,llOMan M 15353-KZ


Pecrry6JIHKa KaaaXCTaH
 TpaHC4JOpMa~1UI rOcy~apCTBa
 (B LlBYX TOMaX)      TOM   I
3 ''It      '15.1 \qq.b
 15 HIOJUI 1996 r.


 OT,l~eJIonepauHH 1
 ,IlenapT3MeHT III
 Pem:oH3 EBPOTIbI H Cpe,!.UieH A3HH
                                  llEHE)KHhIE 3KBMBAJIEHTbI
                                  (no COCTOjlHHIO Ha 1 M~ 1996 r.)

                          BaJIIOTa             =            TeHre (T)
                          1 TeHre              =            0,0152 )l;OJIJI. CIDA
                          1 )l;OJIJI. CIDA     =            65,95 TeHre



                                  CPEllHHA: OBMEHHbIA: KYPC
                                     TeHre 3a 1 )l;OJIJIap CIDA

                          3 KBapTaJI 1995            4 KBapTaJI 1995            1 KBapraJI 1996

36,10       61,37                59,68                      63,11                     64,91




                                    CIlHCOK COKPAIUEHMH



BC3,IJ;BB           Ba3a COUHa..TILHO-3KOHOMlrQeCKHX )l;aHH'bIX BceMHpHoro BaHKa
IUJU,               HH)l;eKc nOTpe6HTeJIbCKHX ueH
<t>3Il              <t>OH)l; 3KOHOMH"IeCKHX npeo6pa30BaHHH
EC                  EBponeHcKHH COI03
3KCHM6aHK           3KcnopTHo-HMnopTHbIH 6aHK Pecny6JlHKH Ka3aXCTaH
BBII                BaJIOBOH BHYTpeHHHH npO)l;YKT
cr<t>               CTaTHcTHKa rocY)l;apCTBeHHbIX cPHHaHcoB
MB<t>               M e:iK)l;}'HapO)l;HbIH B aJIIOTHbIH <t>OH)l;
MOBPY               Me1K).I,YHapo,n;Haa opraHH3aIJ;HjI BbICIlIHX peBH3HOHHbIX yqpe:>K,Il;eHHH
HA.RM               Han;HOHaJIbHOe areHTCTBO no HHOCTpaHHbIM HHBeCTHUHJIM
03CP                OpraHH3aUHl! 3KOHOMH"IeCKOrO COTpY)l;HH"IeCTBa H pa3BHTHjI
IlIlC               IlapHTeT nOKynaTeJIbHOH cnoco6HoCTH
CIlIlB              CHcTeMa llJIaHHpOBaHHjI/nporpaMMHpOBaHHl! 6IO,lUKeTa
rK<t>K              rocY)l;apCTBeHHbIH KOMHTeT cPHHaHCOBOrO KOHTPOJIl!
rBP                 rOCY)l;apCTBeHHbIH 6aHK pa3BHTHjI
IlPOOH              IlporpaMMa pa3BHTHjI OpraHH3aUHH 06J)e)l;HHeHHbIX HaUHH
                                        llPE,UMCJIOBME

        HaCTOHIII,HH ,llOKJIa.,IJ; OCHOBaR Ha 3aKJIIO'IeHHHX COTPY,llHHKOB MHCCHH BceMHpHoro BaBKa,
pa60TaBlIIeH B Ka3axcTaHe C 21 aBrycTa no 16 ceHTH6pH 1995 rO,lla. MHCCHH pa60TaJIa no,ll
PYKOBO,llCTBOM BepHapa <1>YHKa B cne,llyIOIUeM COCTaBe: MOHcetP Benx3.,ll)KaMOp (6IO,IOKeT),
IYH,110 ,n:e BHep,ll (ynpaBJIeHHe H rpaJK,IJ;aHCKaH cnyx6a) , TpHHa XaK (3,llpaBOOXpaHeHHe H
o6pa30BaHHe), ,n:eHBH,ll KHHr (tPHHaRCOBble onepan;HH MeCTHbIX opraHOB rocY,llapCTBeHHoro
ynpasneHHH), Bap6apa OCcoBHD;Ka (KonH'IeCTBeHHbIH aHaJIH3) H nOpaH Pa6aT (HcnonHeHHe
6IO,IOKen H ynpasneHHe 6IO,IOKeTHbIM npOD;eCCOM). )KaRap A6,lUfnb,llHHa H HaTalIIa BeHceHOBa,
COTpY,llHHD;bI llpe,llCTaBHTenbCTBa BceMHpHoro BaRKa B AnMaTbI, yqacTBOBaJIH B pa60Te MHCCHH
H BHecml CBOH BKna.,IJ; B nO,llrOTOBKY 3Toro ,llOKJIa.,IJ;a. B pa60Te MHCCHH TaKJKe npHHHn yqaCTHe
AneK MaKHeBHH H3 AreHTCTBa MeJK,llYHapO,llHOrO PalBHTHH crnA (cneD;HaJIHCT B o6naCTH
tPHHaHcoBbIX onepan;HH MeCTHbIX OpraROB rOCY,llapCTBeHHoro ynpasneHHH). MHCCHH
BocnOnb30BaJIaCb nonHoH nO.ll.llepJKKOH co CTOPOHbI ,n:eHBH,lla HaTaHa (coBeTHHK Ka3Ha'leHCTBa
CrnA no 6IO,IOKeTHbIM BonpocaM npH MHHHCTepcTBe tPHHaHcoB) H C. PaMaMYPTH (coBeTHHK
MB<I> npH Ka3Ha'leHCTBe MHHHcTepCTBa tPHHaHcoB). BecoMbIH BKna.,IJ; B pa60TY MHCCHH BHeenH
TaKJKe CepHK AxaROB H lli3H3a Ca6HpoBa, nO,llrOTOBHBlIIHe aRaJIH3 pa3BHTHH CHCTeMbI
rOCY,llapCTBeHHbIX tPHHaHCOB Ka3axcTaHa Ha'lHHaH C COBeTCKoro nepHO,lla H ,llO HaCTOJlIUerO
BpeMeHH.

