Organizational structures of local administrations of rural and urban settlements, municipal areas. Organizational structure local administration is largely determined by the status of the municipality and its resources. For example, in the Arkhangelsk region, local administrations function in 19 municipal districts, 24 urban and 179 rural settlements.

The organizational structure of the local administration of a municipal district reflects the functional and sectoral approaches in its formation. It is practically no different from the Soviet organization of executive power; it does not have the ability to adapt to the new conditions of managing municipal property and the municipal economy.

In connection with the adoption of the new edition Federal Law"About general principles organizations local government in the Russian Federation" local administrations of urban and rural settlements have been formed. The organizational structure of the local administration in a rural municipality of the first level must correspond to its main goals - maximum use of the potential of the local community, effective management of municipal property and territory resources to ensure living conditions for the local population. One of the problems in the formation of local administration seems to be the lack of rural areas qualified management personnel of municipal managers. Therefore, one of the most important principles in the work of local administration to resolve issues of local importance is the involvement of the local community, and above all those local residents who have successfully adapted to new economic conditions.

Administrations of municipalities of cities with the status of urban districts. In the practice of municipal government, several types of organizational structures of local administration can be distinguished.

Strictly centralized type. His choice is justified by the following arguments:

1. A city is a single administrative-territorial whole, within the boundaries of which only one municipal entity is created. Districts, as administrative-territorial units, are abolished. Instead, it is possible to create territorial districts, within the boundaries of which administrations function as structural divisions of the city administration.

2. In conditions of socio-political and economic instability, the most acceptable option for managing municipal property and municipal economy is the centralization of powers and concentration of resources at the level of the city administration, provided that there are no independent district administrations subordinate to the corresponding representative body. This allows for more efficient management of the city economy, more economical and rational use of available financial and material resources.

3. The creation of a unified organizational structure of the city administration makes it possible to reduce the number of administrative staff, making it more mobile and adapted to work in new conditions.

Legally, the above approach is enshrined in the City Charter, according to which the city administration, as a local government body, is a legal entity, i.e. acts as a single body for managing the city economy and the subject of civil legal relations. All sectoral, functional and territorial divisions are included in its organizational structure.

A strictly centralized type of city administration is represented by a municipal government body in which its entire organizational structure functions in a “fire brigade” mode. To manage individual sectors or a group of sectors of the urban economy, departments are created that are endowed with not only managerial, but also economic powers. These structural divisions plan their work, carry out their plans and exercise their departmental control over the municipal organizations subordinate to them.

At the same time, due to the daily workload of solving pressing problems in the life of citizens, the accelerated “movement” of personnel from the former district level to management positions on a city scale reveals the inability of the city administration to determine the prospects for the development of the city economy and to objectively assess the results of its municipal activities.

In the organizational structure of the city administration, the role and place of the divisions of the financial and economic block are underestimated, which in their activities, on the one hand, are called upon to serve sectoral departmental structures, and on the other, to act as independent subjects of market relations. This is the contradictory nature of their position. And to resolve this problem it is necessary to change their status, powers and method of management activities.

The creation of structural territorial divisions of the city administration is not envisaged. It is quite possible to form departmental districts (utility districts, school districts, etc.).

Moderately centralized type of organizational structure of the city administration reflects the presence in the city of a two-level system of municipal management.

The city is divided either into administrative or territorial districts, which are not intra-city municipalities and units of administrative-territorial division of an urban settlement (former districts may also be deprived of this status). Their creation was determined by local governments’ need to improve the efficiency of urban management and bring local authorities closer to residents.

A two-level system involves citywide and district (territorial) levels of urban management. At the first level, issues of complex social- economic development cities, developing a strategy for managing the municipal economy and its individual sectors; management of municipal services of citywide importance is carried out (water supply, energy and heat supply, provision of services to the population by urban passenger transport, etc.), etc. At the second level, issues related to meeting the most pressing vital needs of the population are provided (maintenance of housing stock, landscaping of the territory , organization of cultural leisure, sporting events, etc.).

A two-level urban management system provides for the formation of an appropriate organizational structure of the city administration, which allows for the redistribution of functions between sectoral, functional and territorial divisions. We are talking about the transfer to the administrations of territorial districts of powers related to:

With the solution of operational issues related to ensuring the livelihoods of the population of the district;

With the organization and development of territorial public self-government;

With the implementation in the district of decisions of the representative body of local self-government, resolutions and orders of the head of the local administration;

With security public order, with the safety of citizens;

With the improvement of the territory of the district;

With the organization of free time for residents of the district, etc.

In our opinion, the most optimal for performing the relevant functions is the organizational structure of the district (district) administration in large cities. For example, in the city of Novosibirsk it is a combination of the following elements:

Head of Administration;

Deputy heads of administration (5 in total, including housing and communal services; economic issues; social issues; education, youth, culture and sports; business manager);

Management (finance and tax policy, housing, business management);

Departments (15 in total, including: improvement and public utilities, energy and utilities, economic development, long-term development of the region, social protection of the population, healthcare, education, youth affairs and culture, organizational and control, etc.);

Committee on Physical Education and Sports.

