially mechanical engineering, chemical, and defense conversion (complexes of leading industries).

It is expected that nuclear energy, high-quality low-energy metallurgy, and the agro-industrial complex will develop more rapidly. Great importance is attached to solving acute problems of life support (fuel and energy, water, environmental, etc.).

At the same time, dynamic growth and improvement of the production structure will occur mainly through technical re-equipment and reconstruction of existing enterprises and entire industrial complexes (machine-building, chemical, textile, etc.), improving their production relations, inter-industry proportions and more efficient use of all economic resources (increasing production and capital productivity, reduction in energy and material intensity, etc.).

Due to the concentration here of huge manufacturing capacities, production and market infrastructure assets, and therefore large market potential, it is likely that after the economy has stabilized, the share of the European zone in the country’s industry will begin to increase, and this is advisable at this stage.

In the long term, the eastern regions will continue to have an active influence on the economic development of Russia and neighboring countries, which will be achieved by involving economical natural resources, primarily fuel and energy, in the national economic circulation, but taking into account strict resource-saving policies. At the same time, priority remains for the fuel and energy complex, the extraction of mineral raw materials, and especially for energy- and water-intensive manufacturing industries.

The problem of rational use of limited labor resources is of significant importance for the East. We are talking not only about the full replacement of living labor with high-performance equipment, but also about restraining the placement and development of labor-intensive industries, which complicate and increase the cost of the development of these areas. It is advisable, with the normal establishment of inter-district connections (cheaper transport tariffs, etc.), to abandon local self-sufficiency in many goods for industrial, technical and even consumer purposes and import them from European regions (instead of importing and settling a new workforce with families), using and such a favorable factor as the empty direction of railways from west to east.

The decisive conditions for retaining personnel and boosting the economy are the accelerated development of social infrastructure, the acceleration of housing, communal and cultural construction, the development of the agro-industrial complex and trade services, as well as

Creation of incentive measures for the settlement of Siberia and the Far East (taking into account the demographic pressure of the populous China). The transport problem must be solved to ensure reliable connections with the interior of Russia and abroad, as well as the transit of goods (containers) between the countries of Western Europe and the Asia-Pacific region. As part of the target program for the development of the Far East and Transbaikalia, a subprogram for the economic development of the BAM zone is provided

Content

History of the formation of the Federal Districts

Composition of the Federal Districts.

Authorized representative, his tasks and main functions.

Prospects for the development of the Federal Districts.

Bibliography.

Introduction.

The system of federal districts was formed by Decree of the President of Russia No. 849 of May 13, 2000 and was a combination of seven (by the number of districts) structural units of the new political division of Russia. The first change in their number (increasing to eight) and composition was the allocationNorth Caucasus Federal District from Southern Federal Districtbased on presidential decree YES. Medvedeva January 19, 2010
Each federal district is the arena for the activities of one of the eight plenipotentiary representatives of the President. The plenipotentiary representative is appointed and dismissed by the President of the Russian Federation on the proposal of the head of the Presidential Administration. Directly reports to the President of the Russian Federation and is accountable to him.The plenipotentiary representative ensures the implementation of the constitutional powers of the head of state within his “domains”. The tasks of this official include, first of all, organizing control over the implementation of decisions of federal authorities in the federal district, submitting regular reports to the President on the state of affairs in the region, and mediating in the interaction of presidential structures with government bodies of the constituent entities of the federation. The range of powers of the Presidential representatives in the federal districts is quite wide and affects control, information, and coordination functions, but to a greater extent the nature of these powers is represented by executive functions. The institution of plenipotentiary representatives, assigned by law to the system of bodies of the Presidential Administration, is essentially a branch of the executive branch.

History of the formation of the Federal Districts.

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

Composition of the Federal Districts.

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

The authorized representative, his tasks and main functions.

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

FEDERAL DISTRICT- in a number of states with a federal structure (USA, Brazil, Venezuela, Mexico, Argentina, Australia) a special administrative-territorial unit on the territory of which the capital of the federation is located. In Argentina F. o. called the Federal Capital District, in the USA - F. o. Colombia, in Australia - the capital territory, etc. F. o. can either be part of a federation on an equal basis with other subjects (Brazil), or is only an integral part, but not a subject of the federation, and is governed directly by the federal government (USA, Mexico, Venezuela). For the first time F. o. formed in 1790 in the USA on lands ceded by two states - Maryland and Virginia - for the construction of the new capital of the Union - Washington.