       MHCCHH 6bInO OKa3aHO BceCTopOHHee CO,I(eHCTBHe co CTOPOHbI nepCOHaJIa Ka6HHeTa
MHHHCTPOB, B 'IaCTHOCTH, QeHTpa 3KOHOMH'IeCKHX petPopM Hero <1>HHaRCOBOro ynpasneHHH,
MHHHCTepCTB tPHHaRCOB, IOCTHD;HH, TpaHcnopTa, 3,llpaBOOXpaHeHHH, 06pa30BaHHJI H TpY,I(a,
fOCY,llapCTBeHHoro KOMHTeTa no CTaTHCTHKe, rOCY,llapCTBeHHoro KOMHTeTa tPHHaHCOBoro
KOHTPOJIH, Hau;HOHaJIbHOro 6aHKa PeCIIY6nHKH Ka3aXCTaH, 3KcnopTHO-HMnopTHoro 6aHKa
Ka3aXCTaHa, BnaCTeH AnMaTHHcKOH, IOJKHo-Ka3axcTaHcKoH H KYCTaHaHCKOH 06naCTeH,
opraHOB ynpaBJIeHHJI r. AnMaTbI, a TaKJKe co CTOPOHbI snacTeH cne.nyIOIUHX paHOHOB:
KanqaraHCKoro H TaJIrapCKOro (AnMaTHHCKaH o6nacTb), Tone6H (IOJKHo-Ka3axcTaHCKaH
o6nacTl.), <I>e,I(OpOBCKoro H MeHAHrapCKoro (KYCTaHaHCKaH 06naCTb).
                                        PECnYBJIHKA KA3AXCTAH

                                   TPAHCOOPMAUHSI rocY,UAPCTBA

                                                         TOM   1


                                                  CO)J;EP}l{AHHE

npe.llHCJIOBHe

PaOoqee pe310Me . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

A.     Heo6xo.llHMOCTb npOBe.lleHHH pe~OPMbl . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ..                 1

B.     MacwTa6bI CHCTeMbl rocY.IlapCTBeHHblX yqpe)l(JleHHii . . . . . . . . . . . . . . . . . . . ..                      1
       BhICOK1fH YPoBeHb pasBHTHjI rocY,IlapCTBeHHhIX ycrryr,
        yuaCJIe,llOBaHHhIH OT cTapoH CHCTeMhI . . . . . . . . • . • • • . . . . . • . • . . . • . . . • . . •             1
       COKpameHHe 06':heMa 6IO,IJ)KeTHhIx pecypcoB . . . . . • . . • . . . . . . . . . • . . . . . . . . .                3
       BJIHjlHHe cOKpameHHjI paCXO,llOB Ha cci>epy rOCY,IlapCTBeHHhIX yCJIyr . . . . . . . . . . . ..                     4
       3a,u;atrn, KOTophle npe,llcTOHT peIIIHTh . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ..          7

C.     rOCY.IlapCTBeHHbIe CTPYKTYPbl . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ..             9
       0630P nOJIHTI.f1{eCK1fX H a,IlMHHHCTpaTHBHbIX CTPYKTYP • . . . . . . . . . . . . . . . . • . . • 9
       OCHoBHble CTpyKTYPHble ,IlHcnpOnOPIIHH . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
       PeOpraHH3aIIHjI pecny6JIHKaHCK1fX opraHOB rocY,IlapCTBeHHoro ynpaBJIeHHjI . • . . . . . • 12
             Kpyr nOJIHOMO'lHH rocY,IlapCTBeHHbIX OpraHOB . . . • . . . . • . . . . . . . . . . . . . . 12
             <l>parMeHTaIIHjI pecny6JIHKaHCK1fX YlIpeX<:,lleHHH . • . . . . . . . . . . . . . . . . . . . . 13
             IJ.eHTpaJIH3aIIHjI npoIIecca pa3pa6oTK1f nOJIHTHK1f . . . . . . . . . . . . . . . . . . . . 14
       PeopraHH3aIIHjI MeCTHhIX opraHoB rocY,IlapCTBeHHOrO ynpaBJIeHHjI . . . . . . . . . • . . • . 1.5
             CymecTBYIOm~ CHCTeMa . . . . . . . . . . . . . . . . . . . • . . . . . . . . . . . . . . . . . 15
             C03,1laHHe OpraHOB MeCTHoro caMoynpaBJIeHHjI . . • . . . . . . • . . . . . . . . . . . . 17

D.     CHCTeMbI rocY.IlapCTSeHHoro ynpaBJIeHH.H . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
       YnpaBJIeHHe 6IO,IJ)KeTOM . . . . . . . . . . . . . . . . . . . . . . . . . . . . . • . . • . . . . . . . . .      24
              IIo,llI'oToBKa 6IO,IJ)KeTa . . . . . . . . . . . . . . . . . . . . . . . . . • . . . • • . • . . . . • .   25
              MacIlITa6hI 6IO,IJ)KeTa . . . . . . . . . . . . . . . . . . . . . . . • . . . . • . . . . . . . . . .      29
              KOHCOJIH,IlaIIHH rocY,IlapCTBeHHOrO 6IO,JUKeTa . . . . . . . . . . . . . . . . . . . . . . . .             30
              HCnOJIHeHHe 6IO,JUKeTa . . . . . . . . . . . . • . . . . . . . . . . . . . . . . . . . . . . . . .         30
              Ay,n;HT 6IO,IJ)KeTHOH ,IlejlTeJIhHOCTH . . . • . . . . . . . . . . . . . . . . . . . . . . . . . . .       34
       Peci>opMa CHCTeMhI rocY,IlapCTBeHHhIX YlIpe)l{)J,eHHH .. . . . . . . . . . . . . . . . . . . . . . .              36

E.     OCHoBHble nporpaMMbl . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 39
       06pa30BaHHe     . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 40
       3,1lpaSOOXpaHeHHe . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41


F.     UeJIH, npHOpHTeTHble Hanp3.BJIeHHH pecI»OPMbl H ee OCYIUeCTBJIeHHe                           . . . . . . . . . . 44
       06mHe 3a,u;a'lH . . . . . . • . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 44
       IIpHopHTeTHhle 3a,u;a'lH . . . . . . . • . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45
       OpraHH3aIIHoHHo-npaBoB~ OCHOBa . . . . . • . . . . . . . . . . . . . . . . . . . . . . . . . • . . 46


G.     3a1CJlIOQeHH.H................................................. 47
                                 TPAHCCIJOPMAUlUI fOCYAAPCTBA