Administrative and technical inspection (7).

The district administration is a legal entity, has settlement accounts for the execution of cost estimates, and has financial resources. They consist of funds allocated from the city budget and targeted extra-budgetary funds.

Thus, the “moderately centralized” type of organizational structure of the city administration necessitates an increase in the role of its territorial structural divisions represented by district administrations, administrative or territorial districts.

At the same time, there is a change in the functions of sectoral structural divisions of the city administration. They are “freed” from the functions of promptly resolving issues related to the activities of subordinate municipal organizations, which are unusual for this link, and which are assigned to their leaders and the administration of the district or district. At the same time, the role and importance of such areas in the municipal management activities of sectoral structural divisions is increasing, such as the development of city administration policy in a subordinate industry or group of industries municipal economy, assessment of the efficiency of use of municipal property and the city budget, the work of municipal organizations, etc. And this, in turn, requires a change in existing stereotypes and approaches in municipal government, a review of the functions, role and place of sectoral structural divisions in the organizational structure of the city administration. There is an objective need to form a new organizational structure. It will differ from the old “Soviet-municipal” model in its ability to adapt to changing “external” and “internal” operating conditions of a given municipal management body.

One of the “transitional” options could be organizational structure of the Krasnodar City Hall (8).

The city operates a two-level model of municipal management. Its territory is divided into four administrative districts. An administration has been created in each district, which is a territorial structural unit of the mayor's office.

Special purpose city ​​mayor's office is to ensure financial independence local government through effective management of municipal property and maximum use of the socio-economic potential of the city and its population.

The purpose of this chapter is to study local authorities as a management link in the system of municipal government. The issues of building and improving the organizational structures of executive bodies of local self-government, planning and organizing their activities on the basis of modern technologies of municipal government, personnel and information support of municipal government, and organization of control in the municipality are considered. The criteria and methods for assessing the effectiveness of municipal government are characterized.

Mastering the material in the chapter will allow the reader to master the methods of forming rational models and organizational structures of local governments and practical solutions to the problems of municipal government in relation to the characteristics of a particular municipal entity

Factors influencing the organizational structure of local administration

The general structure of municipal authorities, the division of powers and the system of relationships between its three main links (representative body, head of the municipality, local administration) were considered in Chapter 1 mainly from a legal perspective. Here we are talking about practical organization and technological process municipal government. The most important role in this process is played by the local administration as the executive and administrative body of the municipality. Therefore, the presentation of issues related to the organization of municipal government begins with a consideration of the organizational structure of the local administration.

Organizational structure - most important factor activities of a local government body, the form in which the process of municipal government is implemented.

The organizational structure is understood as the composition and subordination of interrelated organizational units (individual positions), units (managerial units) and steps (levels) endowed with certain rights and responsibilities for performing the corresponding target management functions.

A control link is a separate cell with strictly oriented control functions, and a control stage (level) is a set of control links located at a certain hierarchical level.

It was shown above that municipalities differ significantly in the size of their territory, the size and composition of the population, their position in the system of territorial division of labor, economic potential, the composition of the municipal economy, and the level of development of engineering and social infrastructure. The type of municipal formation predetermines the composition of the subjects of local government, which, in turn, determines the scope of tasks and functions of all municipal government bodies, including the administration.

The goals, objectives and functions of municipal government directly influence the structure of the local administration and serve as the basis for the identification of independent units in it that are responsible for achieving specific goals and solving individual problems. specific tasks. The more complex the economic complex in a particular municipality, the more important is the interconnection of all its components, a comprehensive solution to issues of socio-economic development and environmental protection. Accordingly, to achieve these goals, appropriate structural units are organizationally allocated or strengthened within the administration.

The composition of the main factors influencing the organizational structure of the local administration is presented in Fig. 8.1.1.

Municipal entities, which differ in the composition of the tasks and management functions to be solved, and the required volume of management work, differ in the number and internal structure of executive bodies. The administration of a large urban district may have hundreds of employees and dozens of structural units, while the administration of a small rural settlement may have only 5-7 employees.

Along with the above external factors, it is necessary to highlight internal factors affecting the structure of the administration: personnel, technology, management technology, labor organization. On the one hand, they influence the organizational structure of management, on the other, they themselves are determined by it. Thus, management personnel influence the management structure in terms of redistribution of functions between departments and individual employees. But basically it is the management structure that determines the composition of positions and requirements for personal qualities workers. The introduction of information technology affects the structure of the administration in terms of both a reduction in the number of employees in individual departments and the emergence of new departments (information services). When forming the organizational structure of the administration, it is necessary to take into account both external and internal factors.

The most important factor influencing the formation of an organizational structure is the norm of controllability (range of control).

The controllability norm is the maximum permissible number of employees whose activities can be effectively managed by one manager under certain organizational and technical conditions.

Both the number of employees in a particular unit and the number of administrative units depend on the standard of control. In turn, the controllability rate depends on a number of factors (Fig. 8.1.2).

