MUNICIPAL SYSTEM OF STRATEGIC MANAGEMENT OF INNOVATIVE DEVELOPMENT OF ECONOMIC SYSTEMS: THEORETICAL AND METHODOLOGICAL ASPECT

V. A. MIGITA

The article discusses the fundamental possibilities of creating a system strategic management innovative development of economic systems in municipalities with the status of a large city. The essence of strategic management of innovative development of economic systems of the city economy is revealed. An enlarged structure of the administration of a large city is proposed, including a development subsystem oriented towards innovative development, and a block diagram of the strategic management of innovative development of the economic systems of a large city.

Key words: municipality, large city, strategic management of innovative development, innovative activity, economic systems.

Despite the fact that the topic of strategic management is not new, and the effectiveness of using the concept of strategic management at the municipal level has already been demonstrated in a number of Russian municipalities, most of the latter still lack both a clear and holistic understanding of its essence and a systematic approach to development. This, in turn, complicates the work of managers at the municipal level, who for the most part refer to the lack of adequate methodological support for the processes of strategic management of innovative development.

In this context, the term "innovation" is more productive to consider on the basis of and in conjunction with such concepts as "innovative activity", "innovative products", "innovative basket" and "innovative system".

Innovative activity is a systemically integrated into a single whole, a continuous process of performing work and providing services aimed at: creating and organizing production of a product that is fundamentally new or with new consumer properties; creation and application of new or modernization of existing methods (technologies) of its production and diffusion; application of structural, financial, economic, information and other innovations in the production and marketing of products (goods, works, services) that provide cost savings or create conditions for it. Innovative products are the result of innovative activities

property (goods, works, services) intended for sale. We define the innovation basket of an organization (city, region, country) as a set of innovative projects coordinated in time and space in terms of resource consumption, which are at different stages of the reproduction process, this set is managed as a single whole and makes up the entire activity of an enterprise (city, region, countries). An innovation system is a set of subjects and objects innovation activities, interacting in the process of creating and selling innovative products and carrying out their activities within the framework of the state policy in the field of development of the innovation system.

The objects of innovative activity are new or improved goods, services, technologies that differ from those known by their new quality, specificity, which allows: in the conditions of an industrial society, to satisfy existing needs to a greater extent or with preferred effect indicators; in the conditions of a post-industrial society, to create and satisfy new needs in the traditional or new market segments.

In the military space of large cities, in our opinion, it is quite acceptable.

So, we propose to interpret the category "strategic management of innovative activity of economic systems" as coordinated in time and space, limited by available resources, the development, adoption, transfer, execution and control of the effectiveness of a set of management decisions, ensuring the impact on the processes and objects of innovation in the interests of fulfilling the mission of the organization, the economic efficiency of the innovation activity of the economic systems of the city within the framework of the adopted development strategies. The subject of strategic management of the innovative development of the economic systems of the city are the management relations that arise in the course of influencing the object of management - innovative processes (with the aim of harmonizing them in the socio-economic system in the city), allowing to transfer the managed object from one state to another in the interests of the local community and based on the efficient use of local (own) resources.

The greatest interest in strategic management is found among business entities - manufacturers of high-tech goods. This is due to the long life and market cycles of such goods, the large volume of necessary investments, the complex structure of the processes of their creation and operation. Such business entities compete both in the domestic market - for the Russian consumer, and in foreign markets - at the highest levels of competition, i.e. within specific innovative strategies, constantly offering the buyer more and more perfect goods (works, services) produced within the framework of newer technologies for development, production and management. Therefore, in the future we will consider the content of the management of the innovative development of the economic systems of the city as a strategic management, using a systematic approach.

Structural restructuring of the image of the economy of a large city is a complex, long-term, socio-economic process that depends on a combination of internal and external factors. Currently, he focuses on the problems of innovative growth. The key condition for the success of actions aimed at the innovative development of the economic systems of the urban economy is the creation of an effective

systems of strategic management of this process .

Management of the processes of innovative development of the city's economy implies a clear delimitation of the powers of the hierarchical levels of management. Currently, there is an active scientific discussion of this problem. Many researchers insist on the need to create a vertical of control (the state as federal center which adopts and implements the program of economic restructuring). However, some scientists are of the opinion that in the sphere of structural transformations of the economy, the state should only perform regulatory functions.

It seems to us that the state, within the framework of the ongoing economic policy, should take responsibility for the implementation of the main functions in the field of innovative development of the structure of the economy. These include the substantiation of the goals and main directions of innovative structural transformations in the economy, the formation of a resource base and a mechanism for implementing innovative structural changes, and many others. others

This is all the more important because the current economic situation in Russia imposes specific requirements on justifying the goals of innovative structural transformations. First of all, we are talking about overcoming the negative trend towards deepening the country's raw materials specialization, restoring the structural and technological balance of the production apparatus, reducing the level of dependence on imports (food, pharmaceuticals), which is dictated by considerations of national security, etc. The listed goals are, of course, , strategic character. First, their setting is determined by factors not only internal, but also external. Secondly, achieving these goals will take a relatively long time. It is obvious that setting goals should be carried out not only in relation to the country as a whole, but also in the subjects of the Federation, which creates the prerequisites for the development and implementation of a nationwide regional structural economic policy.

An analysis of the practice of managing structural transformations in the economy of Russian cities shows that it is dominated by two main approaches to determining the subject of managing transformation processes. The first of them is that the functions of the subject of management of structural transformations in the economy are

kind are assigned to the divisions of the administration in charge of economic development. With all the external logic of such an approach, in our opinion, it is by no means indisputable, since in this case the level of complexity of solving the problem decreases. It is well known that the weak point of Russian city management structures is the undeveloped regulation of horizontal links between economic, social, environmental and urban planning blocks of the management system. Therefore, the problem of structural restructuring of the city's economy is considered, first of all, as an economic problem. At the same time, it has a pronounced social aspect and is closely related to the issues of environmental, urban planning, scientific and innovative and similar development of the city.

Another approach to solving the problem we are considering is directly opposite to that noted above. With a view to a comprehensive structural transformation of the urban economy, attempts are being made to equate the reorganization management system with the city management system. However, with a certain generality of these concepts, it must be borne in mind that they are not identical, do not correlate with each other as a part and a whole.

Thus, we have every reason to assert that at present, a constructive system of strategic management of the innovative development of the economic systems of the urban economy has not yet developed. In some cases, there are its separate elements that function in isolation from each other. The main obstacle to the creation of an integral system of strategic management of the innovative development of the economic structures of Russian cities are unresolved problems, and, first of all, of a methodological nature.

In this regard, we will try to find out the essence of the strategic management system for the innovative development of the economic systems of the city. In doing so, a number of fundamental considerations should be taken into account. Firstly, the problem of transferring the city's economy to an innovative type of development is of high importance and should be considered not only in economic but also in social aspects. If the economic aspect of the problem of such structural transformations is associated with an increase in the economic efficiency of the functioning of the city's economy, then its social aspect is aimed at improving the quality of life of the population. Voltage

The current situation in the sphere of socio-economic development of many cities in Russia, expressed in a relatively low quality of life for a significant part of the population, a crisis or stagnant state of the economy, greatly increases the role of the managerial factor in solving the problems of structural restructuring of the urban economy and transferring it to an innovative type of development.

Secondly, great importance in the management system of innovative development of economic systems of the economy of cities in Russia has its strategic component. After all, the actual strategic nature of the system consists in predicting possible changes in the internal and external environment of the object of management (the structure of the city's economy), adapting the process of its innovative development to them, which is especially important in relation to the complex, multidimensional and consistent process of innovative structural transformations of the city's economy.

Thirdly, the reforms being carried out in the country, aimed, in particular, at clarifying the functions of state and municipal government, make it necessary to isolate the federal and municipal components in the system of strategic management of the innovative development of the economic systems of the city's economy, as well as other interested subjects of management and management.

Consequently, the system of strategic management of the innovative development of the economic systems of the city's economy is characterized by the complexity and diversity of elements and relationships, the hierarchical structure.

The question arises, how can a system consisting of many parts be able to exist and change as a whole, how do the integral properties of the whole arise, which its parts are deprived of? Representatives of the pluralistic direction believe that the parts of the system are coordinated with each other. They influence each other, but are not divided into defining and determined. Proponents of the monistic current believe that at each "stage" of the structure of the system, one can single out the main system-forming factor that affects all other phenomena.

It seems to us more productive, at least in relation to the consideration of the system of strategic management of the innovative development of the economic systems of the urban economy, the second approach associated with the allocation

in the control system of the main system-forming component. Let's justify this position in more detail.

Academician R. Grinberg, for example, notes that the presence of a state component in managing the structure of the economy generally corresponds to the traditions accepted in Russia. In our country, the opinion has firmly established itself about the objective need to strengthen the role of the state in managing the socio-economic development of administrative-territorial entities of various levels, including in the field of structural transformations of their economies. At the same time, the role of the state in pursuing structural policy should not be to support specific enterprises, but to create conditions that ensure sustainable and dynamic development of the economy on an innovative basis.

The essence of strategic management of the innovative development of the economic systems of the city's economy can consist, in our opinion, in the targeted impact of state and municipal governments, other interested management and economic entities on innovative changes in the composition, content of its constituent parts, existing proportions and relationships between them in order to create sufficient and effectively functioning economic base of city self-government, focused on improving the quality of life of the population.

In turn, under the system of strategic management of innovative development of the economic system of the urban economy, it is proposed to understand the totality of the object of management (the structure of the city's economy) and the subject of management, which includes the organizational structure, mechanism and management process as the main constituent elements. The organizational structure of management reflects the relationship of its constituent parts. Under the management mechanism we understand the general principles, goals, functions and methods of managing structural transformations in the city's economy, under the management process - the activities of all levels of management to achieve the goals of innovative development.

Among the economic factors that determine the development of the system of strategic management of innovative transformations in the structure of the city's economy, one should, first of all, indicate the correspondence of management systems to the processes occurring in the structure of the city's economy. However, the level and nature of

The flow of the processes of innovative transformations in the structure of the city's economy is constantly changing, which leads to the emergence of a contradiction, which consists in the discrepancy between the object and the subject of management of the innovative development of the structure of the city's economy. This contradiction stimulates the continuous improvement of all components of the system of strategic management of the structural restructuring of the city's economy and is the essence of the considered economic pattern.

Another regularity in the development of the system of strategic management of the innovative development of the structure of the city's economy is manifested in the unity of management of the complex socio-economic development of the city and innovative transformations of its structure. It finds expression in linking the goals of the socio-economic development of the city, the innovative development of the structure of its economy and the city management system.

Strengthening the economic nature of the strategic management of the innovative development of city structures is a consequence of the influence of a number of factors. Firstly, the creation of a modern management mechanism has objectively changed the motivation of city government, which seeks to improve the efficiency of the economy in order to increase the local budget. Secondly, system-wide transformations in the country's economy stimulate the economic interest of other subjects of management and management in the transformation of the structure of the economy, the implementation of which can be carried out on the principles of partnership mutually beneficial relations with the city government.

All the essential characteristics and main economic patterns of the development of the system of strategic management of innovative transformations of the structure of the city's economy that we have considered can serve as a theoretical basis for the formation of a methodology for building an appropriate system and management methods.

Another important problem in creating a system of strategic management of innovative development of the structure of the urban economy is to determine the composition of its components and disclose their content. In the general case, such a management system is a multi-level system that includes federal, regional and city components, as well as other interested management and business entities (for example, enterprises that have

ties in cooperation with the industrial structures of the city). The city component of the system of strategic management of innovative transformations in the structure of the city's economy is considered as the core of such a system, the task of which is to ensure the development and implementation of local structural economic policy.

The municipal system of strategic management of innovative development of the economy can be represented as a set of target, functional and supporting subsystems. The list of target subsystems for managing innovative transformations in the structure of the city's economy is ultimately determined by the specific innovative goals of structural transformations. The general logic of developing such goals is as follows: from the goals of improving the quality of life of the population to the goals of increasing the revenue side of the city's balance of financial resources, one of the most important means of achieving which are the goals of innovative development of the city's economy.

The key role in building a municipal system of strategic management of innovative development, as well as in the process of strategic management itself, in our opinion, should belong to the administration of the municipality.

finger education. It should implement the functions of coordination and methodological support of the process of strategic management. However, most administrations of municipalities cannot perform these functions, since there are neither special units nor specialists capable of performing the relevant work. Therefore, the construction of a municipal system of strategic management of innovative development involves making changes to the structure and management system of the administration. This is a consequence of the expansion of its functions and the need to reorganize the work in modern conditions.

Depending on the desired (expected) scale of the changes, there are two options for building a strategic management system in the administration municipality.

The first option proceeds from the fact that with a significant scale of changes, strategic functions (including long-term planning) are provided after the separation of the municipal development subsystem in the administration structure. The enlarged structure of the administration of the municipality in this case may look like the one shown in Figure 1.

Rice. 1. Possible enlarged structure of the administration of the municipality

with the status of a major city

The second option proceeds from the fact that with less significant changes in the development subsystem, only functions directly related to the development and implementation of strategic development programs on an innovative basis are combined. At the same time, the structural consolidation of the other functions of the administration remains virtually unchanged. When implementing this option, it is minimally necessary to consolidate the following functional blocks within a separate administration unit:

1) a block for the formation of strategic programs;

2) block of financing and attraction of investments;

3) program and project management unit;

4) unit for ensuring compliance with established organizational and management procedures;

5) information and analytical block.