In May 2000, seven federal districts were formed in Russia: northwestern, central, Volga, North Caucasus, Ural, Siberian, and Far Eastern. The federal district is headed by the plenipotentiary representative of the President of the Russian Federation. Federal districts, without affecting the main (constitutional) administrative-territorial division, are a form of strengthening the vertical of state power. 7 federal districts were created by decree of the President of the Russian Federation V.V. Putin N849 dated May 13, 2000 “On the Plenipotentiary Representative of the President of the Russian Federation in the Federal District”; The same decree approved the Regulations on the Plenipotentiary Representative of the President of the Russian Federation in the Federal District.

The directions of development of the Russian economy have always been associated with the economic, natural, historical characteristics of the country, with its gigantic territory, huge and varied economic resources. In this regard, the role of centralized management of state power and its instruments has always been high. In addition to state borders and the center, management cells of the state space are needed. Hence, issues of the territorial and organizational structure of the economy became important. In Russia, the initially adopted reform model ignored the active role of the state in its implementation. Given the huge number of regions - subjects of the Federation and their unbridled desire to expand sovereignty, this greatly weakened the central state power.

Thus, the question of creating a form of state government in Russia has become vitally important. management at the federal (interregional) level in the form of authorized representations of the central government in enlarged administrative-territorial entities, for example, federal districts, which is consistent with the Russian Constitution (Article 71), which refers the federal structure to the jurisdiction of the Federation 1.

By the Decree of the President of Russia of May 13, 2000 “On the plenipotentiary [representative of the President of the Russian Federation in the federal [district]” in order to ensure the implementation of his constitutional powers, increase the efficiency of the activities of federal government bodies and improve the system of control over the implementation of their decisions, the institution of plenipotentiary representatives of the President of Russia in the regions it was transformed into an institution of plenipotentiary representatives of the President in federal districts and the corresponding Regulations and list of federal districts were approved.

Since the organizational and economic function is the most important for the state not only in a planned economy, but also in a regulated market economy, the new form of state-territorial division is based not on a national or formally administrative factor, but primarily on the principles of economic zoning. Since public administration is broadly functional, it is necessary to use elements of special zoning, which has always been used, including in pre-revolutionary Russia (military districts, transportation districts, etc.). That's why top, 7 federal administrative and economic entities as part of groups and individual economic regions with some changes in boundaries (Fig. 12.1). Moreover, the middle, regional link (with all branches of government) is preserved.

The adopted scheme of federal districts combines the prevailing zonal division (Central, Northwestern, Volga, Siberian, Far Eastern districts) and an adjusted macro-regional division (Southern, Ural districts). The territorial boundaries of federal districts may change in the future. As for their current scheme, it includes not only economic zoning, but also elements of defense (military districts) and national-political zoning; this led to the necessary transformation of some (especially the Volga and Ural) territorial-economic macrocomplexes.

With the enlarged administrative division, the number of territorial authorities with which the central authorities deal, resolving issues of budget financing, taxation, privatization and others, is reduced by an order of magnitude and at the same time the federal government, unloading in the center, moves closer to the localities. Instead of 89 administrative “connections” with the regions, the federal center now has a direct connection with 7 federal districts, each of which, in turn, is connected with an average of 12-13 regions. The advantages of macroregions and zones also affect the management of federal energy systems, transportation routes, information and communications, and the provision of defense capability (including mobilization preparation), law and order and national security.

Let us recall that before the revolution, such administrative formations were the general governorships and governorships, which included several provinces and were endowed with greater rights. In the Soviet years, large economic regions and zones were used for territorial planning, an integrated and duplicative economy was created in them, and currently interregional associations of economic interaction function in these territories, without, however, showing active activity due to the lack of state legal status.

Federal districts have special national significance, are intended to solve national problems, cementing a single political and economic space of Russia, and the federal center should primarily rely on them, as the basic structure, in its relations with the territories. Therefore, it made sense to create in them not regional, but federal authorities(management), moving a number of relevant functions of regulation, coordination, order and control from the central apparatus to the territorial one (without affecting the functions of the regions), which meets the interests of federalism in the new conditions (there is no need to delegate functions to the districts, because they are established by the center, while the districts are “ center on the periphery").