                                           PABOqEE PEJIOME


                                                  BBe,neHHe

i.       focy,n;apCTBeHHOM}' CeKTOpy Ka3axcTaHa eIne rrpe,n;CTOHT rrpHcrroco6HTI.CJI K pe3KHM
rrOJIHTHqeCKHM H 3KOHOMHtIeCKHM H3MeHeHHJlM, KOTOpI.le JlBHJIHCI. pe3YJII.TaTOM pacrra,n;a
6I.IBWerO CCCP. CTpaHa YHaCJIe,n;OBaJIa OT 6bIBWerO COBeTCKOrO COI03a TaKOH 3HatIHTeJIbHbm
06'beM rocy,n;apCTBeHHbIX cnyJK6 H HHcPpaCTpYKTYPI.I, KOTOpbIil OHa He crroco6Ha
cPHHaHCHpOBaTb C06CTBeHHbIMH cpe,n;cTBaMH. HeJaBHCHMO OT Toro, crrOC06CTBOBaJI JIH TaKOH
06'beM rocy,n;apcTBeHHbIX ycnyr 3cPcPeKTHBHOMY rrOBblWeHHIO 6JIarOCOCTOJlHHJI HaCeJIeHHJI,
rrpaBHTeJIbCTBO He MO)l{eT rr03BOJIHTI. ce6e rrpo,n;OJIJKaTI. rrpOBo,n;HTI. rro,n;06HYIO rrOJIHTHKY. 3a
rrOCJIe,n;HHe tIeTI.Ipe ro,n;a 6IO,II;)I{eTHbIe cpe,n;CTBa, BbI,II;eJIJleMI.Ie Ha 3KCIIJIYaTanHIO H MaTepHaJII.Ho-
TeXHHqeCKOe 06eCrreqeHHe ,n;eHCTBYIOInHX CJIY)l{6, COKpaTHJIHCI. Ha            75   rrpOu;eHTOB B peaJII.HOM
BhlpaxeHHH, H rrpaKTHtIeCKH HeT oCHoBaHHH CtIHTaTI., tITO rrpe)I{HHH 06'beM pecypCOB BHOBI.
MOJKeT 6hlTI. M06HJIH30BaH B 0603PHMOM 6y,n;ymeM, ,n;aJKe eCJIH O}Kl{.l];aeMaJI rrpH6bIJIb OT
palpa60TKH MeCTOpoJK,IJ;eHHH HecPTH 6y,neT peaJIH30BaHa.


ii.      II03ToM}' KopeHHoH rrepecMoTp POJIH rocy,napcTBa B 3KOHOMHKe H COU;HaJII.HOH ccPepe
CTPaHbI HeH36e)l{eH. O.IJ.HaKo,no CHX rrop BMeCTO Toro, tIT06I.I crroc06cTBoBaTI. KOHD;eHTPaU;HH
rocy,napCTBeHHoro BMeWaTeJIbCTBa Ha rrpHopHTeTHbIX ceKTopax, COKpameHHe 6IO,II;)I{eTHbIX
cpe,nCTB rrpHBeJIO K rrOBceMeCTHOM}' CHHJKeHHIO KatIeCTBa rocy,napCTBeHHI.IX ycnyr.


111      IlpHWJlO BpeMJI HOBOro MbWIJIeHHJI, Kor,na rrpHopHTeTHbIM HarrpaBJIeHHeM ,n;eJlTeJIbHOCTH
CTaHeT IIOBbIWeHHe KatIeCTBa ycnyr HJIH, rro KpaHHeH Mepe, 06eCrreQeHHe HX COOTBeTCTBHJI
MUHHMaJIbHbIM CTaH,IlapTaM, a TaKXe rrpHBe,n;eHHe 06'beMa «TeopeTHtIeCKH» rrpe,nOCTaBJIJleMblX
yCJIyr B COOTBeTCTBHH C       (i) 06'beMOM cpe,ncTB, HMeIOInHXCJI.II.JIJI Toro, tIT06bI 06eCrreQHTb TaKHe
CTaH,IlapTbI; H C   (ii) rrepBOOtIepe.IJ.HbIMH rroTpe6HOCTJlMH Tex, KOM}' 3TH YCJIyrH OKalbIBaIOTCJI.

iv.      BJIaCTH Bce 60JIee OTQeTJIHBO OC03HaIOT He06xo.IJ.HMOCTI. KopeHHoro H3MeHeHHJI CTaPbIX
rocy,napCTBeHHbIX CTPYKTYP H MeTo,nOB pa60TI.I. O.IJ.HaKO B3aHMOCBJl3b MeJK.IJ.Y 3TOH u;eJIbIO H
pecPopMoH MexaHH3MOB yrrpaBJIeHHJI rocy,napCTBeHHbIMH pecypcaMH (TaKHX KaK
a,nMHHHCTpaTHBHoe YCTpoHCTBO, yrrpaBJIeHHe 6IO,II;)I{eTOM H rocy,napCTBeHHaJI cny)l{6a) ropa3,n0
MeHee OQeBH.IJ.Ha. B HaCTOJlID;eM ,n;oKJIa,n;e rrpe.nrrpHHHMaeTCJI rrOIlbITKa rrOKa3aTb, KaKHM
06pa30M pe$opMa rocy,napCTBeHHbIX CTPYKTYP H CHCTeM ynpaBJIeHHJI rocy,n;apCTBeHHbIMH
pecypcaMH MOryT 06JIertIHTb rrpou;ecc rrpe06pa30BaHHH.



                  CoKpaIUeHHe MacwTa60B ,neSlTeJIbHOCTH rocy,napCTBeHHblX oprauOB

v.       YpoBeHb 38.HlITOCTH B rocytCapCTBCHHOM CCKTOPC CBH.IJ.eTeJIbCTByeT 0 TOM, HaCKOJIbKO
Pal,n;yThl IIITaTbI rocy,napCTBeHHbIX CJIYJK6. B HaCTOJlID;ee BpeMJI Ha CTO tIeJIOBeK HaCeJIeHHJI
rrpHX0.IJ.HTCJI OKOJIO   6,4 rocy,n;apcTBeHHI.IX cnyJKamHX (06InaJI tIHCJIeHHOCTI. KOTOPbIX COCTaBJIJleT
OKOJIO   1 MJIH   QeJIOBeK) - rrOKa3aTem., KOTOphlil MOJKHO cpaBHHTI. JIHWb C TaKHMH CTpaHaMH KaK
c:I>PaHD;HJI, HH,n;epJIaH,IlI.I, BeJIHK06pHTaHHJI H HTaJIHJI, B KOTOPI.IX tIHCJIeHHOCTb
rocy,napCTBeHHbIX cny)l{amHX JlBJlJleTCJI HaH60JIbWeH. STOT rrOKa3aTeJIb, HeCOMHeHHO,
rrpeBOCXO.IJ.HT aHaJIOrHtIHbIe rrOKa3aTeJIH, xapaKTepHble .IJ.JIJI CTPaH co cpe,n;HHM ,nOXO,nOM, rro
                                                        - ii -