Principles of building the organizational structure of the administration

The formation of the structure of local administration is the organizational assignment of certain functions of municipal government to individual management units and officials. The solution to this complex problem is provided based on a combination scientific methods with the subjective activity of specialists. Therefore, when designing organizational structures, it is important to follow the rules (principles) of their construction, which include: focus on achieving goals, prospects, ability to develop (adaptability), complexity, individualization, efficiency. Let's look at these principles.

The organizational structure should contribute to achieving the goals of municipal management. This is ensured by: establishing the rights and necessary fullness of responsibility of each management level for achieving the tasks assigned to it; balancing the tasks of units of one management level in relation to the tasks of a higher level; rational division and cooperation of labor between links and levels of management and their interaction.

2. Perspective.

Local governments must, while resolving operational issues, simultaneously work to determine a strategy related to the socio-economic development of the municipality. For this purpose, it is necessary to provide in the organizational structure a block of promising, strategic management, separating it from the operational and current control unit. In practice, this is achieved by dividing powers between representative and executive bodies, as well as by creating special units in the organizational structure of the administration that deal with the development strategy of the municipality.

3. Ability to develop (adaptability).

The need to develop the organizational structure is explained by the tendency of constant changes in external conditions and emerging imbalances in the system of municipal government. Under these conditions, the organizational structure must be sufficiently elastic, capable of adapting to the perception of corrective influences. In practice, this is achieved by periodically making changes to the organizational structures of local governments, as well as by creating temporary targeted units (headquarters, commissions, committees).

4. Complexity.

When building the organizational structure of the local administration, it is necessary to take into account that all stages of management activities must be structurally ensured:

♦ analytical stage (problem analysis, definition possible ways solutions);

♦ task setting (identification of activity priorities);

♦ making a management decision (choosing a technology and algorithm for solving a problem, determining the final and intermediate results);

♦ execution of the decision (specific activities to implement the management decision);

♦ assessment of results (analysis of performance results, preparation for the next analytical stage and a new cycle).

The principle of complexity requires, when analyzing a structure, to proceed primarily from the integrity of a particular function. This is especially important when the execution of a function is “divided” across different structures or when the execution of a given function requires the use of several structural divisions of the administration. It is advisable that issues falling within the jurisdiction of one or another structural unit administration were as complete as possible, which is especially important for sectoral structural divisions.

5. Individualization.

The formation of an organizational structure should be based on taking into account the individual characteristics of a particular municipality. In this regard, all kinds of standard organizational structures can be used only as recommendations and indicative ones. As practice shows, abandoning unified models, relying on analysis and taking into account local characteristics yield positive results.

6. Cost-effective.

The organizational structure must ensure the effective and efficient implementation of the municipal management process, the ability to obtain the necessary results in the most economical way. Cost-effectiveness can be achieved through various measures, including through the introduction of positions ( system administrator, information technology specialist, etc.), whose functions include analysis of the current organizational structure, functional and hierarchical division of powers, remuneration of municipal employees, mechanization and automation of management processes in order to improve them.

The principles for constructing organizational structures may be refined, and the forms and methods of using these principles may change in connection with changing external conditions, goals and objectives. However, the basic principles must be respected, as they express General requirements to the organization of municipal government.

Approaches to the formation of the organizational structure of local administration

The organizational structure of the local administration as an executive and administrative body is built on the principles of unity of command and hierarchical subordination. The process of forming the organizational structure of the local administration includes the formulation of goals, objectives and functions, determination of the composition and location of units, their resource provision(including the number of employees), development of relevant regulatory procedures and documents.

This process is divided into several stages (Fig. 8.1.3).

Rice. 8.1.3. The process of forming the organizational structure of local administration

Real systems of municipal government are distinguished by a wide variety of organizational structures of administrations. But at the same time, there are general approaches to building organizational structures. The most promising is a system-targeted approach with a focus on the final results of the system. Issues of goal setting in municipal activities were discussed in Chapter 3. Determining the system of goals (“tree of goals”) and the tasks of a particular municipal entity serves as the main guideline for the formation of its organizational structure. When forming an organizational structure based on a “tree of goals,” a decomposition of the goals and objectives of municipal government to specific management functions is required.

Thus, with a system-target approach, real conditions are created for individualizing the process of forming an organizational structure in relation to the characteristics of a particular municipal entity.

The system-target approach in this case is that, based on the ultimate goals of municipal management:

♦ do not lose sight of any of the management tasks, without which the implementation of goals will be incomplete;

♦ identify and link in relation to these tasks a system of functions, rights and responsibilities along the vertical management;

♦ explore and institutionalize connections and relationships along the management horizontal, i.e., to coordinate the activities of different units and organizational units in the implementation of common tasks;

♦ to ensure an organic combination of vertical and horizontal management, to find the optimal ratio of centralization and decentralization in decision making for given conditions.

When building an organizational structure based on a “tree of goals,” it is important to give a qualitative and quantitative description of goals and objectives. A qualitative characteristic serves as a justification for identifying management functions, a quantitative one - for determining the type of organizational unit (department, department, department, etc.).