The system of strategic management of innovative development of economic systems of a large city currently does not have a clear algorithm. However, it can be argued that, in general, the algorithm fits into the general technology for developing managerial decisions and consists of interrelated stages: goal setting, strategic analysis, strategic forecast, development strategy development. At the same time, using the world experience in strategic management and planning, we should not forget about the peculiarities of modern Russia. In the prosperous developed countries of the West, the processes of strategic management and planning take place in conditions of a fairly “smooth” course of socio-economic processes and a large amount of resources. Modern Russia is at a socio-economic "turning point", the problem of resources and their optimal use is much more acute.

The very process of strategic management of the innovative development of the economic systems of a large city should, in our opinion, include the following stages:

Collection and analysis of information on the state of innovation potential in the city, factors, resources and problems affecting innovation activity and the level of socio-economic development of the city, as well as preparation and submission of a general review and assessment report to the authorities;

Preparation of a science-based forecast (options) for the innovative development of the city for the long-term (10 years), medium-term (3-5 years) or short-term (1-2 years) perspective, taking into account

the volume of the results of a comprehensive analysis of information, design and recommendations of the central federal authorities, proposals on the intentions of the economic systems of the city, etc.;

Development of the concept of innovative development of economic systems of the city, which determines the strategic goals and ideas of innovation policy, the main directions, ways, means and benchmarks (indicative indicators) that ensure the successful implementation of the city's innovative and socio-economic policy;

Development and approval, taking into account the forecast and the concept of innovative development, municipal target innovative programs;

Implementation of control (monitoring) over the implementation of target programs, prompt introduction of possible and necessary changes and clarifications;

Acceptance and implementation by the customer of the results of completed innovative developments or the possible sale of these results at auctions (bidding) to potential buyers, i.e. the inclusion of a market regulator of diffuse processes - the transfer of innovations.

The creation of an integral system of strategic management of the innovative development of the economic systems of a large city presupposes the availability of appropriate scientific support. Meanwhile, there are still many unresolved theoretical, methodological and methodological problems. We propose the following block diagram of the strategic management of the innovative development of the economic systems of a large city (Fig. 2).

Let us consider in more detail the main stages of the proposed scheme of strategic management of the innovative development of the economic systems of a large city.

At the first stage of goal-setting, it is important to correctly form the main goal. The content of the goal depends on the objective laws of reality, different human capabilities and the means used to achieve the goal. There are strategic (global) and tactical (local) goals. The goal has a qualitative meter and an indefinite spatial and temporal state - a kind of "mirage". However, in order to plan life goals, a person needs certainty, so the goal must be concretized into real tasks using the criteria for the effectiveness of its achievement. The criterion for achieving the goal always has a quantitative assessment, which is incorporated in the methodology for developing a strategic plan.

Rice. 2. Block diagram of strategic management of innovative development of economic systems of a large city

In general, it should be noted that in goal-setting, in this case, all standard procedures used in strategic management are applied.

The study of external and internal factors that determine the possibility of innovative development of the economic systems of the city is based on the methods of SWOT-analysis and 8TBR-analysis. At this stage, it is very important to take into account all the potential opportunities for innovative development.

The initial data for the analysis are strategic goals and criteria, parameters of the socio-economic situation of the city, the questionnaires "Ranking the global problems of the city", "Ranking the local problems of the macro subsystem", the results of a study of the macro environment, for example, the questionnaires "Problems - ideas - experience" and "Argumentation of strategic ideas ".

The collected information makes it possible to determine the social and economic features of the city, divide these features into strengths and weaknesses, and compare them with opportunities and threats in the city's development. The main elements of the analysis are:

Identification of strengths;

Identification of weaknesses;

Analysis of strategic opportunities;

Identification of market threats;

Search for positive synergy "strengths - opportunities";

Eliminating negative synergies weak sides- Threats.

A reasonable balance between all the noted characteristics of the internal environment of the city is achieved by adjusting the weaknesses and activating the strengths as a potential

the basis for the formation of competitive advantages of the city. At the same time, the task of the SWOT analysis is not just to show the strengths and weaknesses, but to rank them in relation to the city's development goals. It does not make sense to stimulate all the advantages and compensate for all the disadvantages. It is necessary to identify only those that are of decisive importance for the development of the city and significantly affect the target markets of buyers of its services. Therefore, the task of the study is to synthesize those factors that reveal the main advantages and disadvantages of the city in competition with others, and to determine those favorable chances and threats that should be taken into account in accordance with the synthesized factors.

At the stage of analysis and diagnostics of the state of the innovative environment of the economic systems of the city, the innovative activity of economic systems, their innovative potential, as well as the innovative activity and potential of the city as a whole are revealed.

Strategic management assumes the presence of five elements: the ability to simulate the situation (identify the problem); ability to identify the need for changes (development ideas); ability to develop a strategy for change (basic strategies); the ability to use various methods of influence (management methods) in the course of changes; ability to implement the strategy (change management).

Options for future development allow developing a strategy for each area of ​​innovative development of the economic systems of a large city in several versions, depending on the state of the external environment (STEP-analysis) and the internal environment of the city (SWOT-analysis).

In strategic management, it is customary to consider three main options (alternatives) for development:

1) pessimistic, when there is a deterioration in the socio-economic situation and quality of life of the population;

2) realistic, based on the stabilization of the socio-economic situation and the quality of life of the population;

3) optimistic, when there is an improvement in the socio-economic situation and quality of life of the population.

When developing these options, the main indicators that have developed over the past few years, characterizing their dynamics and the economic situation of the city, as well as the results of STEP and SWOT analyzes, are taken into account.

When developing these options, the situation of the city that has developed over the past few years is taken as a basis. The proposed development strategies are necessary for making alternative management decisions to bring individual industries out of the crisis National economy depending on the state of the external environment and available resources. Strategies are needed to develop targeted comprehensive programs for the development of the economy, primarily in those areas where the city has a competitive advantage in Russia or in any federal district.

Authorities are obliged to take measures to create and develop the remaining scientific potential, to develop mechanisms to support the scientific potential of large cities - scientific centers and to enhance its innovative use.

When developing an urban innovation policy and choosing socio-economic priorities, it is necessary to maximize the socio-economic opportunities for innovation potential. For this you need:

1) identify the most effective areas for the development of science and technology with an economically justified prospect of the practical implementation of the expected results in the economic systems of the city;

2) provide for their development, implementation and implementation in the markets of the final product with high economic efficiency in urban intersectoral (interdisciplinary) and sectoral programs.

The resulting effect (profit) can be a source of replenishment of the city budget, funds allocated for R&D and additional funding for the social problems of science.

The composition of state target programs is determined on the basis of the developed methods for evaluating the effectiveness of investments. The developments of Russian scientists on the procedures for evaluating proposed projects deserve serious attention from government agencies, constituting the institutional foundations of innovation activity in Russia. They are often based on the synthesis of studies on the experience of countries where innovative activity is successfully carried out. The Ministry of Industry and Science of Russia proposes to improve the indicators for evaluating investments in innovative projects, taking into account the high risks in this field of activity.

As the main priorities, it is necessary to accept the direction of the considered areas of development and programs for their implementation in

solution of scientific and technological problems identified in the process of developing resource support for the implementation of long-term socio-economic tasks, the solution of which is necessary for the implementation of relevant projects, programs, measures of a socio-economic and defense nature.

When developing any targeted program in the infrastructure sectors of the territorial (urban) economy, at enterprises operating mainly in the regional markets for goods and services, as well as producing goods of interregional and export specialization, it is necessary to:

1) holding marketing research justifying the costs of R&D, the acquisition of innovations and investments in fixed assets;

2) the development of sectoral (enterprise) programs for the technological development of industries that provide an effect in the medium term (3-5 years) should be accompanied by a comprehensive (economic, social, environmental, scientific, technical and other) justification confirming the efficiency calculations. Programs should have more or less separate stages of implementation.

It is fundamentally important to develop mechanisms for coordinating and evaluating resource support for the concept of innovative development of economic systems of a large city, medium-term programs for innovative development of city-forming industries and enterprises. The tool for their coordination can be an indicative factorial economic forecast for the development of the city as a whole and its main industries, in particular, in this forecast, the main source of economic growth, along with financial and material resources, is the implementation of innovative and investment development opportunities in priority areas. In this case, science will act as an active factor in socio-economic development.

As the main parameter of the forecast, an increase in the profitability of production as a result of updating the material and technical base of industrial enterprises of the economic structure, an increase in the sale of goods and services, etc. can be considered, which will make it possible to develop indicators for the development of production capacities, identify needs for investments and other resources, possible sources of their receipt; form an order for the scientific complex for modern new equipment and goods, and for mechanical engineering - for the production of technology

cal equipment. At the same time, the impact of technological re-equipment on the main parameters of the socio-economic development of the city will be assessed.

When developing the concept of innovative development of economic systems of a large city, it is necessary to provide for:

Development of a system of economic and organizational incentives for the growth of the efficiency of the city's economy on the basis of increasing the knowledge intensity, competitiveness of goods and services;

Expansion of opportunities for commercial use of the developments of the scientific complex of the city;

Solving the social problems of the development of science in the city as the main city-forming industry;

The transition from supporting science to financing the development and use of the scientific reserve.

Authorities and self-governments of large cities could increase the share of their direct participation in the financing of research and development for implementation in infrastructure and city-forming industries. Their indirect support of local scientific and technical organizations conducting research in the interests of the region would be carried out by reducing the tariffs for them for public utilities, due to exemption from tax (in terms of the city budget) on profits allocated for the expansion and modernization of production; by reducing the rate of rent for the use of land for buildings and premises.

The central mechanism for the formation of the city's order for science, determined by the strategy for its development, is the competitive selection of proposals from scientists, manufacturers and consumers of products in terms of socio-economic efficiency.

At the stage of monitoring the implementation of the concept of innovative development of economic systems of a large city, it is proposed to control such indicators of innovation as:

The amount of research and development costs recognized as expenses of the period or capitalized as part of non-current assets;

The amount of initial investment costs, including investments in the acquisition and creation of non-current assets;

Costs for current activities (operation of innovations);

Assets and liabilities of the innovation segment;

loan servicing costs

mov and other sources of financing of innovative activity (including own capital).

Thus, the strategic management of the innovative development of the economic systems of a large city implies the ability to anticipate innovative opportunities in a timely manner, to concentrate resources on priority areas of scientific and technological progress that ensure the monopoly position of products and services in the global and domestic markets; comprehensively and promptly manage the innovation cycle in order to increase the competitiveness of the city.

Literature

1. Grinberg R. Russian structural policy: between inevitability and uncertainty // Questions of Economics. 2008. No. 3.

2. Ostapyuk S. F., Filin S. A. Formation and evaluation of the effectiveness of scientific, technical and innovative programs. M., 2004. S. 242-248.

3. Rokhchin V.E., Yakishin Yu.V.

rodskih structures of the economy // Economics and management. 2008. No. 4. P. 16.

4. Rokhchin V. E., Yakishin Yu. V. Strategic management of structural restructuring of the economy in Russian cities. St. Petersburg: IRE RAN, 2001.

MUNICIPAL SYSTEM OF STRATEGIC MANAGEMENT OF INNOVATIVE DEVELOPMENT OF ECONOMIC SYSTEMS: THEORETIC-METHODOLOGICAL ASPECT

Basic possibilities of creation of strategic management system of innovative development of economic systems in municipal unions with the "city" status are described in the paper. The essence of strategic management of innovative development of economic systems of city economy is revealed. The integrated structure of city administration (including the subsystem of development focused on innovative development) and the block-scheme of strategic management of innovative development of economic systems of a city are offered.

Key words: municipal formation (union), city, strategic management of innovative development, innovative activity, economic systems.

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• Introduction
• 2. Analysis of the actual state of the system of strategic management of the municipality
• 2.1 Organizational structure of the Penza strategic management service under the Penza City Administration
• 2.2 Analysis of the state of the socio-economic system of the city of Penza in the system of measures to develop a strategic plan for its development
• 2.3 Goal-setting and planning in the practice of strategic development management in Penza
• 3. Ways to improve the system of strategic management of the municipality of Penza
• 3.1 Practical recommendations for strategic planning of the city of Penza, taking into account the strengths and weaknesses of its socio-economic system
• 3.2 Ways to develop promising opportunities and main directions for minimizing threats to the socio-economic system of Penza
• 4. Economic evaluation of the project
• 5. Legal support of the project
• 6. Computer support of the project
• Conclusion
• List of sources used

Introduction

The transition from an administrative-command economy to market forms of management, a crisis in the socio-economic sphere and a drop in the standard of living of the population, led to a decrease in the authority of the authorities and a weakening of the centralized management of the district, city and other municipalities. The studies carried out in the 1990s under the program for the development of cities and urban-type settlements in Russia were not completed due to the lack of funds in state budget and growing self-sufficiency of cities. Existing management concepts and long-term plans have practically disappeared into a multitude of federal target complex programs. By the beginning of the new millennium, there were no significant developments in the strategic management of a municipality in our country. The governing bodies often worked in an emergency mode, reacting to certain unforeseen situations, fighting for survival, acting by trial and error. Changes in the socio-economic model of the state, radical transformations in all spheres of society, urgently require a revision of the foundations, principles and forms of strategic management, improvement of management strategies and mechanisms, and an increase in their influence on the development of municipalities. Strategic management of the municipality in modern conditions plays a leading role in the system of public administration. An important component of this management system is the institution of local self-government. Local government in Russian Federation constitutes one of the foundations of the constitutional order, and its main purpose is determined by law. Local self-government bodies, which have a powerful creative potential, are designed to improve the quality of people's lives through the stable solution of local issues in the interests of the population, taking into account historical, national, ethnic, and other local traditions. The achievement criterion is the high welfare of the municipal population. The ever-increasing competence and responsibility of regional and municipal governments have a significant impact on the development of regions, cities, districts, and play an important role for the country as a whole. The issues of strategic management of municipalities today are quite acute. They are directly related to Russia's national security. The unresolved nature of many social problems, both at the federal, regional and municipal levels, ill-conceived management decisions and the lack of control of the authorities, their low authority, lead to a continuous decline in the quality of life of the population, an increase in social dissatisfaction and social tension, distrust in government. In order to make it possible to effectively solve urgent life problems at the local level, it is necessary to revise the entire system of strategic management of municipalities, conduct a thorough analysis of it, and develop measures to improve the management efficiency of this system. A deep scientific study of the problem of strategic management of the municipality is necessary. The urgency of this problem is also increasing due to the fact that in the practice of managing municipalities, fundamentally new management methods are rarely used, specifically aimed at their comprehensive development. The not always scientifically substantiated and verified system of managing socio-economic and spiritual development is effectively used at the municipal level. It also affects the fact that there is no well-established practice of generalizing the existing experience of strategic management of such entities, and this excludes the possibility of using proven technologies and new scientific developments in the strategic management of a municipality. All this determines the relevance of the chosen topic of the graduation project. The novelty of the diploma project is characterized by an analysis of the strengths and weaknesses of the actual system of strategic management of the city of Penza, the results of the application of statistical research methods using the methods of correlation and regression analysis, which make it possible to identify the level of development and the nature of the relationship between the effectiveness of the main directions of strategic planning for the development of the city of Penza. Penza and a number of basic factors.