KpaimeH Mepe eCJIH He CtJIiTaTh CTpaHbl BOCTOl{HOH EBPOIILI H 6hIBmero CCCP. OCHOBHhle
,IUIcnpOnOpIJ,HH CKOHIJ,eHTpHpOBaHhI B ~BYX 06JIaCTgX ~egTeJIhHOCTH:


         (i)       roCY,4SPCTBCHHbIC yqpClKJ{CHHJl, a HMeHHO - caMOCTOfleJIhHhle yqpeJlQleHHg H
                   Be~OMCTBeHHhle npe~HgTHg (B KOTOPhlX 3aIUlTO OKOJIO                 100 000 qeJIOBeK
                   TOJIhKO Ha pecny6JIHKaHCKoM YPoBHe), a TaIOKe 06JIaCTHhle H paHoHHhIe OpraHLI
                   rocy~apcTBeHHoro ynpaBJIeHHg (6oJIee            60 000   CJIYxaIU.Hx). B TO xe BpeMjl,
                   MHHHCTepCTBa H yqpeQeHHg MHHHCTepCKoro YPOBBjI, B KOTOPhIX 3aIUlTO MeHee
                   10000 qeJIOBeK,       He~OYKOMnJIeKTOBaHbI nepCOHaJIOM no BceM napaMeTpaM.


        (ii)       yqpClKJ{CHHJl 3/WsBooXpmCHHJl H 06PS30BaHHJl (B KOTOPhIX 3aBjlTO OKOJIO
                   70   npOIJ,eHTOB rocy~apCTBeHHhIX CJIYXaII.UlX). 3TH ceKTopa o6CYQalOTCg B
                   CJIe~IIJ,eM pa3~eJIe.



vi.     Heonpa~aHHO 3HatJIiTeJIhHhle pa3MephI pecny6JIHKaHCKHX CTPYKTYP 06YCJIOBJIeHhI
CJIe~IOIIJ,HMH ~BYMg cPaKTOpaMH:


        (i)        HC,4OCTSTOqJfO qeTKoe pS3rpaHHqCHHC 06Jl38HHOCTCii a,4MHHHCTPSTHBHbIX
                   yqpclKJ{cHHii. H32 236 yqpeQeHHH, cPHHaHcHPyeMhlX H3 pecny6JIHKaHCKOrO
                   61O,IUKeTa HeCKOJIhKO COTeH HMelOT OqeHh MaJIO o6IIJ,ero C rocy~apcTBeHHhIMH
                   OpraHaMH, H gBJIjJ:IOTCg, CKopee, npOcPeCCHOHaJIhHhIMH aCCOIJ,HaIJ,HgMH, ToprOBO-
                   npOMhIIDJIeHHhIMH 061>e~HHeHHgMH HJIH ~HHHCTpaTHBHhIMH yqpeJlQleHHjJ:MH.
                   )l;egTeJIhHOCTh MHornx H3 HHX MoxeT cPHHaHCHpOBaThCg 3a CqeT qneHC.KHX
                   B3HOCOB HJIH OKa3aHHg nJIaTHhlX yCJIyr.


        (ii)       lPPSI'MCHT8IQlJl MHHHCTepCKHX CTPYKTYP.            KOJIHqeCTBO yqpeQeHHH
                   MHHHCTepCKoro YPOBBjI (56) B ~Ba-TpH pa3a npeBhlllIaeT aHaJIOrnqHLle
                   nOKa3aTeJIH no 60JIhIIIHHCTBY CTpaH 03CP. 3Ta cPparMeHTaIJ,Hg eIIJ,e 60JIee gBHO
                   npOgBJIjJ:eTCg Ha YPOBHe ~enapTaMeHTOB. B CTPYKTYpe pecny6JIHKaHC.KHX opraHOB
                   rocy~apcTBeHHoro       ynpaBJIeHHg HaCqHThIBaeTCg HeCKOJIhKO COT
                   ~HHHCTpaTHBHhIX yqpeQeHHH nepBoro YPOBBjI, HlIH ~enapTaMeHTOB.                      B
                   CTpaHax 03CP KOJIHqeCTBO TaKHX yqpeQeHHH, KaK npaBHJIO, He npeBhIIlIaeT
                   CTa.


vii.    IToKa He pa3pa6oTaH 60JIee ~eTaJIhHhIH nJIaH peopraHH3aIJ,HH CHCTeMhI OpraHOB
rocy~apcTBeHHoro ynpaBJIeHHg, MOXHO OCJIS6HTb ,4SBJICHHC HS a,l(MHHHCTPSTHBHblC CTPYXTYPbl
npeQe Bcero nepeCMOTpeB BHeIDHHe rpaHHIJ,hI               rocy~apCTBeHHOrO        ceKTopa, T.e. npHBjlB
CJIe~ylOIIJ,He   MephI:


                   COCTaBJIeHHe cnHCKa ~MHHHCTpaTHBHhIX CTPYKTYP C YKa3aHHeM BhillOJIBjleMhIX
                   HMH cPYHKIJ,HH. O~HH TaKOH cnHCOK yxe COCTaBJIjJ:eTCg B CBg3H C pa3pa6OTKOH
                   HOBOH cPYHKIJ.HOHaJIhHOH H HHCTHTYIJ,HOHaJIhHOH 61O,IUKeTHOH KJIaCCHcPHKaIJ,HH H
                   pe3YJIhTaThI 3TOH pa60ThI MOryT 6hITh HCnOJIh30BaHhI B npoIJ,ecce peOpraHH3aIJ,HH
                   ~HHHCTpaTHBHhIX          CTpYKTYP;


                   ITpH.D:aHHe OT~eJIhHOrO IOpH,lUlqeCKOrO CTaTYCa npOcPeCCHOHaJIhHhIM
                   aCCOIJ,HaIJ,HjJ:M,   ~HHHCTpaTHBHhIM          yqpeQeHHgM, npOMhIIDJIeHHhIM H
                   KOMMepqeCKHM npe~pHgTHgM H BKJIlOqeHHe HX B OC06hIH peJKHM ynpaBJIeHHg
                                                         - iii -

                     HJIH JIHKBH,II;an;HjI TeX yqpeJK..D:eHHH, KOTOphie j1BHO He HrparoT nOJIe3HOH POJIH B
                     CJIOJKHBmeHCjI 3KOHOMHqeCKOH CHTYan;HH.