The distribution of tasks between departments of the local administration can be carried out according to several criteria:

♦ by groups of management objects (branches of municipal activity) that ensure the provision of municipal services of a certain type: education, healthcare, construction, youth policy, etc.;

♦ by functional sign, determined by the nature, functions and stages of management activities and the management cycle: analysis and planning, control, property management, finance, legal support, information support, etc.;

♦ on a territorial basis (currently for municipalities in rural areas and for large cities, and after the Federal Law of 2003 came into force - only for large cities).

The practice of building organizational structures of local administrations

In modern municipal practice, typical parts of the organizational structure of local administration are:

♦ head of administration;

♦ his deputies in areas of municipal activity, among whom there may be one or two first deputies;

♦ structural divisions various types which may be subordinate to the head of the administration, one of his deputies, or subordinate to each other (for example, a department within the department);

♦ collegial advisory bodies: administration board, economic and other councils;

♦ administration apparatus.

From the point of view of the above distribution of tasks and goals of activity, the structural divisions of the administration are divided into four groups (Fig. 8.1.4).

The responsibility of sectoral structural divisions includes issues related to the management of specific sectors of municipal activity.

These divisions perform the functions of a customer for the execution of work and the provision of municipal services. Their main role is manifested at the stage of implementing the goals and objectives of life support and development of the territory.

The subjects of activity of functional (staff, general competence) structural units cover a specific function for the entire administration and its structural units. Their main characteristics are the use of advantages associated with the specialization of functions and the ability of the administration to see the entire territory within the framework of its function. According to the classification of the goals of municipal activities (see Chapter 3), functional units are classified as supporting ones. Usually they are given the right to coordinate decisions of other structural units, for example, on compliance with the law or the possibility of financing.

The creation of territorial structural divisions is associated with the need to bring local government bodies closer to the population and makes it possible to combine the centralization of the most important functions at the highest level of municipal government with increased efficiency in solving current issues. At the same time, it is important to prevent the fragmentation of the functions of municipal government bodies and the loss of advantages associated with specialization. To stimulate the initiative of territorial structural units, they may be granted autonomy within the cost estimate.

Auxiliary units (apparatus) do not have their own competence to resolve issues of local importance and perform the functions service management of the administration and its structural divisions. The apparatus plays an important role in organizing the work of the administration. As its subsystem, it plays the same role as the municipal government in relation to other subsystems of the municipality. In particular, the device provides:

♦ planning and coordination of the work of all administration structures;

♦ work with documentation (paperwork);

♦ preparation and holding of meetings, meetings, boards, and other events;

♦ communication with the media, holding press conferences;

♦ control over the execution of decisions;

♦ organizing the reception of citizens, working with complaints and suggestions;

♦ logistical, legal, personnel, information, financial support for the activities of the administration;

♦ interaction between the administration and the representative body and often its economic services.

The chief of staff is usually equal in status to the deputy head of administration.

The administration apparatus may include services such as a general department (working with documentation), a personnel service (sometimes it reports directly to the head of the administration), a reception for citizens, a legal service, an information service, economic services, a press service, its own accounting department, and a control apparatus. and so on.

The head of the administration and his deputies may have their own staff, which includes, in particular, secretaries, assistants, assistants, and advisers.

Such organizational structures are called linear-functional, since they are based on a certain system of interaction between linear (industry) and functional structural units and decision-making by linear units in agreement with functional ones.

In accordance with the volume and distribution of tasks and functions, specific organizational units are created within the administration: departments, departments, committees, departments, etc. To solve management problems, large organizational units are divided into smaller ones, forming new levels. For large cities with big apparatus management, it is advisable to delimit management functions in as much detail as possible, creating special units for their implementation. For small settlements, the most acceptable scheme is one in which the functions performed are grouped, and first of all, the functions of industry divisions should be combined. However, combining the functions of departments whose interests contradict each other within one department is undesirable.

To perform functions delegated by government bodies, it is sometimes advisable to use separate separate structural units. This is important because, in terms of the execution of delegated powers, local governments are financed and controlled by the relevant authorities state power.

The board - one or another advisory body under the head of the administration - plays a special role in the work of the Administration. It makes decisions on the most important issues of municipal management, with the exception of decisions that are within the competence of the representative body. The decisions of the board, if necessary, are formalized by resolutions and orders of the head of the administration.

Program-target structures in local administrations

In the context of the implementation of economic and political reforms Linear-functional organizational management structures in a number of cases do not meet the requirements for the management of increasingly complex objects and goals of municipal government. To eliminate this discrepancy, the linear-functional structures of administrations can be supplemented with structures of a new type - program-targeted ones. They are created to solve specific target problems and can be permanent or temporary. As a result of this addition, matrix organizational structures of municipal government are formed.

When a new problem arises that requires a solution within a certain period of time, a work program is drawn up, the resources necessary to implement the program are allocated, and a temporary team of workers is formed. Employees of the municipal government body, included in the temporary team for the implementation of the target program, are in double subordination during its implementation: administratively subordinate to their line manager (vertical communication) and functionally subordinate to the program manager (horizontal communication).