The practical significance of the study is determined by the developed recommendations aimed at improving the strategic management system of the city of Penza.

The practical significance of the work is determined by specific recommendations for improving the strategic management system of the city of Penza, taking into account the strengths, weaknesses, as well as the opportunities and threats of its socio-economic system. They are represented by a complex of organizational, social, economic activities aimed at developing the strengths of the socio-economic system of Penza, as well as minimizing the consequences associated with the presence of weaknesses.

The purpose of this study is to analyze the actual state of the system of strategic management of the municipality and develop recommendations for improving the efficiency of this system.

Achieving this goal involves solving the following tasks:

- reveal the essence and content of strategic management, define and justify its algorithm;

- to show the features of strategic management at the level of the municipality;

- using the available theoretical developments on local self-government issues and the practical experience of some municipalities, to study the most pressing problems facing the authorities of municipalities and outline possible ways to solve them;

- to analyze the strategy, the actual state of the strategic management system for the development of the city of Penza, to identify its positive aspects and possible shortcomings;

- develop practical recommendations for improving the efficiency of strategic management at the municipal level.

The object of the study is the system of strategic management of local self-government bodies in the city of Penza. The subject of the study are organizational - managerial relations in terms of the formation of an effective system of strategic management of the municipality of Penza.

Depending on the goals and objectives set, the structure of the graduation project was determined. In the first chapter, a theoretical analysis of the system of strategic management of the municipality is carried out, a number of principles are identified that must be taken into account in the process of its implementation. The second chapter assesses the actual state of the Penza strategic management system. Its strengths, weaknesses, opportunities and threats have been studied, in accordance with which a strategy should be developed. further development. The third chapter contains practical recommendations aimed at improving the system of strategic management of the city of Penza. It proposes measures aimed at the fullest use of the strengths of the socio-economic system of the municipality and at minimizing the consequences associated with the presence of weaknesses. In addition, chapter 3 of the graduation project contains a number of recommendations for using promising opportunities for the development of the socio-economic system of Penza and minimizing the consequences of the most significant threats.

We also calculated the economic efficiency of the proposed recommendations by applying our regression model of the dependence of the number working population from the average monthly wages, as well as the dependence of the volume of shipped goods from industrial enterprises in Penza on the number of labor resources. A significant increase in wages and an increase in the number of labor resources (up to 361.2248 thousand people) were determined, which, according to calculations, should ensure an increase in the volume of shipped goods of Penza industry enterprises up to 163,151.5 million rubles. against 48856.8 million rubles.

The chapter "Legal support" analyzes the main laws on the basis of which the strategic management of the municipality is carried out, namely: the federal law"On the general principles of organizing local self-government in the Russian Federation", the Concept of long-term socio-economic development of the Russian Federation for the period up to 2020, the Law of the Penza region "On the strategy of socio-economic development of the Penza region for the long term (until 2021)", Resolution No. 1097 of the head of the Administration of the city of Penza "On the procedure for managing the strategic development of the city of Penza".

The computer software chapter describes the computer programs underlying the study, such as: text editor Microsoft Word 2007, spreadsheet Microsoft Excel, a program for creating and conducting multimedia presentations Microsoft PowerPoint and others.

In conclusion, the main results of the diploma research are summarized, conclusions and recommendations are formulated to improve the efficiency of the Penza strategic management system.

The theoretical and methodological basis of the study are the works of domestic and foreign economists, specialists in the field of management theory and management, devoted to the problems of strategic management, scientific developments of domestic and foreign scientists on the issues of strategic management of municipalities; regulatory legal acts (laws, programs, concepts, etc.) regulating various areas of activity of municipalities; statistics data.

Systematic and correlation-regression analysis were used as research methods.

The information base of the study is represented by analytical, statistical (data from Rosstat and Penzstat), reference literature on the problems of regional economics and strategic management of the municipality.

1. Theoretical and methodological foundations of the study of the system of strategic management of the municipality

1.1 The essence and content of the strategic management system

The modern concept of managing economic systems at different levels (countries-regions-companies) is the concept of strategic management. It arose as a response to the challenges and threats of the external environment: its increased instability, the growth of globalization, the aggravation and radical change in competition.

As a result, at the turn of the 60-70s. the term "strategic management" was coined to reflect the difference between management at the highest level and current management at the production level. The need to make this distinction was driven primarily by changes in the business environment. The development of strategic management ideas was reflected in the works of such authors as Frankenhofs and Granger (1971), Ansof (1972), Schendel and Hatten (1972), Irwin (1974) and others. As a leading idea, reflecting the essence of the transition to strategic management from operational management, there was an idea of ​​the need to shift the focus of top management to the environment in order to respond appropriately and in a timely manner to the changes taking place in it, in a timely manner to respond to the challenge posed by the external environment.

Strategic management can be defined as the management of an organization that relies on human potential as the basis of the organization, orients production activities to the needs of consumers, implements flexible regulation and timely changes in the organization that meet the challenge from the environment and allow achieving competitive advantages, which together allows the organization to survive and achieve its goal in the long term.

We can also highlight several constructive definitions that were proposed by authoritative developers of the theory of strategic management. D. Shendel and K. Hatten considered it as a process of determining and (establishing) a connection between an organization and its environment, consisting in the implementation of selected goals and in attempts to achieve the desired state of relations with the environment through the distribution of resources, which allows the organization and its divisions to operate effectively and efficiently. By definition, D. Higgens, strategic management is the management process of realizing the organization's goals and objectives by managing the organization's relations with the external environment. Scientists define strategy as "programs, or a plan that integrates the main goals of the organization, its policies and actions into a kind of coordinated whole." Pierce and Robinson define strategic management as the set of decisions and actions to formulate and execute strategies designed to achieve an organization's purpose. There are a number of definitions that focus on certain aspects and features of strategic management or on its differences from conventional management.

Although strategic management is the most important factor in successfully surviving in an increasingly complex competition, nevertheless, one can constantly observe a lack of strategicness in the actions of organizations, which often leads them to defeat in the market struggle. The lack of strategic management is manifested primarily in the following two forms.

First, organizations plan their activities on the basis that the environment will either not change at all, or there will be no qualitative changes in it. Outside of applying the provisions of strategic management, a plan of concrete actions is drawn up, both in the present and in the future, a priori based on the fact that the end state is clearly known and that the environment will not actually change. Drawing up long-term plans that prescribe what to do and when and looking for decisions in the initial period for many years to come, the desire to build "for centuries" or to acquire "for many years" - all these are signs of non-strategic management. Long-term vision is a very important component of management. However, this should in no way mean an extrapolation of current practice and the current state of the environment for many years to come.

In the case of strategic management, at any given moment, it is fixed what the organization must do now in order to achieve the desired goals in the future, based on the fact that the environment and living conditions of the organization will change, i.e. in strategic management, as it were, a look from the future into the present is carried out. The actions of the organization now that provide it with a certain future are determined and carried out, and not a plan or description of what the organization will have to do in the future is developed. At the same time, it is typical for strategic management that not only the desired future state of the organization is fixed, but this is also the most important task of strategic management, the ability to respond to changes in the environment is developed to achieve the desired goals in the future.

Secondly, in the absence of strategic management, the development of a program of action begins with an analysis of the internal capabilities and resources of the organization. With this approach, all that an organization can determine on the basis of an analysis of its internal capabilities is how much product it can produce and what costs it can incur in doing so. The volume of production and the value of costs do not answer the question of how much the product created by the company will be accepted by the market - how much will be bought and at what price, the market will determine.

Along with the obvious advantages, strategic management has a number of disadvantages and limitations on its use, which indicate that this type of management, as well as all others, does not have universal application in any situation to solve any problems.

First, strategic management, by virtue of its essence, does not, and indeed cannot, give an accurate and detailed picture of the future. The future desired state of the organization formed in strategic management is not a detailed description of its internal and external position, but rather a qualitative wish for the state in which the organization should be in the future, what position to occupy in the market and in business, what organizational culture to have , which business groups to join, etc. At the same time, all this together should be what will determine whether the organization will survive or not in the future in the competitive struggle.

Secondly, strategic management cannot be reduced to a set of routine procedures and schemes. He does not have a descriptive theory that prescribes what and how to do when solving certain problems or in specific situations. Strategic management is rather a specific philosophy or ideology of business and management. Each individual manager understands and implements it largely in his own way. Of course, there are a number of recommendations, rules and logic diagrams for problem analysis and strategy selection, as well as the implementation of strategic planning and practical implementation of the strategy. However, in general, strategic management is a symbiosis of intuition and the art of top management to lead the organization to strategic goals, high professionalism and creativity of employees, ensuring the connection of the organization with the environment, updating the organization and its products, as well as the implementation of current plans and, finally, the active inclusion of all employees. in the implementation of the tasks of the organization, in the search for the best ways to achieve its goals.

Thirdly, huge efforts and large investments of time and resources are required in order for the organization to begin the process of strategic management. It is necessary to create and implement strategic planning, which is fundamentally different from the development of long-term plans that are binding under any conditions. The strategic plan must be flexible, it must respond to changes inside and outside the organization, and this requires a lot of effort and a lot of money. It is also necessary to create services that monitor the environment and include the organization in the environment. Marketing, public relations services, etc. acquire exceptional significance and require significant additional costs.

Fourth, the negative consequences of mistakes in strategic foresight are sharply increasing. In conditions when completely new products are created in a short time, when directions of investments change dramatically in a short time, when new business opportunities suddenly appear and opportunities that have existed for many years disappear before our eyes, the price of retribution for incorrect foresight and, accordingly, for mistakes in strategic choice becomes often fatal to the organization. Especially tragic are the consequences of an incorrect forecast for organizations that carry out an uncontested way of functioning or implement a strategy that cannot be fundamentally corrected.

Fifth, in the implementation of strategic management, the main emphasis is often placed on strategic planning. In fact, the most important component of strategic management is the implementation of the strategic plan. This implies, first of all, the creation of an organizational culture that allows the implementation of the strategy, the creation of systems for motivating and organizing work, the creation of a certain flexibility in the organization, etc. At the same time, in strategic management, the execution process has an active feedback effect on planning, which further enhances the significance of the execution phase. Therefore, an organization, in principle, will not be able to move to strategic management if it has a strategic planning subsystem, even if it is very good, and at the same time there are no prerequisites or opportunities for creating a strategic execution subsystem.

According to experts, strategic management is based on a number of principles that must be taken into account in the process of its implementation. The main ones are:

1. Science combined with elements of art . The manager in his activity uses the data and conclusions of many sciences, but at the same time he must constantly improvise, look for individual approaches to the situation. The implementation of this task presupposes, in addition to knowledge, mastery of the art of competitive struggle, the ability to find a way out of the most difficult situation, focus on key problems, highlight the main advantages of your organization.

2. Purposefulness . Strategic analysis and strategy formation should be subject to the principle of purposefulness, i.e. be always focused on the achievement of the global goal of the organization. As opposed to free improvisation and intuition, strategic management is designed to ensure the conscious directed development of the organization and the focus of the management process on solving specific problems.

3. Flexibility. It implies the possibility of making adjustments to previously made decisions or revising them at any time in accordance with changing circumstances. The implementation of this principle involves assessing the compliance of the current strategy with the requirements of the external environment and the capabilities of the enterprise, clarifying the adopted policy and plans in the event of unforeseen developments and increased competition.

4. Unity of strategic plans and programs. To achieve success, strategic decisions at different levels must be coordinated and closely linked to each other. Unity of strategic plans commercial organizations is achieved through the consolidation of the strategies of structural divisions, mutual coordination of the strategic plans of functional departments.

5. Creation of the necessary conditions for the implementation of the strategy . The strategic plan does not ensure its mandatory successful implementation. The strategic management process should include the creation of organizational conditions for the implementation of strategic plans and programs, i.e. formation of a strong organizational structure, development of a motivation system, improvement of the management structure.

Strategic management can be viewed as a dynamic set of five interrelated management processes. These processes logically follow (or follow) one from the other (Figure 1). However, there is a stable feedback and, accordingly, the reverse influence of each process on the others and on their entirety. This is an important feature of the strategic management system. .