                     Kor,Il;a 3TH rpaHHn;hI 6y.nyr npOBe,Il;eHhI BJIaCTjlM Heo6xo,Il;HMO npOaHaJIH3HpOBaTh
                     xapaKTep ,Il;eneJIhHOCTH H CTPYKTYPY KaJIC,IlOrO H3 yqpeJK..D:eHHH, C TeM qTo6hI
                     onpe,Il;eJIHTh yqpeJK..D:eHHjI, KOTophIe MOryT 6hITh npHBaTH3HpOBaHhI H
                     npeo6pa30BaHhI B KOMMepqeCKHe HJIH HeKOMMepqeCKHe OpraHH3an;HH, B3HMaTh
                     nJIaTY 3a OK83hIBaeMhIe yCJIYI'H no YCTaHOBJIeHHhIM TaPHq,aM, OCTaBaJICh B
                     rOCY,II;apCTBeHHOM ceKTope, H Te yqpeJK..D:eHHjI, KOrophIM Heo6xo,Il;HMO 6Y,II;eT
                     BhlIIJIaquBaTh ,Il;OTan;HH H3 6IO,roKeTa.


VlIl.   Ha CJIe,IJ;YIOmeM 3Tane ,Il;ejlTeJIhHOCTH B COOTBeTCTBHH C pa3pa6oTaHHOH CTpaTemeH
nOTPe6yeTcjI KOHCOJIH,II;anHjI OCTaJIhHhIX rocY,II;apCTBeHHhIx OpraHOB. Ha 3TOM 3Tane ,Il;OJDKHhI
6hITh npHHjlThi CJIe,Il;yromHe MephI:


                     IIpoBe,Il;eHHe 60JIee ,Il;eTaJIhHOrO q,YHKD;HOHaJIhHOro aHaJIH3a OCTaJIhHhIX
                    rocY,II;apCTBeHHhIX OpraHOB, BhIjIBJIeHHe H JIHKBH,II;anHjI HeHY:lKHhIX q,YHKD;HH H
                     aBTOMaTHqeCKOe ynpa3;IUIeHHe HJIH npHBaTH3anHjI a,IJ;MHHHCTpaTHBHhIX
                     yqpeJK..D:eHHH, BhmOJIHjlBlIIHX 3TH q,YHKD;HH.


                     Y CTaHOBKa e,Il;HHhIX HOPM OTHOCHTeJIhHO TOro, ~O KaCaeTCjI pa3Mepa
                     yqpeJK..D:eHHH H HX opraHH3an;HOHHOH CTPYKTYPhI (c yqeToM c:PYHKnHOHaJIhHhIX
                     oco6eHHOCTeH, reorpaq,HqeCKOrO nOJIOXeHHjI H T.n.).


                     ArpempoBaHHe OCTaJILHhIX q,YHKD;HH B KpynHLle rOCY,II;apCTBeHHhIe CJIYX6hI H
                     KOHCOJIH,II;an;HjI ,Il;eHCTBYIOID;HX CTPYKTYP B CHCTeMY, BKJIIOqaromyIO He MeHee
                     100 ,Il;enapTaMeHTOB   nepBoro ypOBHjI. C yqeToM Heo6xo,Il;HMhIX B03MO)KHOCTeH
                    MjI ocymeCTBJIeHHjI KOHTPOJIjI.


                     06"e,Il;HHeHHe ,Il;enapTaMeHTOB npH6JIH3HTeJIhHO B       20   yqpeJK..D:eHHH
                    MHHHCTepCKoro YPOBHjI, PYKOBO,Il;CTBYjlCh e,Il;HHhIMH KpHTepHjlMH H B
                     COOTBeTCTBHH C npHopHTeTaMH nOJIHTHKH npaBHTeJILCTBa.



               nepeCMOTp nOJlHTHICH B OTHomeHHH 3.D.paaOOXpaHeHHSI H 06P3.30BaHHSI


ix.     AmI Toro,       qro6hI pemaIOID;HM o6pa30M nOBJIHjlTh Ha pa3Mephi rocY,II;apCTBeHHOrO
ceKTopa, nOTpe6yroTCjI TaKXe CTPYKTypHblC IIpt:06pa30BaHHJI B 06JlBCTJIX 3/WBBOOXPBHCHHJI H
o6pa30BBHHJI. YqHThIBaJI ,Il;OJIIO paCXO,Il;OB Ha 3TH ceKTopa B 06meM o61>eMe rocY,II;apCTBeHHhIX
paCXO,Il;OB   (25   npon;eHToB) H qHCJIeHHOCTh 3aHnLIX B HHX pa6oTHHKoB KaK npOn;eHT OT o6mero
KOJIuqe,CTBa rocY,II;apCTBeHHhIX CJIyXaID;HX       (70   npOn;eHTOB), 3TH ,Il;Ba ceKTopa j1BJIjlIOTCjI
npHopHTeTHhIMH HanpaBJIeHHjlMH panHOHaJIH3an;HH.


x.      B     ct/Jcpe 06PB30BBHHJI n;eJIhIO TaKHX peq,opM ,Il;OJI)KHO 6hITL YBeJIHqeHHe KOJIuqeCTBa
yqeHHKoB B paCqeTe Ha O,Il;HOro yquTeJIjI, C TeM ~06LI MaKCHMaJIhHO npH6JIH3HTh :!lTO
COOTHOmeHHe K Me)K,II;yHapO,Il;HhIM CTaH,Il;apTaM. 3TO MoxeT 6hITh o6eCneqeHO, B qaCTHOCTH,
nyTeM npHHjlTHjI CJIe,Il;YIOmHX Mep:
                                                  - iv -

               BHeceHHe H3MeHeHHB B rrpOrpaMMY 06Y'1eHHB, C TeM tlT06LI 60JIbWee BHHMaHHe
               B WKOJIax y,n;eJIMOCb 06~M .n;HCIUiIIJIHHaM. H YBeJIHqeHHe rrperrO,n;aBaTeJIbCKOH
               HarpY3KH. T.e. BHe,n;peHHe MHOrOrrpe,n;MeTHOrO H MHOrOypOBHeBOrO MeTO,n;OB
               06Y'1eHHB. H


               COKpaID.eHHe KOJIHqeCTBa 1llK0JI H Y'le6I1bIX rrporpaMM.