In the municipal government system, program-target structures are implemented in the form of commissions, headquarters, working groups, etc. The list of such units changes periodically. Some are eliminated, others appear again, many exist for years.

Commissions are created on certain period to solve any escalating problem. The purpose of creating commissions is to find a way out of the current management situation. Commissions use situational analysis methods in their work.

The creation of working groups within the administration is associated with the solution of specific management tasks and is temporary. Typically, work groups perform design tasks. For example, when reorganizing a government agency, it is effective to create a special group for the organizational design of the administration structure and the development of new work technologies.

When forming structures of program-targeted management, it is advisable to develop maps (matrices) of the distribution of rights and responsibilities between bodies of linear-functional and program-targeted structures. They detail and clearly record the general rules of decision-making, the division of responsibility of several bodies for different aspects of one result, the role of collegial and advisory bodies in the decision-making process.

The need to implement program-targeted functions requires the creation of a separate strategic, innovation block in the administration structure. Its activities should be aimed at identifying problem situations and posing problems, translating problems into task packages and transferring them to industry and functional units. The main tasks of the strategic block are as follows.

1. Constant monitoring of the existing state, established norms and relations in various areas of local life: analysis of the situation, recording of discrepancies and conflicts, organization of research.

2. Development of programs to prevent crisis situations, as well as projects to reorganize and change the situation in various spheres of life, ensuring that its main parameters are brought to a level corresponding to objective ideas about the settlement. This work includes the development of technical specifications for programs and projects, their analytical and legal support, examination of strategic decisions submitted for approval to the head of the administration, development of schedules for the implementation of subprograms and projects, their budgeting, development of business plans, etc., and also internal management audit.

Improving the organizational structures of municipal government

The main disadvantages of existing linear-functional structures of municipal government are associated not only with their organizational building, but also with the most established ideology of municipal government. These shortcomings boil down to the following.

1. An established approach to the municipality and, accordingly, to its management as a production or social-production system.

The main emphasis is on improving the performance of the structural divisions of the administration themselves (housing and communal services, transport, healthcare, etc.), and not on the degree and quality of meeting the needs of the population for a particular municipal service. In other words, the criterion for the effectiveness of a service is its own indicators, and not the final result of its activities.

2. Focus on solving current problems related to the life support of the municipality, and the lack of a strategic approach to management.

The variety of current private tasks and goals of municipal government inevitably gives rise to contradictions between them, due primarily to the limited material and financial resources. Each structural unit is aimed at solving its task and strives to obtain maximum resources for this. In this case, the entire control system often works ineffectively.

3. The vagueness of the system of functional connections between individual structural divisions, duplication of functions, uneven workload of workers, lack of clear organizational procedures through which divisions interact with each other.

As a result, the bulk of the work falls on the shoulders of the head of the administration, who has to resolve many coordination issues.

4. Mixing of management functions and direct economic activities. Many structural divisions of administrations, being legal entities, provide various paid services and earn money for their existence, i.e., in essence, they are engaged in commercial activities. This business is risk-free because it is conducted on the basis of municipal property, for effective use which lacks proper supervision. For this reason, some structural divisions of the administration began to transform from municipal government bodies into financial and industrial groups by type of activity.

Due to the above, the reorganization of municipal government structures is a complex and complex task.

Like any other organization, local administration is a social system. Social organization (unlike professional organization) is not development-oriented; its main criteria are stability and immutability. Any attempts to change the state of a social organization are perceived by it as an existential threat and, if possible, are rejected. Innovations cause a certain shift in equilibrium in social systems and consequences that are not always foreseeable. Therefore, it is required special methods activation of innovation processes.

In addition to the contradictions between traditional and innovative activities, in practice, even more important are the contradictions within the innovative activities themselves - between radical and improving types. It is impossible to radically reorganize any structure from the inside, since this requires, figuratively speaking, to rise above the problem and look at it “from above.”

If we talk about the actual organizational structures of local administrations, then the main directions of their reorganization may be as follows.

1. Exclusion from the framework of the administration of structures engaged in economic activities and therefore having the status legal entity, giving them form - municipal institutions. The 2003 Federal Law provides that local government bodies, endowed with the status of a legal entity, are municipal institutions intended to perform managerial functions and are subject to state registration as legal entities.

2. Creation of large organizational and administrative blocks in the structure of the administration, whose leaders bear full responsibility for the implementation of municipal policy in relevant areas and for achieving its ultimate goals. Such blocks can be an economics and finance block, a municipal real estate management block, a municipal services block, a social policy block, a public safety block, etc. These issues were partially touched upon in previous chapters. The creation of large blocks makes it possible to significantly reduce the burden on the head of administration in resolving current issues, allowing him to devote the bulk of his time and effort to strategic management tasks.

3. Creation, along with classical linear-functional organizational structures, of structures of a program-target or program-functional type, as mentioned above.