Figure 1 Structure of strategic management

Environmental analysis is usually considered the initial process of strategic management, as it provides the basis for defining the mission and goals of the firm and for developing behavioral strategies that allow the firm to fulfill the mission and achieve its goals. Analysis of the environment involves the study of its three parts:

1) macro environment;

2) immediate environment (organization microenvironment);

3) internal environment.

The analysis of the macro environment includes the study of the influence of such components of the environment as: the state of the economy; legal regulation and management; political processes; natural environment and resources; social and cultural components of society; scientific, technical and technological development of society; infrastructure, etc.

The immediate environment is analyzed according to the following main components: buyers; suppliers; competitors; intermediaries; labor market.

An analysis of the internal environment reveals those internal capabilities and the potential that a company can count on in a competitive struggle in the process of achieving its goals, and also allows you to more correctly formulate the mission and better understand the goals of the organization. It is extremely important to always remember that the organization not only produces products for the environment, but also provides an opportunity for its members to exist, providing them with work, the opportunity to participate in profits, creating social conditions for them, etc.

The internal environment is analyzed in the following areas: the company's personnel, their potential, qualifications, interests, etc.; management organization; production, including organizational, operational and technical and technological characteristics, research and development; company finances; marketing; organizational culture.

The definition of the mission and goals, considered as one of the processes of strategic management, consists of three sub-processes, each of which requires a large and extremely responsible work. The first sub-process is to determine the mission of the company, which in a concentrated form expresses the meaning of the existence of the company, its purpose. Next comes the sub-process of setting long-term goals. This part of strategic management ends with a sub-process of defining short-term goals. Defining the mission and goals of the company leads to the fact that it becomes clear why the company operates and what it strives for. And knowing this, you can more accurately choose a strategy of behavior.

After the mission and goals are defined, the stage of analysis and strategy selection begins. This process is considered to be the heart of strategic management. With the help of special techniques, the organization determines how it will achieve its goals and realize its mission.

The implementation of the strategy is a critical process, since it is he who, if successfully implemented, leads the company to achieve its goals. Very often there are cases when firms are unable to implement the chosen strategy. This happens either because the analysis was carried out incorrectly and incorrect conclusions were drawn, or because unforeseen changes in the external environment occurred. However, often the strategy is not executed also because the management cannot properly involve the potential of the firm for the implementation of the strategy. This applies in particular to the use of labor potential.

Evaluation and control of the implementation of strategies is logically the last process carried out in strategic management. This process provides a stable feedback between how the process of achieving goals is going and the goals of the organization itself.

The main tasks of any control, as you know, are the following:

- determination of what and by what indicators to check;

- assessment of the state of the controlled object in accordance with accepted standards, regulations or other reference indicators;

- identifying the causes of deviations, if any, are revealed as a result of the assessment;

- making adjustments, if necessary and possible.

In the case of monitoring the implementation of strategies, these tasks acquire quite specific specifics, due to the fact that strategic control is aimed at finding out to what extent the implementation of strategies leads to the achievement of the company's goals. This fundamentally distinguishes strategic control from managerial or operational control, since it is not interested in the correct implementation of the strategic plan, the correct implementation of the strategy, or the correct execution of individual works, functions and operations. Strategic control is focused on whether it is possible to implement the adopted strategies in the future, and whether their implementation will lead to the achievement of the set goals. Adjustment based on the results of strategic control can relate to both strategies and goals of the firm.

1.2 Features of the strategic management of the municipality

The transition to market forms of management in Russia led to a change in municipal management - the methods and techniques of commercial management that have proven their effectiveness are being introduced into the management systems of the municipality.

Strategic management of a municipality is a process of management activities of local governments to ensure sustainable socio-economic development in the long term.

The system of strategic management of the municipality is part of general management and includes the following components: obtaining, analyzing and evaluating the necessary information; development and adoption of decisions and organization of their implementation; analysis of the obtained results and making adjustments in the course of further work. These components, in contrast to the current control, are aimed at solving the global control problem. In addition to defining the vision, mission and goals, each strategic program includes a description of the need for its development, a description of the place of the program in the overall or functional strategy, the formulation of the overall goal and goals of the subsystems (program participants), a description of the relationship of subsystems and resources necessary for the implementation of the program and etc.

The mechanism for developing a package of strategic documents usually consists of the following steps:

1. Study of external conditions, analysis of trends and resources for the development of the territory: determination of development priorities, analysis and coordination of the interests of participants in the development of the territory. When analyzing resources, it is important to conduct such an assessment, in which a new look at them and new possible directions for the development of the territory may arise. A deep retrospective analysis, brainstorming, business games, etc. are appropriate here.

2. Development of a concept, which is a documented consolidation of the priorities for the development of the territory, selected on the basis of previous analysis and forecasting of its development, as well as the development of a comprehensive development program and targeted programs.

3. Coordination and docking of targeted programs that correspond to each other and the development priorities of the municipality, their consistency, lack of duplication at the content and organizational levels, etc.

4. Examination of programs and projects, including, in addition to assessing compliance with priorities, economic, social, environmental and other types of assessments.

Among the main tasks of strategic programs, according to experts: the growth of the potential of the municipality, providing it with competitive advantages at the regional, federal and international levels, changes for the better in the level and quality of life of the population. The prospect of sustainable development of the municipality is much more realistic if there are several scenarios and a constantly adjusted strategy for the development of the territory, taking into account changes in external conditions, including macroeconomic, political, environmental and other factors.

Target programs developed by interdepartmental working groups correlate with previously defined development priorities and fit into a comprehensive program for the development of the municipality. This approach allows consolidating the efforts of all participants in territorial development. When filling target programs with projects, not only projects prepared by interdepartmental working groups and structural divisions of the administration are submitted to the strategic planning division (for examination). Third-party individuals and legal entities can also submit projects for consideration by the experts of the strategic division of the administration. The procedure and selection criteria do not change. The implementation of such programs and projects allows the population to express their attitude to municipal problems and participate in the development of their solutions, which contributes not only to the involvement of opinion leaders in the self-government process, but also to ordinary residents, whose social culture at the same time changes adequately to the surrounding reality.

management municipality strategic

Local self-government is called upon to solve the problems of the life of the population, having direct contact with it, feeling its pressing problems, local authorities must manage a portfolio of issues of local importance, while not forgetting the tasks of strategic management. Until recently, the most popular strategy voiced by local governments was the strategy of survival, although in fact the success of individual municipalities indicates an active position and development. How effective the current strategy is can be judged by the quantitative and qualitative results of the activities of a particular municipality.

In practice, as a rule, there is not a single social system and organization that does not have a valid strategy. At the same time, this does not mean that all of them are developed and known to employees and managers of local enterprises and the general public. The management of organizations, not to mention ordinary employees, sometimes does not even know what strategy their organization has in a given period of time.

To develop a development strategy, it is necessary to formulate an existing strategy and evaluate it. Evaluation of the strategy from a qualitative point of view lies in the integrity and its internal consistency (consistency), as well as the validity and compliance with the real situation.

Quantitative results are manifested in the actual state of the socio-economic situation of the municipality, which is confirmed in the data of statistical reporting.

The effectiveness of the current strategy depends on the social activity of the population, the inflow of investments, as well as the content of the functional components of the strategy: the rationality of each component of the strategy (policies, projects and programs), the latest actions of the administration, business entities and the local community.

The development strategy of the municipality is the most important element in which the final conclusions are formed about the goals of the socio-economic development of the territory, the factors and mechanism for achieving it, as well as the methods for managing this development. Conclusions are drawn taking into account new trends and features of the socio-economic development of the region, country and municipality. At the heart of building a strategy for a municipality is its general concept, the key elements of which are the definition of its vision, mission, goals and objectives, that is, what is called development philosophy.

Based on the concept of the development strategy of the municipality, a plan of specific strategic actions is formed, which is a vector for the development of the municipality and has the following order of formation:

Strategic analysis of the municipality;

Development and evaluation of development scenarios based on reference and current strategies;

Development of a philosophy for the development of the municipality, including the definition of the vision, mission, goals and objectives of the municipality;

Determination of approaches and methods for developing strategic plans and actions.

In strategic management, it is important to remember the so-called hierarchical structure strategy, which is as follows: what at the highest level of management is considered a means to achieve any goals, at lower levels turns out to be a goal. It follows from this that the strategy developed for the organization as a whole acts as a goal in relation to the structural divisions of the organization. Based on this goal, functional strategies (policies) of structural units are developed, which, in turn, are the goals of individual smaller units of the organization or individual employees.

All approaches to the development of the strategy of the municipality boil down to the fact that the strategy is a combination of strategic analysis and the intuition of the developers, which in the first place should be those subjects who will then detail and implement the strategy. A strategy can never be thought out and calculated to the end, and its adjustment as external and internal conditions change is a necessary procedure. In addition, there is no universal method for developing a strategy that is suitable for all occasions.

The most effective is the method of "drawing images" (the image of the present and future, the desired state of the organization) and their subsequent description, to determine the "gap" between dream and reality. It is possible to formalize the process of describing the dream and the actual state of the municipality by comparing the present and future state of the municipality, which is presented through the eyes of an outside observer and the eyes of one of the residents of the municipality from the inside. The outside view is aimed at assessing the opportunities and threats, determining the competitive position of the municipality, its compliance with one of the standard strategies, as well as what the municipality receives from the resources and what it transfers to the external environment, having processed these resources.

The vision of the municipality from the inside is aimed at describing the potential of the municipality (its strengths) and urgent problems, identifying key competencies, as well as features of territory management and orientation of the municipality itself. At this stage, a special art consists in the skillful transformation of many weak signals into a system that represents the present and future state of the municipality.

Determining the content of the strategy should be based on the methods of historical and structural - functional analysis. The historical approach involves the study of the genesis of the municipality, the driving forces and sources of its organization and development. The use of the method of comparative - historical analysis in combination with structural and functional analysis allows, on the one hand, to link the emergence of a new level of socio-economic development of the municipality in time with changes in the structural organization. On the other hand, to identify patterns of qualitative changes in its socio-economic development. In the aggregate, we are talking about the knowledge of the internal patterns of development of the municipality.

The combination of this knowledge with the results of the analysis of the starting conditions for its socio-economic development and the assessment of external conditions creates sufficient prerequisites for the formation of a scientifically based program for the socio-economic development of the municipality. As you know, contradictions are the source of all development. For a municipality, this means that in order to form a strategic choice, it is necessary to identify and describe the internal and external contradictions in the development of a municipality as a complex socio-economic system. As an internal source of development, one can consider the structural and functional contradiction between specialization and complexity.

The content of the strategy should correspond to the development option that is pessimistic, realistic or optimistic. character. Each of them, in turn, involves several types of strategies. At different stages of development of the municipality, these options can change, combine and complement each other. This approach largely determines the effectiveness of the formation of the development strategy of the municipality. In order for the strategy to give impetus to socio-economic development from the first steps of its development, it is advisable to evaluate the effectiveness of the strategy development mechanism at the stage of its development, discussion or adoption. The easiest way to evaluate this effectiveness is peer review.

An experienced expert or group of experts, analyzing all stages of strategy development, all the above factors, etc. make comments and suggestions, give their assessment. The more experts involved, the more experienced they are, the higher the probability of eliminating errors or correcting them before the strategy implementation stage. As a rule, municipalities do not have enough funds for such work. Therefore, local specialists, business leaders, representatives of various community groups, deputies, etc. act as experts. In any case, experts, both local and invited, use a single methodology for assessing the effectiveness of strategy formation. The effectiveness of the strategy formation mechanism is the ratio of the quality of the strategy to the costs of its development.

It should be emphasized that the involvement of experts is mandatory in the multi-criteria assessment of the effectiveness of complex, multi-purpose organizations, such as municipalities, and whose strategies, already at the development stage, are associated with the achievement of a whole set of interrelated indicators that form their images (profiles). The methods of studying the profile are associated with the definition of this image (they are also called the methods of the list of criteria). The essence of these methods is that the correspondence of the objects of study to each of the established criteria is considered and an assessment is given for each criterion, which can be represented graphically.

The nature of the activities of municipalities, the different conditions inherent in them, their different goals, as well as ambiguous approaches and ways to achieve them, predetermine the specifics of developing strategies. And this means that the system of evaluation criteria for a particular municipality is strictly individual.

Summarizing the above, we can conclude the following:

The mechanism of formation of the development strategy of the municipality includes the entire process of developing and adopting a strategy: from a strategic analysis of internal and external factors, the formation of the concept and content of the strategy, to a preliminary assessment of the socio-economic efficiency of the work being done and the strategy being developed, the procedure for discussing and adopting it.

The concept of strategic development of a municipality is its strategic choice, determined by the philosophy of development of the municipality based on SWOT - analysis and comparative analysis of the current strategy and examples of successful implementation of development strategies of other municipalities.

The mechanism of formation of the development strategy of the municipality predetermines the success of its implementation and is subject to quality peer review in order to timely adjust actions aimed at improving the efficiency of strategic management of the municipality.

1.3 Methodological foundations research of the system of strategic management of the municipality

The attention that has been paid to strategic management in Russia in recent years is more a response to the question of what method and how we can make calculations for the future, project the desired future state on the current situation, make plans and achieve our goals. . Thus, the issue of development has become the motive for addressing the issues of strategic management.

Strategic management is aimed at solving one of the main tasks of any management system: finding an answer to the question of the key points where it is necessary to direct available resources in order to ensure the normal reproduction and development of the region's life system. Strategies are engaged not from an excess, but from a lack of resources.