       QTo6bI crrOC06CTBOBaTb KOHCOJIH,n;aUHH IllKOJI, peKOMeH.n;yeTcB rrepeHTH Ha MeXaHH3M
lIOWJ.IIHOrO (j>HH8.1ICHPOBaHHH (B paCqeTe Ha O,n;HOrO Y'lamerOCB), HJIH, rro KpaHHeH Mepe,
OrpaHHllHTb HCrrOJIb30BaHHe HopMaTHBa KJIaCC-KOMIIJIeKT TOJIbKO KJIaCCaMH, pa3Mep KOTOPbIX
MeHbme orrpe,n;eJIeHHOfO MHHHMaJIbHOrO YPOBHB. K.JIaccbI HJIH ue.m.Ie WKOJIbI, r,n;e KOJIHqeCTBO
Y'la~XCB HHJKe 3THX MHHHMaJIbIlbIX HopMaTHBoB, ,n;OJIJKHbI 6bITb 3aKPLITbI HJIH 06'be,n;HHeHbI C
,n;pyrnMH 60JIee KPYIIIlLIMH Y'le6HbIMH 3aBe,n;eHHBMH.


xi.    B cq,epe 3,n;paBOOXpaHeHHB, rrepBOOqepe,n;HOH 3a,naqeH BBJIjleTCB rrepexo,n; OT
Tpe6YJOmero BbICOKHX 3aTpaT cTauHoHapHoro JIeqeHHB Ha 60JIee 3q,q,eKTHBHoe B IIJIaHe 3aTpaT
aM6YJIaTOpHOe JIeqeHHe. ,lJ,JIB 3Toro Heo6xo,n;HMO rrpHHnb CJIe.n;yroID.He MepbI:


               BHe,n;peHHe Me.n;HUHHcKOH rrpaKTHKH, rrpH KOTOPOH yrrop ,n;eJIaeTCB Ha
               aM6YJIaTOpHOe JIeqeHHe, Kor,n;a 3TO ueJIeC006pa3Ho.


               110BbIIlIeHHe 3q,q,eKTHBHOCTH ,n;HarnOCTHqeCKHX H JIeqe6HbIX q,YHKIUiH
               rrepBHlIHoH Me,n;HKO-CaHHTapHOH rroMo~ nyreM YBeJIHqeHHB ,n;OJIH 6IO,IPKeTIlbIX
               cpe,n;cTB, BbI,n;eJIjleMbIX Ha q,HHaHCHpOBaHHe 3THX q,YHKUHH, B 06ID.eM 06'beMe
               pacxo,n;oB Ha 3,n;paBooxpaHeHHe.


               BHe,n;peHHe MexaHH3MOB q,HHaHCHPOBaHHB B paCqeTe Ha o,n;Horo rraUHeHTa (T.e.
               cpe,n;cTBa BbI,n;eJIjlIOTCB Ha q,HHaHCHpOBaHHB rraKeTa Me,n;HUHHCKHX YCJIyr,
               oKa3bIBaeMbIH orrpe,n;eJIeHHoMY KOJIHqeCTBY rrauHeHToB).


       OJKH,n;aeTCB, tlTO 3TH MepbI rr03BOJIjlT COKpaTHTb KOJIHqeCTBO CJIY'laeB rOCIIHTaJIH3auHH H
cpe,n;HeH rrpo,n;OJIJKHTeJIbHOCTH rrpe6bIBaHHB B CTauHOHapHOM JIeqe6HOM 3aBe,n;eHHH. 3TO
COKpameHHe ,n;OJDKHO corrpOBox,n;aTbCB 3aKpbITHeM ueJIbIX Y'lpex.n;eHHH, a He yMeHbWeHHeM
KOJIHqeCTBa KoeK, KOTopoe MOJKeT He 06ecrrellHTb peaJIbHOH 3KOHOMHH cpe,n;CTB.



                 YCOBepweHCTBOBaHBe       ynpaBJIeHBH 61OJOI(eTHblM npoueCCOM


xii.   3q,q,eKTHBHbIe 6IO,IPKeTHble rrpoue.n;ypbI MOryT 6bITb pemaIO~M YCJIOBHeM H
HHCTpyMeHTOM peq,opM rocy,n;apCTBeHHbIX CJIYJK6 . .no HaCTOBID.erO BpeMeHH BeCb 6IO,IPKeTHbIH
rrpouecc Ha Bcex CTa,nHBX orrpe,n;eJIBJICB rrpHHUHrrOM IIaCCHBHoro paCIIpej!eJIeHHH HMeIOID.HXCB
pecypCOB Mex.n;y ,n;eHcTBYIO~MH CTPYKTYPaMH H CJIY)f{6aMH, PYKOBO,n;CTBYBCb KOTOPbIM
,n;eHcTBOBaJI cOBeTcKHH rOC61O/VKeT. Heo6xo.n;HMO OTKa3aTbCB OT TaKOH JIOfHKH H
PYKOBO,n;CTBOBaTbCB COBepmeHHO HHbIM rrpHHUHrrOM - lIPHHIQIlIOM oT6opa, HJIH BbI60pa Me)f{,lJ;y
KOHKYPHPYJOID.HMH Mex.n;y C060H CJIY)f{6aMH H CTPYKTYPaMH - B pe3YJIbTaTe qero ,n;eBTeJIbHOCTb
3THX CTPYKTYP 6y,n;eT onpe,n;eJIBTbCB rrpHopHTeTaMH rrOJIHTHKH H 6IO,IPKeTIlbIMH orpaHHqeHHBMH,
                                                  -v -

npH'IeM Te e,IUIHHIU>I, KOTOphle OKaJKYTCH HaHMeHee 3<p<peKTHBHbIMH B npo.u.ecce oT6opa, MOryT
6LITL JIHKBHAHPOBaHbI.


XlII.   llo.llrOToBKa 61O,WICeTa.   3Ta <PYHKD.HH HaH60JIee 3<p<peKTHBHO BLmOJIHHeTCH TOr,na,
KOr,na npO.u.e,nypLI 6IO,IUKeTHOH ,neHTeJILHOCTH Ha BCeX ypOBHHX CHCTeMhl rocy,napCTBeHHOrO
ynpaBJIeHHH onpe,neJIHIOT npo.u.ecc oT6opa npHOpHTeTOB. B 3TOM ITJIaHe npe,nCTOHT MHOrOe
C,neJIaTL. IIpHopHTeTHbIMH HanpaBJIeHHHMH ,neHTeJILHOCTH HBJIHIOTCH CJIe,nyIOIIJ,He:


        (i)     06ecne'IHTL CTPoro 06Jl3STeJIb1lbIii XSPaKTCp 6IOIPKCTS H KOHTPOJIb 3a
                rocy,napCTBeHHblMH <pHHaHCaMH nyreM


                B03,nep:3<:aHHH OT C03,naHHH HOBhlX BHe6IO,IUKeTHLIX <pOH,nOB H BKJIIO'IeHHH B
                CHCTeM)' 6IO,IUKeTa Bce pecypCLI 6IO,IUKeTHLIX yqpe:3{,IJ;eHHH, B TOM 'lHCJIe
                «BHe6IO,IUKeTHLle peCYPCLI» H Cpe,nCTBa, nonyqeHHLle B nOpH,Il;Ke 3apy6e:3<:HLIX
                Kpe,IUITOB, H


                06eCne'leHHH IOpH,nH'IeCKOH CHJILI 3aKOHa 0 6IO,IUKeTe, 3aKpenHB ero
                COOTBeTCTByroIIJ,HM nOJIO)KeHHHMH yrOJIOBHOrO npaBa.