The need to combine different types of organizational structures and methods for achieving goals determines the complexity of the development and implementation task effective system municipal administration, reorganization of the organizational structure of the administration. It is required to develop a model and organizational project for reorganization, a package of regulatory requirements for individual structures and areas of their activity. It is also necessary (and this is the most important thing) to convince administration employees of the necessity and advisability of the reorganization, and to retrain some specialists. At the same time, the reorganization of municipal government structures should unfold simultaneously along several parallel lines:

♦ development of a model and organizational project for reorganization;

♦ development of a regulatory framework for the activities of a local government body;

♦ development of a package of regulatory requirements for various areas municipal activities;

♦ development of regulations on the main organizational and administrative blocks;

♦ description of organizational procedures and functional connections of the entire space of interaction between various management structures, main jobs and preparation of job descriptions;

♦ retraining and advanced training of administration employees;

♦ preparation of a personnel reserve for municipal administration.

Questions for self-control

1. What factors influence the formation of the organizational structure of the local administration?

2. How are tasks and functions distributed between the structural divisions of the local administration?

3. What types of organizational structures are used in municipal government?

4. What are the basic principles for building the organizational structure of the local administration?

5. What stages does the process of forming the organizational structure of the local administration include?

6. What are the main types of structural units of the local administration?

7. What are the main directions for improving the organizational structures of local administration?

In accordance with Part 8 of Article 37 of the Federal Law of October 6, 2003 No. 131-FZ “On the General Principles of the Organization of Local Self-Government in the Russian Federation,” the structure of the local administration is approved by the representative body of the municipality on the proposal of the head of the local administration. The law indicates that the structure of the local administration may include sectoral (functional) and territorial bodies of the local administration. If the local administration is headed by the head of the municipality, then he represents the structure of the local administration. It's clear.

The question arises, if the structure of the local administration was approved before January 1, 2006 by a resolution of the head of the municipality, and no changes are expected to be made to it, is it necessary to approve the structure of the local administration by the Duma of the municipality?

Part 3 of Article 83 of the federal law establishing the general principles of the organization of local self-government in the Russian Federation indicates that the provisions of Article 37 “Local Administration” come into force on October 8, 2003 and until January 1, 2006 apply exclusively to legal relations arising in by virtue of the requirements of Articles 84 and 85 of the said federal law, dedicated to the peculiarities of the implementation of local self-government in transition period and ensuring the implementation of the provisions of this law. That is, the structure of the local administration must be submitted by the head of the municipality or the head of the administration for approval by the Duma.

Another question arises: what is the structure of the local administration: a list of functional, sectoral, territorial bodies of the local administration or something else?
The answer to this question is given by Modern encyclopedic Dictionary: “Structure (from the Latin “structura” - structure, arrangement, order) is a set of stable connections of an object that ensure its integrity and identity, that is, the preservation of basic properties during various external and internal changes.”

In relation to the structure of local administration, we can say that the structure of local administration is a network of stable and orderly connections between structural elements local administration, determined by the nature of ensuring the execution of the powers of the executive and administrative body of local self-government according to sectoral, functional and territorial characteristics. The structure indicates which divisions of the administration, which specialists of the administration, who are not part of the divisions of the administration, are subordinate to the head of the administration or the head of the municipal entity heading the local administration directly, and which are through the corresponding deputy heads of administration, to whom they are directly subordinate.

I would like to draw your attention to the fact that if the administration is headed by the head of a municipality, then he does not have deputy heads of the municipality, but there are corresponding deputy heads of administration.

In the structure of the local administration, deputy heads of administration can be named as the first deputy head of the administration, the deputy head of the administration for economics, the deputy head of the administration for social issues, that is, indicating the scope of issues of local importance, the executive and administrative powers for which they are vested according to the distribution of powers between the head of administration (the head of the municipality who heads the local administration) and the corresponding deputy heads of administration. This distribution of powers, as a rule, is formalized by a resolution or order of the head of the administration (head of the municipality). Deputy heads can be indicated without defining their functions, since the names of departments, departments, and committees of the local administration subordinate to a specific deputy make clear the scope of their powers to resolve issues of local importance. This option, in conditions where issues of local importance and the powers of local self-government bodies change very often, is preferable, since it gives the person heading the administration the opportunity to redistribute powers without making changes to the structure of the administration in terms of renaming the positions of the corresponding deputies.

The structure of the local administration is depicted graphically and may look like this if the administration is headed by the head of the municipality (see diagram).

If, at the proposal of the head of the municipal entity heading the local administration, municipal positions of the municipal service are established to directly ensure the execution of the powers of the highest official of the municipal entity, which he is, then these positions are included in the structure of the local administration. Such municipal positions of the municipal service include leading positions: adviser to the head of the municipal formation and press secretary of the head of the municipal formation and senior position - assistant to the head of the municipal formation. At the same time, it must be remembered that a fixed-term contract is concluded with persons filling these positions. employment contract(contract) for the term of office of the person elected as the head of the municipality.

If there are territorial administration bodies in the structure of the administration, then they are all listed in the structure, indicating to whom they are directly subordinate. They usually report to the head of the municipality, who heads the administration, or to the head of the administration. The names of these structural divisions can be very different: Ivanovo territorial administration or management of the Ivanovo rural territory, or Ivanovo rural administration, or management of the territory of the village of Ivanovskoye, and so on and so forth.