One of the significant problems of strategic management at the regional level is that the source of actions that affect the development of the region are very different entities that make decisions independently, based on their own goals and interests. Among such entities are federal authorities, other regions, corporations, municipalities, etc. The regional development strategy cannot prescribe to these entities what they should do - they decide for themselves. But it can help coordinate their activities in the part that concerns the development of the region. The task of the strategy is to outline the development perspective, the orientation towards which will allow them to see new opportunities for realizing their interests and goals.

The task of achieving the goals set in the course of municipal strategic planning requires special approaches. The following strategic management methodology is commonly used:

The first step is to analyze the initial state - monitoring the socio-economic situation of the municipality.

The next step is resource analysis. Information is collected on available resources and their movement, resource flows between municipalities; organizational models of urban management are being built. It is especially important at this stage to single out the direction and nodes of the intersection of financial and information flows, for subsequent management with the help of influences on existing and / or new, formed nodes.

At this stage, a review of the regulatory framework relating to the identified problems is also carried out, at the level of identifying legal acts regulating each problem (federal, local laws and regulations, orders, including those directly related to the municipality), may also be involved the financial analysis reporting, FSA to identify imbalances between significance and costs for each function of the urban economy.

As a result of the implementation of the first and second stages, the control object appears in the form of a modified map "organization - external environment", where the characteristics of the internal environment include available resources, the organization of their movement, nodal points of flows, the structure of resource management, and the external microenvironment - the socio-economic state municipality. A systematic approach allows you to adequately respond to changes in the external environment by taking into account the results of continuous monitoring when setting and implementing strategic and tactical tasks.

The third stage is the definition of problems and setting goals, i.e. the desired state, taking into account the conditions and restrictions identified at the stages of socio-economic and resource analysis.

Diagnostics, goals of the strategic and tactical plan provide an entrance to the key block of the methodology - budgeting (covers the fourth and partially fifth, sixth stages of the methodology)

At the fourth stage, the financial structure is built, which is a set of centers of financial responsibility (CFR) and the relationships between them. Analysis of the budget of the municipality, its expenditure and revenue items, i.e. direct object of management of the considered level of local self-government, allows you to identify the centers of financial responsibility, which will subsequently be the points of application of managerial influences. The allocation of centers can be carried out on the basis of the type (orientation) and amount of expenses.

The fifth stage is the definition of ways to achieve goals and objectives. At this stage, possible directions for using special financial and economic tools to achieve the developed goals are generated and analyzed:

Financial engineering, whose tools can change the composition and structure of financial flows built at the analysis stage. Here, a more in-depth study of the NPB allocated at the previous stage is carried out to identify tax incentives and asymmetries, possible payment schemes for the authority and potential sponsors are built, reserves in the passage of financial flows are identified;

- organizational reengineering for a qualitative change in the structure of urban management, the effectiveness of such a restructuring is assessed based on the calculation of its (restructuring) economic performance;

- project financing tools, which, based on the combination of organizational and financial engineering, analyze the possibilities of motivating participants in existing and emerging payment systems.

The strategic plan for the development of the municipality is a "constitution for the development of the municipality", on the basis of which targeted programs are developed, in which the tasks are decomposed:

- for each dedicated center of financial responsibility;

- in time - work programs are compiled containing specific tasks and ways to solve them, the total amount of investments, the work schedule, i.e. the process of operational (1-2 years) and tactical (up to a year) planning begins.

At this stage, using the listed and other tools based on the results of monitoring and resource analysis, i.e. problems and opportunities of the municipality, plans are developed to achieve the goals. Budgeting at this stage is used to generate directions for diversification of income sources of the municipality and as a basis for their structuring and further detailing.

At the sixth stage, the consolidated budget of the municipality is compiled. If the proposed activities do not lead to a complete balance of the entire budget of the municipality (i.e., not all goals remain achieved), then it is necessary to hold a competition of projects and evaluate each of them.

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Strategic development management

municipality

about undergraduate practice

in FBU IK-2UFSIN of Russia in the Oryol region

Introduction

1. Theoretical and methodological foundations for managing the strategic development of a municipality

1.1 The concept of strategic management and planning logic

1.2 Economic base for managing the development of the municipality and methods of its regulation

1.3 Local budgets and their role in the strategic development of municipalities

2. Status and development trends of the city of Livny

2.1 Socio-economic conditions of Livny

2.2 Livny budget analysis

2.3 Comprehensive analysis of the financial and economic activities of FBU IK-2 of the Federal Penitentiary Service of Russia in the Orel Region

Conclusion

List of sources used

INTRODUCTION

The work of state, regional, municipal, in-house management bodies in modern economic conditions requires the ability to think creatively, freely navigate in specific socio-economic situations, rationally solve management problems at the appropriate levels based on the use of the entire arsenal of modern management. In a market economy based on a variety of forms of ownership, the main goal of all reforms is to improve management. New economic relations in municipalities is an objective reality that requires a new management of the community, social phenomena and processes taking place in it. The continuous process of complication of all aspects of the life of the municipality, all its spheres, requires constant improvement of the forms and methods of municipal government

The main line of development of the theory and practice of municipal government today is to create a coherent, efficient, flexible and democratic system of municipal government, asserting in practice the authority of local authorities, which is impossible without the resolute elimination of bureaucratic and authoritarian management systems, without the consistent implementation of the basic principles of self-government of the European Charter.

Municipal science develops and substantiates the principles, functions, methods, techniques and technology of municipal government, as well as the system, structures, forms and territory of the organization of municipal government, i.e. scientific bases of maintenance of this activity, acceptance and realization of administrative decisions. It reflects the specifics of municipal government within a democratic social system, its place and role in the implementation of state and regional social policy.

Today, the theory of municipal government is an emerging and developing system of knowledge about the laws, patterns, principles and mechanism of managing a municipality and its areas in order to improve social relations, activate the human factor, social behavior of people, achieve socially significant results of their activities and development, realize the potential of the municipal education.

For effective activity, state and municipal employees need a deep knowledge of the theory and practice of municipal government, it comes with teaching and real work, constant analysis and generalization existing experience. Mastering municipal science is the main task and an integral part of education, advanced training and professional retraining of state and municipal employees.

The reform of local self-government, its effective implementation are determined by the professional preparedness of managerial personnel, their ability to identify and use the capabilities of each of the elements of the mechanism of municipal government, to see the existing connections and interdependence between them, the development trends of managed objects. This is the only way to achieve consistency and comprehensiveness, transparency and efficiency of municipal government.

Pre-diploma practice is the most important part of the training of highly qualified specialists and has the consolidation of theoretical knowledge gained in the study of general professional and special disciplines in order to fully use them in practice; acquisition of professional skills and abilities in production and economic activities; acquisition of skills in organizing and maintaining documentation, reporting, familiarity with the organization and distribution of responsibilities between departments; familiarization with production activities and mastery of advanced methods of work of enterprises in the new economic conditions; accumulation of experience in collecting, analyzing and summarizing data from production activities, determining the development strategy for production units; collecting the necessary information for writing a report and a thesis. In this regard, the purpose of undergraduate practice is to prepare for the completion of the thesis and for future work. To achieve the goal of undergraduate practice, it is necessary to solve the following tasks:

Studying the theoretical and methodological foundations of management;

Studying the economic base of management, as well as identifying the role of local budgets;

Familiarize yourself with and analyze the budget of the city of Livny;

Conduct a comprehensive analysis of the financial and economic activities of FBU IK-2 of the Federal Penitentiary Service of Russia in the Oryol Region.

1. THEORETICAL AND METHODOLOGICAL FOUNDATIONS FOR MANAGING THE STRATEGIC DEVELOPMENT OF A MUNICIPALITY

1.1 The concept of strategicmanagement and planning logic

management strategic municipality budget

Management in the public service is one of the types of special management. Features of management in the public service are manifested primarily in specific goals, methods for evaluating results, reporting, control procedures, special responsibility and incentive systems.

The management process in the civil service is often referred to by the capacious terms "administration" and "bureaucracy". The key characteristics of such management are:

following instructions;

The division into those who issue instructions and those who carry them out;

Concentration of power and political will;

Restriction of freedom;

The same changes are taking place in the public sector as in the commercial sector. The key trend is the acceleration of change. Many public institutions focused on performing the traditional functions of the state are being privatized and denationalized. Many functions, from garbage collection on city streets to prison maintenance, are being gradually transferred from the public sector to the private sector around the world. In the practice of management in public organizations, management methods that have justified themselves in the private sector are increasingly penetrating. It refers to strategic management.

Management in any area, including the public service, is subject to change. The main trend of changes in management in the civil service has now become the transfer of management methods, technologies and techniques from the commercial sphere to the public one. Currently, management approaches and technologies developed in commercial firms that have achieved success are being introduced into the management practice of others, including government organizations. From the point of view, the boundaries between commercial and non-profit organizations, since most of the approaches and techniques for successful management of commercial organizations are also relevant for government organizations. First of all, this applies to strategic management. Under the influence of strategic management methods, relatively new management phenomena appear in public organizations, such as goals and mission, SWOT analysis, strategic alliances, strategic control, and so on.

The methods of strategic management manifest themselves especially brightly in those areas where new approaches are required, where changes in the environment force us to constantly look for solutions to emerging new problems. However, in those areas public service where routine functions and the solution of repetitive standard tasks predominate, traditional bureaucratic methods of management also dominate. Moreover, authoritarian control in this case is the most effective.

However, more and more often in many areas of public service there are problems that require non-standard solutions to constantly emerging new challenges. In connection with this, the technology of creating teams - flexible temporary creative groups, focused on creating a new or improving an old "product" - penetrates into the practice of state institutions. Building innovative capacity within public institution becomes the key to its success. To create innovative potential, it is necessary to stimulate experiments, new beginnings, creative borrowing of productive ideas at each level of management.

The formation of strategic management in the civil service provides for continuous training and upgrading of qualifications, careful selection of personnel and the provision of employment guarantees. The adaptability of the organization is achieved with the help of the relative stability of the team, which has common values ​​and a common vision. In the process of formation of strategic management, the role of personnel also changes. Investing in human capital is as important as investing in fixed assets. Continuous training of personnel, and above all the technique of problem solving, becomes mandatory.

In the system of managing socio-economic processes occurring in society, regulating their direction and dynamics, in ensuring the normal functioning of commercial organizations, planning occupies a special place. The forecasts, programs and plans developed in the country at all levels of the national economy are the most important tools for implementing the policy of the relevant management entities. It is they that make it possible to organize a clear, thoughtful, comprehensively justified work to achieve the tasks set for society and business entities.

The solution of any problems of management, and, consequently, of strategic planning, has a certain logic. The logic of strategic planning is understood as an ordered sequence, mutual consistency and validity of the procedures associated with the solution of any problem of strategic planning, as well as the definition of the starting point from which they must be solved and to which this entire process of planning work must obey.

1) Definition and formulation of the goal or system of goals that the subject of strategic planning pursues in the planning period.

2) Analysis of the initial level of development of the object of strategic planning in the period preceding the planned one and clarification of the parameters of the achieved level and its structure by the beginning of this period.

3) Determination of the volume and structure of the needs of society in the planning period, in the results of the functioning of the relevant objects of strategic planning.

4) Identification of the volume and structure of resources available at the beginning of the planning period and newly created in the planning period.

5) Coordination, balancing the needs and resources of socio-economic subsystems of various levels by overcoming temporary contradictions, inconsistencies between them, based on scaling, ranking needs and preparing management decisions in the form of strategic forecasts, programs and plans.

From the definition of the essence and content of the logic of strategic planning, it follows that the central place in it is occupied by the process of forming goals that are set for the relevant socio-economic systems in the planning period.

In strategic planning, goals are understood as the desired states or results of the functioning of the corresponding planning object at a certain point in the future.

Objectives are goals that are desirable to achieve by a certain point in time within the strategic planning period.

Goals may not be achievable within the planning period, but approaching them during this time should be possible. The targets should be achievable in principle within the planning period, although it may not always be possible to demand their implementation. A goal that can never be reached, but which can be approached indefinitely, is called an ideal.

Every organization, every territorial system needs a strategy. No organization, no local community, no country can exist without its own strategy. The development and actual implementation of a strategy can significantly increase the capitalization, market value of a company, a community organization.

The term "strategic management" and "strategic planning" became widely used in Western management practice in the 60s of the twentieth century.

Strategic management is such management that relies on human potential as the basis of the organization, orients production activities to consumer needs, responds flexibly and makes timely changes in the organization that meet the challenge from the environment and allow achieving competitive advantages, which together makes it possible for the organization to survive in the long term, while achieving their goals.

The objects of strategic management are organizations, strategic business units and functional areas of the organization.

The subject of strategic management are:

1) Problems that are directly related to the general goals of the organization.

2) Problems and solutions associated with any element of the organization, if this element is necessary to achieve the goals, but is not currently available or is not available in sufficient quantity.

3) Problems associated with external factors that are uncontrollable.

Strategic management problems most often arise as a result of numerous external factors. Therefore, in order not to make a mistake in choosing a strategy, it is important to determine what economic, political, scientific, technical, social and other factors influence the future of the organization.

The core of strategic management is a system of strategies that includes a number of interrelated specific business, organizational and labor strategies. A strategy is a pre-planned response of an organization to a change in the external environment, a line of its behavior chosen to achieve the desired result.

Strategic management in the enterprise is expressed in the following five functions:

1) Strategy planning.

2) Organization of the implementation of strategic plans.

3) Coordination of actions for the implementation of strategic objectives.

4) Motivation to achieve strategic results.

5) Control over the process of implementing the strategy.

Strategy planning involves the implementation of such sub-functions as forecasting, strategy development and budgeting.