        (ii)    OTKa3aTLCH OT HCnOJIL3yeMoro B HaCTOHIIJ,ee BpeMH no,nxo,na, onpe,neJIHeMoro
                npe,IVIO:3<:eHHeM, K MSKP03KOHOMHTlCCKOM}' H tPYJIKl.{HOHBJIbHOMY IlO,l{XO;q nyreM


                BKJIIO'IeHHH 6IO,IUKeTa B KpaTKOCpO'lHYIO H cpe,IUlecpo'IHYIO
                MaKpo3KOHOMH'IeCKHe nporpaMMhl H C03,naHHe ,IVIH 3THX .u.eJIeH cne.u.HaJILHOrO
                yqpe:3{,IJ;eHHH B paMKax MHHHCTepCTBa <pHHaHCOB, KOTOpoe 6y,neT 3aHHMaTLCH
                MaKP03KOHOMH'IeCKHM npOfH03HpOBaHHeM,


                COCTaBJIeHHH 6IO,IUKeTa Ha OCHOBe (a) aCCHfHOBaHHH, OTpaJKaIOIIJ,HX
                MaKp03KOHOMH'IeCKHe nporH03hl H npHopHTeTLI nOJIHTHKH; H             (b)   MeTo,nOB
                YCOBepmeHCTBOBaHHH 6IO,IUKeTHOrO npo.u.ecca H KpHTepHeB 3<p<peKTHBHOCTH, a He
                Ha OCHOBe HOPM pacxo,nOB,


                nepe,na'IH OTpaCJIeBLIM MHHHCTepCTBaM nOJIHOMO'IHH no no,nrOTOBKe 6IO,IUKeTHLIX
                3aJ1BOK, B KOTophIe ,nOJl)KHhI BKJIIO'IaTLCH Bce 6IO,IUKeTHLIe yqpe:3{,IJ;eHHH B
                Be,neHHH STHX MHHHCTepCTB H YCTaHOBJIeHHH O<pH.u.HaJIhHOrO nopg,nKa ap6HTpa:3<:a
                Ha Bcex CTa,nHHX no,nrOTOBKH 6IO,IUKeTa, npe,nyCMaTpHBaIOIIJ,ero 06CY:3{,IJ;eHHe
                6IO,IUKeTa Ha YPOBHe npaBHTeJILCTBa C .u.eJILIO npHHHTHH OKOH'laTeJILHLIX
                pemeHHH


                pa3pa6OTKH 60JIee COBepmeHHOH HOMeHKJIaTYPLI pecny6JIHKaHCKOrO 6IO,IUKeTa,
                OCHOBaHHOH Ha <PYHKD.HOHaJILHOH H HHCTHTYD.HOHaJILHOH KJIaCCH<pHKa.u.HH
                6IO,IUKeTHLIX onepa.u.HH, a 3aTeM - aHaJIOrH'IHOH HOMeHKJIaTypLI ,IVIH 6IO,IUKeTOB
                MeCTHhlX opraHOB.


        (iii)   BOCCTaHOBHTL B paMKax npaBHTeJILCTBa, no B03MO:3<:HOCTH B paMKax
                MHHHCTepCTBa <pHHaHCOB, tPYJIKl.{HH IlpOrpllMMHpOBSHHJl H YIIPSBJICHHJl
                rocy~spCTBCHHblMH HHBCCT~HJlMH.
                                                    - vi -

xiv.    HCnOJIHeHHe 61O)lllCeTa.     YCOBepmeHCTBOBaHHe         npou,e,nyp 6IO)J)KeTHOH ,IJ,eRTeJIbHOCTH He
npHHeceT JKeJIaeMbIX pe3YJIbTaTOB, eCJIH HeT COOTBeTCTBYIO~eH HopMaTHBHo-rrpaBOBOH OCHOBhl
HCnOJIb30BaHHR rocy,napCTBeHHbIX cpe,nCTB, KOTOPaR npH3BaHa 06eCne'IHTb HCnOJIHeHHe
6IO)J)KeTa B COOTBeTCTBHH C IIJIaHOM. C03,IJ,aeTCR TaKoe Bne'laTJIeHHe, 'ITO 6IO)J)KeT HCnOJIHReTCR
nO'ITH npOH3BOJIbHO. HanpHMep, ,IJ,aHHbIe 06 HcnOJIHeHHH 6IO)J)KeTa 3a              1994   ro,IJ,
CBH,IJ,eTeJIbCTBYIOT 0 TOM, 'ITO paCXO,IJ,bI MOrJIH JIH60 B ,nBa pa3a npeBbIlliaTb 06'beM
accHruoBaHHhlX cpe,nCTB, JIH60 B HeKOTopbIX CJIYliaRX accHruoBaHHR Bo06~e He
HCnOJIb30BaJIHCb. HeCMOTPR Ha TO 'ITO B Ka3axCTaHe YJKe npHHRT PM Mep, HanpaBJIeHHbIX Ha
C03,IJ,aHHe HOBOH CHCTeMbI Ka3Ha'leHCTBa, He06xo,IJ,HMO 3Ha'iHTeJIbHO ycoBepmeHcTBoBaTb
npou,e,nyPbI ,neRTeJIbHOCTH, C TeM 'lT06bI MexaHH3M HCnOJIHeHHR 6IO)J)KeTa COOTBeTCTBOBaJI
CJIe,nyIO~HM OCHOBHbIM KpHTepHRM 3cPcPeKTHBHOCTH: COOTBeTCTBHe 6IO)J)KeTHbIX ou,eHoK
cPaKTH'IeCKHM pe3YJIbTaTaM, cB060,na MaHeBpa B Te'leHHe cPHHaHCOBOrO ro,na, 9cPcPeKTHBHOCTb H
Ha,neJKHOCTb 6IO)J)KeTHbIX accHrHoBaHHH. ,lVIR Toro 'lT06bI 06eCne'IHTb COOTBeTCTBHe
6IO)J)KeTHOrO rrpou,ecca KpHTepHRM 3cPcPeKTHBHOCTH, He06xo,nHMo pelliHTb CJIe,nyIO~He 3a,na'lH.