Of course, deputies of the municipal Duma will ask a legitimate question about the qualitative and quantitative composition of the structural divisions of the administration. Therefore, when preparing a draft decision of the Duma on the structure of the municipal administration, the relevant administration specialists must prepare an explanatory note for this draft decision, which briefly indicates the functions of each structural unit, job responsibilities specialists who are not part of the structural units, the number of municipal and technical employees who are part of the structural units of the administration is also indicated.

When approving the structure of the administration, as well as other local government bodies, it should be remembered that the financing of expenses for the maintenance of local government bodies, and therefore the local administration, is carried out exclusively from the municipal budget’s own revenues. Therefore, the number of municipal employees and technical workers should be optimal, as well as job descriptions municipal employees and technical workers of local administration.

There is no need to say that any reorganization in the administration is carried out after the Duma makes a decision to make changes to the structure of the administration of the municipality.

Each local government body must draw up and approve staffing table. To compile it, a Register of municipal positions of the municipal service of the municipality is required. It is a list of municipal positions of the municipal service, established by a municipal legal act in accordance with the register of municipal positions of the municipal service, approved by the law of the Sverdlovsk region. Since this document includes municipal positions of the municipal service, established to ensure the execution of the powers of elected officials of the representative body and the representative body of the municipal formation, the highest official of the municipal formation, administration and other local government bodies, municipal bodies of the municipal formation, it must be approved The Duma of the municipality on the proposal of the heads of these bodies.

The register of municipal positions of the municipal service must contain as many paragraphs as there are local government bodies included in the structure of local government bodies, approved by the charter of the municipality. If a municipal election commission is formed in a municipal entity, which is a municipal body that is not part of the structure of local self-government bodies, then a paragraph is included in the Register of municipal positions of the municipal service of the municipal formation, which indicates the municipal positions of the municipal service established to ensure the execution of the powers of the municipal election commission.

The register indicates municipal positions of the municipal service established to ensure the execution of the powers of the chairman, deputy chairman of the Duma and the Duma of the municipal formation, then the head of the municipal formation, then the administration of the municipal formation, other local government bodies, while municipal positions of the municipal service established to ensure the execution of powers A separate paragraph is devoted to a specific other local government body. The name of another local government body is indicated in accordance with the name specified in the Charter of the municipality.

Each paragraph indicates municipal positions of the municipal service by category: senior, main, leading, senior, junior, that is, those that are being established, and not those that can be established.

If the local administration is headed by a person appointed to the position of head of the local administration under a contract concluded as a result of a competition for filling the specified position, then in the paragraph devoted to municipal positions of the municipal service established to ensure the execution of the powers of the administration, among the highest positions, the position is indicated "head of Administration". If the administration is headed by the head of a municipality, then among the highest positions the position of “head of administration” is not indicated.

Among the highest positions, the positions of deputy heads of administration are not listed with an indication of the direction of activity, but the positions of “first deputy head of administration”, “deputy head of administration” are simply indicated.

The main positions are listed in accordance with administration structure, but without indicating the name of the structural unit of the administration, for example: chairman of the committee, head of the department, head of the department, head of the village administration, head of the village administration, head of the territorial department, head of the village territory management, head of the village territory management, head of the rural territory department.

Leading and senior positions are indicated in the same way. At the same time, the positions Chief Specialist" and "leading specialist", if they are part of a structural unit, the chief specialist of the committee, the chief specialist of the department, the chief specialist of the department, the leading specialist of the committee, the leading specialist of the department, the leading specialist of the department, the leading specialist of the rural administration, the leading specialist of the rural administration are indicated respectively territory, etc.

Junior positions are indicated in the same way if they are part of a structural unit of the local administration.
The content of the paragraph devoted to municipal positions of the municipal service, established to ensure the execution of the powers of the administration, is set out in such detail because it is in this local government body that the greatest number municipal positions of the municipal service.

A few words about the municipal positions of the municipal service, established to ensure the execution of the powers of the representative body of the municipality. In our region, in most municipalities, municipal positions of the municipal service are not established to ensure the execution of the powers of the chairman of the Duma, deputy chairman of the Duma. Therefore, municipal positions of the municipal service, established to ensure the powers of the Duma of the municipality, can be indicated as follows:
senior positions:
- Chief of Staff of the Duma;
- Chairman of the Accounts Chamber of the Duma (if the control body is not part of the structure of local government bodies);
main positions:
- Deputy Chief of Staff of the Duma;
- Deputy Chairman of the Accounts Chamber of the Duma;
- head of the Duma apparatus department;
leading positions:
- Deputy Head of the Duma Apparatus Department;
senior positions:
- Inspector of the Accounts Chamber of the Duma;
- chief specialist of the Duma apparatus department;
- leading specialist of the Duma apparatus department;
junior positions:
- specialist of the 1st category of the Duma apparatus department;
- specialist of the 1st category of the Duma apparatus;

To prepare draft decisions of the Duma on the structure of the administration of a municipal formation and on the register of municipal positions of the municipal service of a municipal formation, it is necessary to be guided for municipalities, respectively, endowed with the appropriate status, by Articles 14, 15, 16 of the Federal Law “On the General Principles of the Organization of Local Self-Government in the Russian Federation” , Article 17 of the same law. This will prevent the creation of departments in the administration with names such as “department of industry and energy”, “department of natural resource management”, etc.