Forecasting precedes the actual drawing up of strategic plans. It is based on the analysis of a wide range of internal and external factors (conditions) of the functioning of the enterprise in order to anticipate the possibility of development and risk assessment. A systematic forecast allows you to develop a reasonable approach to the strategy of the enterprise. Forecasting traditionally uses three dimensions: time (how far ahead are we trying to see?), direction (what are the future trends?), and magnitude (how big will the change be?).

Taking into account the results of the analysis, the management of the enterprise formulates a mission (business area, global goal), determines the prospects for the development of the organization and develops a strategy. Linking the strategic goals of the enterprise with the results of the activities of individual units is carried out through the development of the necessary action program and budgeting. Budgeting includes program costing and resource allocation.

The organization of the implementation of strategic plans involves the formation of the future potential of the enterprise, the coordination of the structure and management system with the chosen development strategy, the creation of a corporate culture that supports the strategy.

Coordinating the actions of managers in the formation and implementation of the general strategy consists in coordinating strategic decisions at various levels and consistently consolidating the goals and strategies of structural units at higher levels of management.

Motivation as a function of strategic management is associated with the development of a system of incentives that encourage the achievement of the set strategic results. Control consists in continuous monitoring of the process of implementing strategic plans. It is designed to identify impending dangers in advance, identify errors and deviations from the adopted strategies and policies of the enterprise.

The implementation of strategic management functions is carried out through the development and adoption of strategic decisions. Strategic decisions are called management decisions that are future-oriented and lay the foundation for making operational decisions, are associated with significant uncertainty, since they take into account uncontrollable external factors and are associated with the involvement of significant resources and can have extremely serious, long-term consequences for the enterprise.

Strategic decisions include, for example:

Reconstruction of the enterprise;

Introduction of innovations (changing the organizational and legal form, new forms of organization and remuneration, interaction with suppliers and consumers);

Entering new markets;

Acquisition, merger of enterprises.

Strategic management is based on a number of principles that must be taken into account in the process of its implementation. The main ones are:

1) Science combined with elements of art. The manager in his activity uses the data and conclusions of many sciences, but at the same time he must constantly improvise, look for individual approaches to the situation. The implementation of this task presupposes, in addition to knowledge, mastery of the art of competitive struggle, the ability to find a way out of the most difficult situation, focus on key problems, highlight the main advantages of your organization.

2) Purposefulness of strategic management. Strategic analysis and strategy formation must obey the principle of purposefulness, i.e. be always focused on the achievement of the global goal of the organization. As opposed to free improvisation and intuition, strategic management is designed to ensure the conscious directed development of the organization and the focus of the management process on solving specific problems.

3) Flexibility of strategic management. It implies the possibility of making adjustments to previously made decisions or revising them at any time in accordance with changing circumstances. The implementation of this principle involves assessing the compliance of the current strategy with the requirements of the external environment and the capabilities of the enterprise, clarifying the adopted policy and plans in the event of unforeseen developments and increased competition.

4) Unity of strategic plans and programs. To achieve success, strategic decisions at different levels must be coordinated and closely linked to each other. The unity of the strategic plans of commercial organizations is achieved through the consolidation of the strategies of structural divisions, mutual coordination of the strategic plans of functional departments.

5) Creation of the necessary conditions for the implementation of the strategy. The strategic plan does not ensure its mandatory successful implementation. The strategic management process should include the creation of organizational conditions for the implementation of strategic plans and programs, i.e. formation of a strong organizational structure, development of a motivation system, improvement of the management structure.

Strategic management has traditionally been considered within commercial organizations. Strategic management in the public service has the same features as strategic management in a commercial organization. Here, the same patterns are manifested as in general management.

Management in organizations that are different in nature - in the ministry, in the regional administration, in a trading company, at a university, in a church - has common patterns. In the process of management in these organizations, goals are set, priorities are determined, plans and action programs are drawn up, management procedures are fixed, and the organizational structure is formed and developed. In all organizations, within the framework of personnel management, certain motivational systems are built, procedures for hiring and promotion are being worked out. In any organization, appropriate control procedures are fixed.

The role of planning in the life of society, its individual subsystems and elements, is determined by the position that planning occupies in the management system.

As you know, the essence of any phenomenon or process is manifested in its functions. An analysis of the content of the main management functions allows us to conclude that the dual function of management "preparation and adoption of a managerial decision" means, first of all, practical work on setting goals, tasks that pursue the subject of management and the development of measures to ensure their achievement. According to its content, such activity is nothing more than planning.

The dual function of management preparation and decision-making is central to the systems of all its functions. Arguments in favor of such a statement are: firstly, the fact that the management process begins with it and a management decision appears on the implementation of which subsequently the management activity itself becomes possible; secondly, the quality of work on the preparation of managerial decisions, that is, planning, also determines the quality of these decisions themselves, and therefore, the success or failure of all managerial activities is predetermined; thirdly, the management decision, being the end result of the planning process, links the past with the future through the present and ensures the continuous flow of all managed, regulated processes. Since planning is an organically inseparable structural element of management, part of its most important function, it is quite reasonable to say that planning is the central link in the management system.

Planning can be defined as a specific form of social practice of people, which is one of the functions of management - priority, consisting in the preparation various options management decisions in the form of forecasts, draft programs and plans, substantiation of their optimality, ensuring the possibility of implementation and verification of their implementation.

In order to successfully manage the development of the national economy, the subjects of the federation, local authorities, the activities of commercial organizations, to regulate the various processes taking place in society, it is necessary for all management entities to accurately and correctly set the goals they pursue, to prepare scientifically sound measures to ensure the achievement of these are better. All these problems are solved in the planning process.

The forms of planning are diverse. They are determined by the multi-level and multi-aspect management. In particular, there are:

1) sectoral, regional, social, scientific and technical, environmental, financial and other aspects of planning;

2) depending on the levels of planning, such levels as: intercountry, nationwide, regional (subjects of the federation), the level of economic entities (commercial and other market organizations), their associations;

3) depending on the planning horizon: long-term, medium-term, current;

4) depending on the range of problems to be solved: strategic and tactical.

The multidimensionality of planning reflects the variety of problems that are solved in the process of managing the economic social development of society. Being the leading element of the management system, planning plays the role of a tool for implementing the policy of the state, its individual subjects, as well as the owners of commercial organizations.

Due to the growing dynamism of economic and social processes taking place in society, the rapid change in the situation in the domestic and foreign markets, the need to ensure the stable development of society in the long term, the role of strategic planning is increasingly increasing at the macro and micro levels of the socio-economic system.

Strategic planning is a special type of practical activity of people - planned work, consisting in the development of strategic decisions (in the form of forecasts, draft programs and plans), representing the promotion of such goals and strategies for the behavior of the relevant management objects, the implementation of which ensures their effective functioning in the long term, rapid adaptation to changing environmental conditions.

Strategic planning has the following features:

Focus on the medium and long term (for a period of more than one year);

Orientation towards the solution of the key, defining goals for the planned system, on the achievement of which its survival, socio-economic progress depends;

Organic linkage of the intended goals with the volume and structure of resources required to achieve them, both in cash and those created in the planned future;

Accounting for the impact on the planned object of numerous external factors that have a positive or negative impact on it and the development of measures to the maximum extent weakening their effect, or using the positive influence of these factors to successfully solve the strategic tasks of the planned system;

Adaptive character, that is, the ability to anticipate changes in the external and internal environment of the planned object and adapt its functioning to them.

Strategic planning, considered as a process of practical activity of the relevant management subjects, has its own content, covering its essence, manifestation of the essence and procedure for developing strategic forecasts, draft strategic programs and plans.

Strategic forecasting (strategic forecasts);

Programming (projects of strategic programs);

Design (drafts of strategic plans for various levels of the national economy).

In a market economy, the role of such a strategic planning procedure as forecasting increases significantly. Forecasting is the most important procedure for strategic planning of the development of the national economy as a whole, its individual links and structural elements. It is one of the forms of planned activity, which consists in the scientific prediction of the state of the object of forecasting at a certain point in the future, based either on an analysis of the trends in the socio-economic development of the object for the corresponding period in the past compared to the forecast period and extrapolation of these trends (genetic approach) or on the use of normative calculations (normative or goal-setting (teleological) approach). The content of strategic forecasting is the development of selective, long-term and medium-term forecasts concerning the national economy as a whole, its constituent subsystems and elements.

A strategic forecast is understood as an empirical or scientifically based judgment about the possible states of the object of forecasting in the future, about alternative ways and timing of its implementation.

Strategic forecasting acts as the most important link between the theory and practice of regulating all areas of society and business structures. It performs two important functions. The first one is predictive. Sometimes it is also called descriptive. The second, directly related to the first, is prescriptive or pre-indicative, contributing to the formalization of the forecast into an activity plan.

The predictive function consists in describing possible or desirable prospects, states of the object of forecasting in the future.

The prescriptive or predictive function of strategic forecasting consists in preparing projects for solving various planning problems, using information about the future in the purposeful activities of various management subjects.

The process and results of prognostic activity can be used in two major areas: epistemological and managerial. The epistemological purpose of strategic forecasting is to study and improve the methodology and methods of work on making forecasts, identifying trends that have manifested themselves in the development of the national economy and in the system of social relations, factors contributing to the emergence and implementation of them, possible changes in these facts, and, accordingly, in the trends. The managerial aspect of strategic forecasting is the use of forecasts for the economic and social development of society to create the necessary prerequisites to ensure an increase in the scientific level of prepared management decisions.

The polystructural (multiple) nature of the problems solved by the modern state, its individual subsystems, as well as directly by economic entities give rise to the need to develop a whole system of forecasts.

Programming is the second step in the strategic planning process. It is based on development forecasts and aims to draw up targeted comprehensive programs for solving the most important problems in the development of the country's national economy, intersectoral, sectoral, regional and local (at the level of economic entities) problems.

A program in macroeconomic strategic planning is understood as a scientific prediction of the state of a local management object within a certain period (in 5,10,15 or more years), based on a clear definition of the goal and a system of measures to ensure the achievement of this goal, agreed upon by the results. , deadlines for performers.

A special place in the system of programs developed in the process of strategic planning is occupied by targeted complex (strategic) programs. Strategic programs are a targeted document of varying degrees of directiveness, containing a system of socio-economic, production, financial, research and other activities agreed upon in terms of time, resources and executors, ensuring the achievement of the set goal, tasks, in the most effective ways and on time.

The core of the target complex program is the goal, around which a complex of various activities that make up the main content of the program is grouped. The single goal of the target complex program is deployed in a set of tasks, the solution of which is carried out with the help of a system of measures implemented by specific executors with a certain resource provision. This relationship represents the essence of the program.

Design is the final step in all strategic planning procedures. Its purpose is to develop draft strategic plans for all levels and time horizons.

The draft strategic plan, in essence, is a draft management decision on the implementation of the policy strategy of the relevant management entities. At the level of the primary link of the national economy (economic entities) - its owners; local authorities of the subjects of the federation, the country as a whole - parties or coalitions of parties in power.

A strategic plan is nothing more than a scientific prediction of the state of an integral object of management of a business enterprise, their associations, a region, a subject of the federation, a country as a whole, in a certain period of time. This vision is based on:

On the system of purposeful designs for the development of relevant objects (society as a whole, its individual subsystems, economic entities);

On a system of measures agreed upon in terms of time, resources, performers (program reserve of the draft strategic plan);

At events for the development of complex industries, industrial and social infrastructure.

In a market economy, the following rule must be observed: the higher the level of the managed system, the more developed the system of forecasts of economic, social, scientific and technical, environmental, foreign economic and foreign policy development should be in the draft strategic plans.

1.2 Economic base for managing the development of the municipalityand methods of its regulation

The economy, that is, the sphere of production, circulation and consumption of goods (works, services), the formation and development of property relations, is the material base that determines the state and vectors of development of the entire social system, including local government as one of the elements. The level of economic development of the municipality depends on the filling of the local budget, the degree of its subsidization, the ability to independently resolve issues of local importance. The law gives local governments significant powers in terms of volume and degree of influence in the sphere of the economy.

The effectiveness of local self-government is determined, first of all, by material and financial resources, which are the economic basis of local self-government.

The economic basis of local self-government - one of its basic elements - is closely related to the population and the territorial basis of local self-government. The presence of these three elements in their close dialectical connection is the most important condition that provides a real guarantee for the formation and development of local self-government. Local public authority is realized through the use of administrative and economic management methods in combination.

The economic basis of local self-government is a set of legal norms that consolidate and regulate social relations that are associated with the formation and use of municipal property, local budgets and other local finances in the interests of the population of municipalities.

There are two concepts that interpret the concepts of the economic basis of local self-government in different ways. The Anglo-Saxon model is characterized by a definition that takes into account economic relations covering the sphere of local significance: the economic basis of local self-government is a set of relations regulated by the norms of law for the formation, management, possession, use and disposal of municipal property, the implementation of tax and financial policy in order to solve the problems of local values. These relations develop as a result of the activities of residents living within the boundaries of the municipality and local governments. Supporters of the European continental concept pay attention to relations that also cover issues of national importance, and therefore, they believe that the economic basis of local self-government is municipal property, local finances, property owned by the state and transferred to the management of local governments.

According to the Federal Law of October 6, 2003 No. 131-FZ “On the General Principles of Local Self-Government in the Russian Federation”, the economic basis is municipal property, local budget funds, as well as property rights of municipalities (Chapter 8, Article 49) .

The European Charter of Local Self-Government states that local self-government bodies have the right to possess “funds that they can freely dispose of in the exercise of their functions”, while financial resources “must be proportionate to the powers granted to them by the constitution or law” (4 article 9)

According to the Federal Law of September 25, 1997 No. 126-FZ On the financial foundations of local government in the Russian Federation Local finance includes local budget funds, state and municipal securities owned by local governments, and other financial resources.