The important tasks of the plenipotentiary representative of the President (Russia in the federal district) are the implementation by government bodies of the main directions of the domestic and foreign policy of the state, monitoring the implementation of decisions of federal government bodies, regular reports to the President on ensuring national security, on the political, social and economic situation in the district with making appropriate proposals.

Among functions authorized representative:

Coordination of the activities of federal executive authorities in the district;

Organization of interaction of these bodies with government bodies of the constituent entities of the Federation, local governments, political parties, other public and religious associations;

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

Organizing control over the implementation of federal laws, decrees and orders of the President, decrees and orders of the Government, and the implementation of federal programs;

Participation in the work of government bodies of the constituent entities of the Federation, as well as local government bodies within the district, etc.

In such multi-resource economic zones, the best conditions can arise for the territorial and economic integration of productive forces, the formation of corporate production and commercial structures, regional markets with large commodity resources and a powerful market infrastructure. Prerequisites are being created for the effective regulation of scientific and technological progress, investment activities, for justified economic incentives (taxes, prices, tariffs, etc.), establishing self-financing and commodity self-sufficiency, organizing a system of state support for underdeveloped territories, and developing comprehensive territorial forecasts and plans. It will be possible to better overcome market-induced trends towards sharp unevenness in economic and social development and carry out regular monitoring of its regional levels.

There will always be contradictions between the center and the regions due to their different interests, but their severity can be significantly reduced. More complete information about the state of affairs and personal contacts between various authorities will ensure better mutual understanding, this is facilitated by the proximity of federal administration to the territories.

3.Activities of Interregional Associations of Economic Cooperation.

Interregional associations of economic interaction are coordination structures of the executive and legislative authorities of the constituent entities of the Russian Federation. These associations unite the interests of their member regions in economic relations with the federal center

The activities of associations are supported by the federal government. Decree of the Government of the Russian Federation dated September 16, 1993, No. 918 defined their main tasks and delegated some rights of federal bodies (to form a territorial fund of commodity and raw material resources, issue permission for barter transactions, determine the size and procedure for collecting fees for the use of natural resources, and a number of others) . It should be noted, however, that these associations are, in fact, public associations and do not have a serious impact on the activation of interregional integration processes. Spontaneously created and not interconnected by general economic goals, they cannot yet be considered as the basis for a new zoning. They were created starting in the summer of 1991. For each association, an order was adopted by the Chairman of the Supreme Council of the RSFSR, in which significant economic benefits were provided to the regions that joined the association.

A total of 8 associations were created, covering by the beginning of 1999 the entire territory of Russia, except for Chechnya (8 regions are included in two associations at once). The territories of the associations largely coincided with the territories of 11 economic regions of Russia (including the Association "North-West" - Northern and North-Western regions; "Big Volga" - Volga and Volgo-Vyatka; "Siberian Agreement" - East Siberian and West Siberian).

There are currently eight such associations in operation. The territories (regions) of associations mainly coincide with large economic areas. The main exceptions are the North-West association (unites the Northern and North-Western economic regions), the Big Volga association (unites the Volga-Vyatka and Volga economic regions), the Siberian Agreement association (unites the West Siberian and East Siberian economic regions). In addition, some federal subjects are simultaneously members of two associations. The Kaliningrad region is included in the "North-West" and "Central Russia" associations, the Novgorod region - in the "North-West" and "Black Earth Region", the Bryansk and Tula regions - in the "Central Russia" and "Black Earth Region"; Tyumen region - in the "Big Urals" and "Siberian Agreement", Buryatia, Chita region and Aginsky Buryat Autonomous Okrug - in the "Siberian Agreement" and "Far East and Transbaikalia". The Union of Russian Cities also takes part in some events of interregional associations as an observer. In addition, the Association of Autonomous Entities, created in 1992, claimed equal status with interregional associations. On February 5, 1993, the leaders of 8 associations signed a Cooperation Agreement with the Government of the Russian Federation, and on July 14, 1994 - with the Federal Assembly of the Russian Federation.