Also used are the Laws of the Sverdlovsk Region “On municipal service in the Sverdlovsk region (as amended by the Regional Law of July 15, 2005 No. 85-OZ), “On the register of municipal positions of municipal service established in municipal bodies located on the territory of the Sverdlovsk region” (in edition of the Regional Law of December 10, 2005 No. 118-OZ).

23. Organizational structure of local administration

Organizational structure is the most important factor in the activities of a local government body, the form in which the process of municipal government is implemented.

The organizational structure is understood as the composition and subordination of interrelated organizational units (individual positions), units (managerial units) and steps (levels) endowed with certain rights and responsibilities for performing the corresponding target management functions.

The structure, staffing and number of local administrations are determined by the head of the local administration and approved by the head of the municipal formation, and sometimes by the representative body of the municipal formation. The structure of the administration includes various departments, divisions, sectors, committees and other structural units of a sectoral, functional, territorial nature, including units for managing municipal property, local finance, housing and communal services, etc. In large municipalities, departments of health care, education, transport and communications, etc. are created. The local administration has its own service apparatus (administration, accounting, personnel department, legal service, etc.). The composition of each structural unit of the executive body of local self-government is headed by a director (head of department, head of department, etc.).

The goals, objectives and functions of municipal government directly affect the structure of the local administration and are the basis for the identification of independent units in its structure that are responsible for achieving specific goals and solving certain specific tasks.

In modern municipal practice, typical parts of the organizational structure of local administration are:

Head of Administration;

His deputies in areas of municipal activity, among whom there may be one or two first deputies;

Structural units of various types, which may be subordinate to the head of the administration, one of his deputies, or subordinate (for example, a department within a department);

Collegial advisory bodies: administration board, economic and other councils;

Administration apparatus.

From the point of view of the above distribution of tasks and goals of activity, the structural divisions of the administration are divided into four groups: sectoral, functional, territorial and auxiliary.

The responsibility of sectoral structural divisions includes issues related to the management of specific sectors (areas) of municipal activity. They perform the functions of a customer for the execution of work and the provision of municipal services. Their main role is manifested at the stage of implementing the goals and objectives of life support and development of the territory.

The subjects of activity of functional (staff, general competence) structural units cover a specific function for the entire administration and its structural units. Their main feature is the use of advantages associated with the specialization of functions, and the ability of the administration to consider the entire territory within the framework of its function. According to the classification of the goals of municipal activities (see Chapter 3), functional units are classified as supporting ones. Usually they are given the right to coordinate decisions of other structural units, for example, on compliance with the law or the possibility of financing.

The creation of territorial structural divisions (district in large cities, etc.) is associated with the need to bring local government bodies closer to the population and makes it possible to combine the centralization of the most important functions at the highest level of municipal government with increased efficiency in solving current issues. At the same time, it is important to prevent the fragmentation of the functions of municipal government bodies and the loss of advantages associated with specialization. To stimulate the initiative of territorial structural units, they may be granted autonomy within the cost estimate.

Auxiliary units (apparatus) do not have their own competence to resolve issues of local importance and perform the functions of supporting the activities of the management of the administration and its structural units. The apparatus plays an important role in organizing the work of the administration. Being its subsystem, it plays the same role as the municipal government in relation to other subsystems of the municipality.

The head of the administration and his deputies may have their own staff, which includes, in particular, secretaries, assistants, assistants, and advisers.

Such organizational structures are called linear-functional, since they are based on a certain system of interaction between linear (industry) and functional structural units and decision-making by linear units in agreement with functional ones.

In accordance with the volume and distribution of tasks and functions, specific organizational units are created within the administration - departments, divisions, committees, departments, etc. To solve management problems, large organizational units are divided into smaller ones, forming new levels. For large cities that have a powerful management apparatus, it is advisable to delimit management functions in as much detail as possible, creating special divisions for their implementation. For small settlements, the most acceptable scheme is one in which the functions performed are grouped, and first of all, the functions of industry divisions should be combined. However, combining the functions of departments whose interests contradict each other within one department is undesirable.

In the context of economic and political reforms, linear-functional organizational management structures in a number of cases do not meet the requirements for managing the increasingly complex objects and goals of municipal government. To eliminate this discrepancy, the linear-functional structures of administrations can be supplemented with structures of a new type - program-targeted ones. They are created to solve specific target problems and can be permanent or temporary. As a result of this addition, matrix organizational structures of municipal government are formed.

In the municipal government system, program-target structures are implemented in the form of commissions, headquarters, working groups, etc. The list of such units changes periodically. Some are eliminated, others appear again, many exist for years.