The formation and use of local finances are based on the principles of independence, state financial support and publicity. The rights of the owner in relation to local finances are exercised on behalf of the population of the municipality by local self-government bodies or directly by the population of the municipality in accordance with the charter of the municipality. The formation and use of local finances are carried out in accordance with the Constitution of the Russian Federation, the Federal Law "On the General Principles of the Organization of Local Self-Government in the Russian Federation", this Federal Law, other federal laws, constitutions, charters and laws of the constituent entities of the Russian Federation, charters of municipalities, other legal acts of local governments.

The property and financial resources of local self-government, which determine its economic basis, are made up of several components "Figure 1"

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Figure 1 - Property and financial resources of the municipality

The economic basis provides the independence of local self-government, creates conditions for its life, serves to meet the needs of the population of municipalities. Strengthening and development of the economic basis of local self-government has an impact on the economic situation in the country as a whole.

The state authorities of the Russian Federation and its constituent entities should promote the development of the economic basis of local self-government.

In accordance with the Federal Law of September 25, 1997 No. 126-FZ "On the financial foundations of local self-government in the Russian Federation", the formation and use of local finances are carried out in accordance with the Constitution of the Russian Federation, the Federal Law "On the general principles of organizing local self-government in the Russian Federation" , this Federal Law, other federal laws, constitutions, charters and laws of the constituent entities of the Russian Federation, charters of municipalities, other legal acts of local governments.

The provisions of the Federal Law apply to all municipalities. With regard to closed administrative-territorial formations, the Federal Law is valid to the extent that it does not contradict the Law of the Russian Federation "On a closed administrative-territorial formation"

The powers of local self-government bodies to address economic issues of local self-government are diverse. There are several of their main blocks, consisting of a set of rights and obligations.

1) Use of budgetary instruments, including:

Providing subventions and subsidies to individuals and legal entities, including subsidizing interest rates on bank loans;

Providing budget loans;

Provision of municipal guarantees and guarantees for obligations to third parties; Using this form, the municipality can influence, in particular, bankruptcy proceedings by filing petitions for the introduction of external administration in relation to the city-forming organization, or for the extension of external administration in relation to such an organization under the guarantee of the municipality.

Investments in the authorized capital of newly created or existing legal entities.

Financing the supply of goods (performance of work, provision of services) for municipal needs, including capital investments in the construction, reconstruction and modernization of municipal facilities.

Own capital investments of the local budget in infrastructure facilities are a necessary condition for attracting, in the order of interbudgetary relations, funds from higher budgets accumulated in municipal development funds.

To raise funds allocated for investment needs, municipal borrowings can be carried out in the form of issuing securities or entering into loan agreements with banks. The institution of self-taxation of citizens can also be used.

2) Tax regulation. Local self-government bodies introduce local taxes and fees, determine individual elements of taxation on them in accordance with the legislation on taxes and fees of the Russian Federation. Local taxes imposed by the representative bodies of settlements and city districts include land taxes property tax individuals. A special tax regime in the form of a single tax on imputed income for certain types of activities, which is very important in terms of the conditions for the implementation of the relevant types of business activities.

3) Regulation of urban planning activities. This is a broad concept that includes:

Preparation and approval of territorial planning documents for municipalities (territorial planning schemes for municipal districts, master plans for settlements, master plans for urban districts);

Approval of local standards for urban planning of municipal organizations;

Approval of rules for land use and development of municipalities;

Approval of territorial planning documentation prepared on the basis of territorial planning documents of municipalities;

Issuance of building permits, permits for putting objects into operation in the course of construction, reconstruction, overhaul capital construction facilities located on the territories of municipalities;

Introduction of information systems for urban planning.

4) Tariff regulation. Local self-government bodies set tariffs for services provided by municipal enterprises and institutions (unless otherwise provided by federal laws), as well as for individual services expressly provided for by federal legislation, regardless of the form of ownership of the entities providing services.

5) Implementation of the right of municipal property. Municipal property management performs a number of important economic functions and consists of several areas.

The use of municipal real estate is of great importance for the development of the territory. A new form of relations related to the use of real estate are concession agreements, which are designed to become a means of involving investors' financial resources in the development of municipal property and the formation of private municipal partners.

Under a concession agreement, one party (concessionaire) undertakes, at its own expense, to create and (or) reconstruct the immovable property specified by this agreement, the ownership of which belongs or will belong to the other party (grantor), to carry out activities using (exploiting) the object of the concession agreement, and the concessor undertakes to provide the concessionaire for the period established by this agreement with the rights of possession and use of the object of the concession agreement for the implementation of the specified activity. The concessionaire is the investor, the concessor is the authority of the appropriate level

In accordance with the Federal Law "On Concession Agreements" dated July 21, 2005 No. No. 115 objects of the concession may be, in particular:

Highways and engineering structures of transport infrastructure,

Public infrastructure system and other facilities public utilities, including facilities for water, heat, gas and energy conservation, water disposal, wastewater treatment, processing and disposal (burial) of household waste, facilities designed to illuminate the territories of urban and rural settlements, facilities intended for landscaping;

Subway and other public transport;

Objects used for the implementation of medical and preventive, medical activities, organization of recreation for citizens and tourism;

Objects of healthcare, education, culture and sports and other objects of social, cultural and social purposes.

Land is a special type of real estate. Ownership of municipalities on land is currently at the stage of formation in the manner determined by the Federal Law "On the delimitation of state ownership of land" dated July 17, 2001 No. 101. Due to a number of reasons, including the lack of established boundaries of municipalities, the complexity and duration of demarcation procedures, this process is far from complete.

Management of municipal lands includes their lease, sale, control of targeted and lawful use. In order to increase the economic attractiveness of land plots for investors, their arrangement, primarily engineering, is becoming increasingly important.

Another direction in the implementation of the right of municipal property is the relations arising in the process of creation, operation, reorganization and liquidity of legal entities.

In order to resolve issues of local importance, municipalities have the right to create municipal institutions, municipal unitary enterprises based on the right of economic management and on the right of operational management (municipal state-owned enterprises), economic companies with municipal participation. In accordance with Article 68 of the Federal Law of October 6, 2003 No. 131 "On the General Principles of Local Self-Government in the Russian Federation", the representative bodies of municipalities for the joint resolution of issues of local importance may make decisions on the establishment of inter-municipal business companies in the form of closed joint-stock companies and companies with limited ability.

6) Municipal statistical accounting. A necessary condition for a reasonable and effective socio-economic policy of the municipality is the availability of complete and reliable information necessary for planning and making managerial decisions. In accordance with the Federal Law of October 6, 2003 No. 131 "On the General Principles of Local Self-Government in the Russian Federation", the organization of the collection of statistical indicators characterizing the state of the economy and social sphere of the municipality, and the provision of these data to public authorities in the manner prescribed by the Government of the Russian Federation. Information is used not only by local governments, but also serves as an important information resource for public authorities, including when building interbudgetary relations with municipalities.

One of the main components of municipal statistical accounting is economic accounting. Household accounting books reflect information about the population living in the territory of a rural settlement, property owned by citizens, possession and disposal land plots and shares.

In addition, the All-Russian Agricultural Census, conducted in accordance with the Federal Law "On the All-Russian Agricultural Census" dated July 21, 2005, serves the purpose of forming a database of statistical data on rural settlements. No. 108-FZ at least once every 10 years. The law provides for the empowerment of local self-government bodies to prepare for the conduct of an agricultural census in the manner prescribed by the legislation of the Russian Federation.

7) Implementation of foreign economic relations. According to Article 17 of the Federal Law of October 6, 2003 No. 131 “On the General Principles of Local Self-Government in the Russian Federation”, in order to resolve issues of local importance, local governments have the right to carry out foreign economic relations in accordance with federal laws. Federal Law "On the Basics state regulation foreign trade activities” dated December 8, 2003. No. 164-FZ contains a special article 8.1 "The powers of local governments in the field of foreign trade", but it is also purely a reference.

Based on the established practice, foreign economic relations of local governments are formed by establishing partnerships with administrative and economic entities of foreign states, facilitating direct contact between local producers and foreign consumers, holding exhibitions, presentations, and other events that contribute to the development of foreign economic cooperation.

Forms and methods of exercising the powers of local governments in the economy are made up of a combination of various means, mechanisms legal regulation, which are expressed in the form of certain documents, administrative acts.

In some cases, federal legislation directly refers the adoption of legal acts on certain issues to the competence of either a representative or executive body of local self-government. Thus, decisions on the introduction of local taxes and fees, on the local budget and a report on its implementation, on the approval of a program for the integrated development of communal infrastructure systems, on the establishment of inter-municipal economic societies, and some others are taken in the form of legal acts of a representative body of local self-government. Decisions, for example, on the provision of deferrals or installment plans for the payment of local taxes and fees, on the approval of the consolidated budget list of the local budget are taken by the executive authorities.

An effective method of exercising the powers of local governments in the sphere of the economy is program regulation, carried out in the form of plans and programs for the integrated socio-economic development of the municipality.

Federal legislation directly provides for the need to develop the adoption of certain types of plans and programs, for example, a plan for the development of the municipal sector of the economy (it includes programs for the privatization of municipal property and the acquisition of property in municipal ownership), urban planning plans, and programs for the integrated development of communal infrastructure systems.

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Attention to strategic planning in local government structures is associated with the processes of decentralization of public administration, which contributed to increased autonomy in decision-making at the regional and local levels. Local self-government is of great importance for the search for new models of social management, building a new Russian statehood, where the pyramid of formation and satisfaction of needs is fundamentally inverted: it is not the state that determines what and how much the local community needs, but the population itself sends impulses-demands to the local authorities and, in turn, to the state. The bottom line is that the powers in certain areas of jurisdiction should be exercised at the level of government as close as possible to the population, where a relatively closed cycle of services can be achieved. Therefore, it is local self-government, being the power of the local community, that can implement this idea, due to the knowledge of local conditions, the interests of living together and managing, as well as the control of its authorities by the population.

At the same time, a change in the socio-economic model of the state, radical transformations in all spheres of society, urgently require a revision of the foundations, principles and forms of strategic management, improvement of management strategies and mechanisms, and an increase in their influence on the development of municipalities. Strategic management of the municipality in modern conditions plays a leading role in the system of public administration. An important component of this management system is the institution of local self-government.

Today, the most promising in management is the strategic management of the development of any territory. The fact of the priority of strategic management over other types is also confirmed by the active implementation of its elements at the state level.

Before turning to the analysis of the features of the strategic management of the territory, let us consider the evolution of views on strategy and its role in the development of the state.

Understanding the importance of strategy and strategic management originally occurred in the practice of managing an organization. Subsequently, the new economic conditions that prevailed in Russia at the end of the 20th century forced researchers and practitioners to look for adequate forms and methods for planning the socio-economic development of cities, in particular, trying, based on the experience of foreign countries, to apply strategic planning tools implemented at the enterprise level 115 .

Strategic management as a type of human activity arose in ancient times for use in the military sphere and meant the development and implementation of military operations that decide the outcome of entire campaigns and ensure victory over the enemy. The term "strategy" literally translates as "the art of the commander" (from the Greek stratos - an army and ago - I lead). This concept was also known in ancient China, where already in the period from 480 to 221 BC. e. A book was written, the title of which in Russian translation sounds like "The Art of Strategy". In the future, this management method was constantly improved and extended to other areas of human life, from games to government. In relation to the economic sphere, the term "strategy" was first used in the second half of the 50s. XX century., First as a synonym for long-term planning.

If we talk about the modern understanding of the term "strategy", then we can rely on the following conclusions. The understanding of strategy today is perceived much broader than the strategy of the organization. However, one should refer to the definition of this term in strategic management.

In management theory, there are two opposing views on the understanding of strategy. First point of view is based on this argument: it is necessary to specify the final state, which must be reached after a long period of time. Then it is fixed what needs to be done in order to reach the final state. After that, an action plan is drawn up, broken down by time intervals, the implementation of which should lead to the achievement of a final, clearly defined goal. Basically, this understanding of strategy existed in systems with a centrally planned economy. With this understanding, a strategy is a specific long-term plan to achieve a specific long-term goal, and developing a strategy is finding a goal and drawing up a long-term plan.

This approach, no doubt, is based on the fact that all changes are predictable, and all processes occurring in the environment are determined and amenable to full control and management. However, this premise is not true even for a planned economy. Moreover, it is incorrect in the conditions of transition to a market economy. Moreover, the development of market economic systems in recent decades suggests that the speed of the processes of environmental change, as well as the magnitude of the additional opportunities contained in these changes, is constantly increasing. Therefore, the main basis of the strategy should be the ability to benefit from changes.

On the second understanding used in the theory of organization management, strategy is a long-term qualitatively defined direction of the development of an organization, relating to the scope, means and form of its activities, the system of relationships within the organization, as well as the position of the organization in environment leading the organization towards its goals.

From the point of view of the strategic management of the territory, such an understanding of the strategy excludes the determinism of the development of the territory, since the strategy, determining the direction towards the final state, leaves the freedom of choice, taking into account the changing situation. In this case, the strategy general view can be characterized as a chosen direction, a way of further development of the city, the implementation of which should lead it to the achievement of priority goals.

In the narrow sense of the word, strategy- this is a program, plan, general course for achieving strategic goals in any field of activity. In a broader sense, a strategy is a generalizing model of actions necessary to achieve the goals of management based on selected criteria (indicators) and efficient allocation of resources.