Currently, the activities of associations for economic interaction of the constituent entities of the Russian Federation are regulated by the Federal Law “On the General Principles and Activities of Associations for Economic Cooperation of the Subjects of the Russian Federation” adopted by the State Duma on November 17, 1999. According to Article 1, this Federal Law defines the general principles of the organization and activities of associations for economic interaction of the constituent entities of the Russian Federation. In the second article of the Law, an association is defined as a non-profit organization, the founders of which are government authorities of the constituent entities of the Russian Federation and which is created on a voluntary basis for the purposes of interregional integration and socio-economic development of the constituent entities of the Federation.

According to the law, associations perform a number of tasks, including in the international field: preparing proposals on issues of international and foreign economic relations of the constituent entities of the Russian Federation.

This law not only regulates the activities of the association in the intraregional, economic, social, technical, legislative, investment, and financial spheres, but also determines its powers in the international sphere.

National-territorial division (autonomous okrugs, republics) - When dividing, it involves taking into account the national composition of the population of the region, its historically developed characteristics of work and life. A nation-state federation is based on national factors and therefore takes place in a multinational state. Such a federation is characterized by republics included in the federation, autonomous forms of statehood, etc.; cultural autonomies may also occur

The transition of the country's economy to market relations requires a differentiated approach to the development of the subjects of the Federation included in the district. In the last decade, a significant decline in production was observed in areas related to the development of the machine-building complex and oriented towards the development of light industry. This is due to the use of outdated equipment and uncompetitive products produced in the leading sectors of the region’s economic complex. The high concentration of military-industrial complex enterprises in the region also played an important role in the decline in production.

The district has the necessary conditions for the production of import-substituting products. Increasing labor productivity at enterprises of the machine-building complex is possible only under the condition of a radical reconstruction of a significant part of the enterprises and improvement of their technical equipment. Deepening the specialization of mechanical engineering should be associated with the production of high-tech and competitive products that are in demand not only in the domestic but also in the foreign market.

The prospects for the development of the chemical industry in the district can only be realized through the reconstruction and technical re-equipment of existing enterprises. Further expansion of their capacity is inappropriate, since the federal district is experiencing a shortage of water resources and belongs to environmentally unfavorable areas of the country. The orientation of light industry towards imported raw materials (mainly from the republics of Central Asia) put light industry in a difficult situation. Therefore, the development of the industry should be oriented towards strengthening its own raw material base through the development of flax growing in the most favorable climatic regions of the country - the Central, North-Western, northern regions of the Volga federal districts.

Effective development of the food market is possible only with the creation of a modern, developed infrastructure. To do this, it is necessary to accelerate the implementation of the program for the development of wholesale food markets, exchanges, and fairs, create a state information system on the market for agricultural raw materials and food, and organize a wide network of information and consulting services for commodity producers.

The creation of joint-stock companies, various types of partnerships, agricultural cooperatives, associations of peasants and farms, along with the development of profitable collective and state farms, will ensure the formation of a multi-structure economy in order to better use local conditions and resources.

It is advisable to attract foreign investors to develop the most promising areas of the economic complex. The existing system of financial relations between the state and agricultural producers also needs improvement. It is necessary to create a special lending fund with preferential terms and provide loans not only to profitable enterprises, but also to those farms that, based on the use of credit, can conduct expanded reproduction, and in agricultural areas - to financial and industrial groups of the agricultural sector. In this case, financing of agricultural enterprises is carried out through forward deliveries of products, and the allocated funds are directed to the implementation of effective programs in agro-industrial production.

One of the necessary conditions for the development of market relations is the creation of market infrastructures not only in industrially developed areas, but also in regions that are significantly lagging behind economically.

Carrying out a rational demographic policy is important. Improving the living standards of the population of the country and the district will increase the birth rate in the region.

At the current stage, the institution of federal districts is in need of stabilization. There is ongoing debate about the effectiveness of the system, which is largely due to the fact that many elements of the district system have not been finalized, “polished” and standardized across all districts.

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

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

Development trend of federal districts.

There are various socio-economic development strategies for federal districts. I'll look at a number of them.

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

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

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

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

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

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

Another direction is the development of tourism and health resort facilities. The south of Russia, with its unique beaches of the Black Sea coast of the Krasnodar Territory (Sochi, Anapa, Gelendzhik), with its mild climate and sunny days, is a fertile region. Resorts in southern Russia are capable of hosting up to 25 million people annually.

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

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

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

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

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

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

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

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

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