Territory development strategies can be justified only if scientific approaches, methods of system analysis, forecasting and optimization are applied to their development. To develop strategic decisions on the development of the territory, systemic, integrated, integration, marketing, functional, dynamic, reproductive, process, regulatory, optimization, administrative, behavioral, situational and other approaches should be applied to the process of their development.

However, at present, only certain approaches and methods are applied to the development of strategies, as a result of which the strategies are approved for implementation as insufficiently substantiated, which leads to inefficient use of resources.

In turn, the term "strategic management" was introduced into use at the turn of the 60-80s. in order to mark the difference between current management at the production level and management carried out at the highest level. The need to fix such a difference was introduced, first of all, by changes in business conditions. The leading idea, reflecting the essence of the transition from operational to strategic management, was the idea of ​​the need to shift the top management's focus to the environment in order to respond appropriately and in a timely manner to the changes taking place in it.

In the practice of territorial administration, the awareness of the need for strategic management has replaced the traditional concept of strategic management of the economy, which was based on central planning of sectors and proportions of the national economy based on an inter-sectoral balance, the minimum needs of the population and the predominant growth of means of production compared to the production of consumer goods. This concept was implemented in the USSR.

With the transition to a market economy, the traditional concept has lost its significance. At the same time, it requires careful study and can be transformed into the theory of state regulation of the economy.

Recently, the social concept of strategic management, based on raising the level of socio-economic development of economic systems based on the growth of material well-being and the comprehensive development of the personality of citizens, has become increasingly relevant. The methodological basis of the concept is planning the growth of the quality of life of the population and ensuring such proportions of the development of the municipality that contribute to the achievement of the strategic goals of management.

The social concept has its own characteristics that fundamentally distinguish it from the traditional one:

♦> firstly, it is the primacy of social and material

human needs over production;

♦> secondly, it is setting strategic goals and assessing the degree of their achievement in terms of the quality of life of the population;

❖ thirdly, it is the alternative options for the development of the region (municipality) depending on the geopolitical situation and the influence of external and internal environmental factors.

Let us consider some aspects of the strategic management of the territory. In the work "Strategic management: region, city, enterprise" edited by D.S. Lvov gives the following definition of the concept "strategic management" - this is a management activity aimed at achieving the set goals in an unstable, competitive, market environment, including a diagnostic analysis of the state of the region, strategic planning and implementation of the chosen strategy.

Strategic management answers questions about how forecasts can be made, how to relate the desired future state to the current situation, how to develop plans and achieve goals.

A strategic approach to municipal management means the interrelated management of state and change (development). This is the antithesis of the priority of solving current, everyday tasks that exists in many municipalities.

The essence of the strategic approach to municipal management is the transition from the priority of short-term goals to the priority of long-term ones, from focusing on solving current problems to focusing on solving long-term problems.

The system of strategic management of the municipality is part of the overall management and includes the following components: obtaining, analyzing and evaluating the necessary information; development and adoption of decisions and organization of their implementation; analysis of the obtained results and making adjustments in the course of further work. These components, in contrast to the current control, are aimed at solving the global control problem. In addition to defining the vision, mission and goals, each strategic program includes a description of the need for its development, a description of the place of the program in the overall or functional strategy, the formulation of the overall goal and goals of the subsystems (program participants), a description of the relationship of the subsystems and the resources needed to implement the program, etc.

The scheme of strategic management of municipal activities can be presented in the form of four blocks:

A) goal setting and goal setting - the development of a general strategy for the development of the municipality and the development on its basis of private municipal policies, programs and projects;

B) regulatory and legal design - the formation of a system of regulatory legal acts (decrees, orders, regulations, procedures, instructions, instructions, etc.), social guarantees and norms for their implementation. This block is the most significant, since no plans and programs will be implemented if they are not brought to the level of mandatory regulatory legal acts.

C) organizational design - the formation of organizational structures, which are assigned a certain set of tasks and functions. Without their presence, the implementation of strategic tasks will be impossible;

D) planning - the development of an action plan to achieve the strategic goals of the development of the municipality, which should ensure the linkage of the activities of all organizational structures in time and their interaction aimed at the effective use and increment of economic, spatial, human and other resources of the territory.

Analyzing the above, the strategic management of municipal activities can be represented in the form of a diagram shown in Figure 7.

Rice. 7. Scheme of strategic management of municipal activities

A strategic approach to municipal management requires a radical revision of its entire ideology, established management technology, decision-making practices and resource allocation.

In certain areas of management, this revision means the following.

1. In the sphere of interaction between the authorities and the population:

❖ transition from a rigid administrative hierarchy to equality and cooperation;

❖ from reliance on administrative (coercive) levers of power to reliance on the authority and influence of power;

❖ from submission to understanding;

❖ from passive to active participation of the population in solving local issues;

♦> from the closed to the open nature of the activities of local authorities;

❖ from the social-corporate (the leader and his team based on their own ideas and interests) to the normative-legal nature of decision-making, to clear regulations and procedures.

2. In the area of ​​resource use:

❖ transition from an emphasis on the distribution of available material, financial and other resources to an emphasis on the increment of these resources on the basis of strategic planning and management;

❖ transition from mobilization use (for urgent needs) to a planned type of increment and use of resources.

3. In the field of planning- transition from an emphasis on making operational (situational) decisions to long-term planning using a marketing approach and relying on the support of the population.

4. In the field of organization and management structure:

❖ transition from a separate solution of issues of functioning and development to a joint, coordinated one;

❖ from departmental to program-functional type of management structure.

Development strategy of the municipality- this is the most important element in which the final conclusions are formed about the goals of the socio-economic development of the territory, the factors and mechanism for achieving it, as well as about the methods of managing this development 122. Conclusions are drawn taking into account new trends and features of the socio-economic development of the region, country and municipality. The concept should be based on the development of alternative strategies and their evaluation, identification of priority areas for the development of the municipality, analysis of development resources, as well as the competitive advantages of the municipality.

Based on the concept of the development strategy of the municipality, a plan of specific strategic actions is formed, which is a vector for the development of the municipality, which has the following order of formation:

❖ strategic analysis of the municipality;

❖ development and evaluation of development scenarios based on reference and current strategies;

❖ development of a philosophy for the development of the municipality, including the definition of the vision, mission, goals and objectives of the municipality;

❖ determination of approaches and methods for developing strategic plans and actions.

The key link in the concept of development of the municipality is the definition of its vision, mission, goals and objectives, i.e. what is called the "philosophy of development" 124 . In strategic management, it is important to remember the so-called hierarchical structure of the strategy, which is as follows: what at the highest level of management is considered a means to achieve any goals, at lower levels turns out to be a goal. It follows from this that the strategy developed for the municipality as a whole acts as a goal in relation to local governments operating in the relevant territory.

Based on the foregoing, the main approaches and methods for developing a strategy for the development of a municipality are determined. In the absence of strategies as a document, attempts are made to identify the factors that characterize the activities of the municipality. This is necessary in order to then put forward a hypothesis about the content of a possibly effective strategy. At the same time, an analysis of both internal and external parameters of the municipality is carried out. Strengths and external opportunities, goals and all types of resources are used as criteria for choosing a strategy.

All approaches to the development of the strategy of the municipality boil down to the fact that the strategy is a combination of strategic analysis and the intuition of the developers, which in the first place should be those subjects who will then detail and implement the strategy. It is also important that the strategy can never be thought out and calculated to the end, and its adjustment as external and internal conditions change is a necessary procedure. In addition, there is no universal, suitable for all occasions method of developing a strategy.

The most effective is the method of "drawing images"(images of the present and future, desired state) 125 and their subsequent description, to determine the "gap" between dream and reality. The process of describing the dream and the actual state of the municipality can be formalized by comparing the present and future state of the municipality, which is presented through the eyes of an outside observer and the eyes of one of the inhabitants of the municipality from the inside. The outside view is aimed at assessing the opportunities and threats, determining the competitive position of the municipality, its compliance with one of the standard strategies, as well as what the municipality receives from the resources and what it transfers to the external environment, having processed these resources.

The vision of the municipality from the inside is aimed at describing the potential of the municipality (its strengths) and urgent problems, identifying key competencies, as well as features of territory management and the strategic vector of development of the municipality. At this stage, a special art consists in the skillful transformation of many weak signals into a system that represents the present and future state of the municipality. As a platform for motivating the development of the municipality, the mission reflects a kind of ambition of the leader and his team. Therefore, when developing a mission, not only the potential of the municipality and its interaction with the external environment are taken into account, but also the interaction of the subjects of goal setting (government, business, community), the image of the municipality, and much more.

Each municipality has the right to its own approach to strategic management, including the definition of the format of the strategy as a document and its content. However, general approaches to the content of such an important document of a strategic nature must be maintained, otherwise one can hardly expect vitality from the strategy. And it can become such only when it has a specific program of action. To do this, the definition of the content of the strategy as a document should be based on the methods of historical and structural-functional analysis. The historical approach involves the study of the genesis of the municipality, the driving forces and sources of its organization and development. The use of the method of comparative historical analysis in combination with structural and functional analysis allows, on the one hand, to link the emergence of a new level of socio-economic development of the municipality in time with changes in the structural organization, on the other hand, to identify patterns of qualitative changes in its socio-economic development. In the aggregate, we are talking about the knowledge of the internal patterns of development of the municipality.

The combination of this knowledge with the results of the analysis of the starting conditions for its socio-economic development and the assessment of external conditions creates sufficient prerequisites for the formation of a scientifically based program for the socio-economic development of the municipality. Contradictions are the source of all development. For a municipality, this means that in order to form a strategic choice, it is necessary to identify and describe the internal and external contradictions in the development of a municipality as a complex socio-economic system. As an internal source of development, one can consider the structural and functional contradiction between specialization and complexity.

The content of the strategy should correspond to a development option that is pessimistic, realistic or optimistic 127 . Each of them, in turn, involves several types of strategies. At different stages of development of the municipality, these options can change, combine and complement each other. This approach largely determines the effectiveness of the formation of the development strategy of the municipality.

The essence of municipal government

At present, the level of economic development requires managers and entrepreneurs to pay special attention to the management of the company. This is due to the fact that most of the objects of management operate in market conditions. It is characterized by the freedom of subjects, the presence of competition, a multitude of economic ties, and the orientation of producers to consumer demand. The regulator of relations is competition, which establishes a relative equilibrium in the market.

All these conditions create many factors that have a direct or indirect impact on the enterprise. In addition, the object of management in the modern world is a complex open system that needs to interact with the external environment. Under such conditions, competent management of the company becomes an effective tool for its long-term and successful functioning in the market.

Management involves different levels of impact on objects or systems. For example, an organization or an enterprise, an institution whose main task is to implement local management can be recognized as a municipality or a local government object.

Municipal government is a means of organization, regulation, and the formation of goals in the framework of the impact of the population of a certain territory on their own life. The impact can be carried out by the method of self-government, as well as through the creation of special authorities.

Remark 1

Local management is an integral structure for the implementation of the regulation of life within a particular locality. Residents independently solve their own problems and emerging difficulties of local importance. Management is carried out within the so-called entity, which has a budget, specific types of property and elected authorities.

The structure of municipal government includes:

• objects of economy (municipal service, law, property);
• budget;
• spheres of the municipality.

Thus, local management implies the implementation of the management of a territorial state formation by the local population independently, or through specially created bodies.

Features and concept of strategic management

Remark 2

Organization management is a separate scientific discipline, which includes many constituent elements, each of which is aimed at regulating a certain area of ​​the enterprise. One of them is strategic management. Its main purpose is to establish a global goal for the functioning of the company.

The very concept of strategy implies the preservation of the efficiency and competitive advantages of a business object in a long period of time. In addition, the strategic approach assumes that in the event of force majeure or crisis situations, management will be able to minimize their impact as soon as possible. The development of strategic management principles for enterprises includes the following steps:

1. Specification of the main direction and scope of activity of the current or future company.
2. Creation of tactical tasks and principles of their solution according to the chosen goal.
3. Selection of methods for achieving strategic goals.
4. Selection and approval of the most appropriate model of functioning in the market.
5. Implementation of theoretical developments in the practical work of the enterprise.
6. Establishing quality feedback.

Strategic management is a rather laborious process. The preliminary stage includes a comprehensive analysis of the environment where the enterprise will operate or is already operating. In addition, analytical work involves identifying the strengths and weaknesses of the company, that is, its potential and the possibility of risks both inside and outside the organization.

The implementation of strategic management in practice requires the development of management models, as well as integrated approach. The essence of the latter lies in the fact that all divisions, branches and other structural entities of the enterprise must act in the same direction. Successful implementation of the strategy in the work of the company requires monitoring the effectiveness of the model used. This is done to make timely adjustments, as well as to evaluate the effectiveness of the changes made.

Strategic Municipal Management

The principles of strategic management are also implemented in the sphere of municipalities. The strategic management of the municipality implies a long-term preservation of positive trends in socio-economic development. This approach includes the following main provisions:

1. Obtaining, processing and analyzing information about the work of the municipality.
2. Formation of decisions, their implementation.
3. Evaluation of the effectiveness of decisions, making adjustments.

All these stages relate to strategic thinking and distinguish it from operational management. At this level of government, we are usually talking about the development of programs for the development of regions or municipalities. The main objectives of these programs can be called the growth of the potential of the territorial entity, ensuring its competitiveness relative to other objects, improving the quality and standard of living of the population.

At the municipal level, projects developed by external, private or interdepartmental organizations are also taken into account. First, they are checked for their compliance with the overall development strategy of the region. Then a decision is made to include the project in common system work on the implementation of municipal government. This approach allows consolidating the ideas of not only state authorities, but also taking into account the interests of entrepreneurs, manufacturers, and the population.