       (i)     qTO KacaeTCR 06eCne'leHHR COOTBeTCTBHR MeJK,ny YKa3aHHbIMH B 6IO)J)KeTe H
               cPaKTH'IeCKHMH paCXO,IJ,aMH, He06xo,IJ,HMO C,IJ,eJIaTb CJIe,nyIO~ee:


               OTKa] OT rrpaKTHKH «ceKBecTpau,HHlO IIJIaTeJKeH H BBe,IJ,eHHe KOHTpOJIR 3a
               06R3aTeJIbCTBaMH no paCXO,IJ,aM, CHa'laJIa Ha 06~eH, a 3aTeM Ha nocTaTeHHOH
               OCHOBe;


               BBe,IJ,eHHe yrOJIOBHOH OTBeTCTBeHHOCTH 3a npeBbIllieHHe nOJIHOMO'lHH,
               CBR3aHHbIX C HCnOJIHeHHeM 6IO)J)KeTa (HanpHMep, 3a npHHRTHe 06R3aTeJIbCTB, He
               HMeR COOTBeTCTBYIOIUHX aCCHrHOBaHHH);


               C03,IJ,aHHe u,HKJIH'IeCKHX cPOH,IJ,OB ,IJ,JIR cPHHaHCHPOBaHHR HeKOTophlX KaTeropHH
               paCXO,IJ,OB, Cpe,IJ,CTBa KOTOPbIX 6y,IJ,yT BbI,IJ,eJIRTbCR TOJIbKO TOr,IJ,a, Kor,IJ,a 3TO
               OnpaB,IJ,aHO onpe,neJIeHHOH MaKp03KOHOMH'IeCKOH CHTYau,HeH.


       (ii)    qTO KacaeTCR CB060,IJ,b1 MaHeBpa B npou,ecce HCnOJIHeHHR 6IO)J)KeTa, He06xo,IJ,HMO


               BOCCTaHOBHTb aCCHrHOBaHHR Ha Henpe,nBH,IJ,eHHble paCXO,IJ,bI;


               qeTKo pa3rpaHH'lHTb nOJIHOMO'IHR 6IO)J)KeTHbIX yqpeJK,IJ,eHHH, MHHHCTepCTBa
               cPHHaHCOB, Ka6HHeTa MHHHCTPOB H napJIaMeHTa B XO,IJ,e YCOBepmeHCTBOBaHHR
               npou,ecca HCnOJIHeHHR 6IO)J)KeTa;


               OcPHU,HaJIbHO onpe,neJIHTb nOJIHOMO'lHR MHHHCTepCTBa cPHHaHCOB B npou,ecce
               npHHRTHR Bcex rocy,napCTBeHHblX pemeHHH, HMeIO~HX cPHHaHCOBble
               nOCJIe,IJ,CTBHR;


               IIpe,nocTaBHTL 6IO)J)KeTHblM yqpeJK,IJ,eHHRM aBTOHOMHIO B OTHOmeHHH CTaTeH
               TeK~HX     pacxo,nOB.


       (iii)   qTO KacaeTCR 3cj)(jJeKTHBHOCTH pacxo,nOB H rrpe,nOTBpa~eHHR 3JIoynoTpe6JIeHHH H
               MOmeHHH'IeCTBa, He06xo,IJ,HMO
                                               - vii -

               YCTaHOBHTh   npaImJIa 3aKyrrOK Ha KOHKYPCHOH OCHOBe H OCyw;eCTBJIHTh KOHTPOJIh
               3a HX C06JI10,neHHeM;


               HCKJIlO'IHTL B03MO)KHOCTL B03HHKHOBeHHH KOHcPJIHKTa HHTepeCOB npH
               3aKJIlOtfeHHH KOHTPaKTOB Ha rocy,napCTBeHHLIe rrOCTaBKH;


               YCTaHOBHTL   nepetfeHL He06xo,nHMOH ,nOKYMeHTaIJ;HH, npHJIaraeMOH npH
               OCyw;eCTBJIeHHH pacxo,nOB no K~OH H3 KaTeropHH, KOTOPaH 6y,neT
               npOBepHThCH ,no ocyw;eCTBJIeHHH IIJIaTe:>Ka, H 06H3aTL ,nOJI)KHOCTHLIX JIHIJ;,
               OTBetfalOIIJ;HX 3a nepe'IHCJIeHHe cpe,nCTB, nepetfHCJIHTL cpe,nCTBa TOJIhKO npH
               HaJIH'IHH TaKOH ,nOKYMeHTaIJ;HH.


xv.    Ay,nBT fiIO.lVI(eTHOit JleSlTeJIbHOCTB. KaK BHYTPeHHHH, TaK H BHermmH ay,nHT HrpaIOT
BaJKHYIO POJIL, TaK KaK OHH He TOJILKO n03BOJIHlOT BLUIBHTL CJIyqaH paCTpaT H cPaJILCHcPHKaU;HH,
HO H cnOC06CTBYJOT npOBe,neHHIO CTPYKTypHLIX pecPopM npaBHTeJILCTBeHHLIX npOrpaMM, H60
OHH nOMoraroT onpe.n;eJI.HTL H3JIHrmme cPaKTOPLI H paCnpOCTpaHHTL HOBOBBe.n;eHHH H JIyqIIIHH
npaKTHtfeCKHH OIILIT. ,I1,eHCTBYIOlIJ;He B HaCToHw.ee BpeMJI CHCTeMLI ay,nHTa He OTBetfaIOT 3THM
,nBYM 3a,natfaM. HCnOJIL3yeMaH CHCTeMa   BJIyTpeHHero    ay~a B OCHOBHOM OpHeHTHpOBaHa Ha
KOHTPOJIL 3a ,neHTeJILHOCTLlO KOMMeptfeCKHX CTPYKTYP, a     BHeIIIHHH ay~ Bo06w.e He
npOBO,nHTCH. HH:>Ke npe,nCTaBJIeHLI OCHOBHLIe peKOMeH,naIJ;HH OTHOCHTeJILHO nOBLIIIIeHHJI
3cPcPeKTHBHOCTH CHCTeMLI aY,nHTa.


       (i)     qTO KacaeTCH BHYTpeHHero aY,nHTa, Heo6xo,nHMO


               nepeHeCTH BHHMaHHe BHYTpeHHero aY,nHTa C KOMMeptfeCKHX npe,nnpHJITHH Ha
               rocy,napCTBeHHLIe yqpe}K,neHHH;


               BOCCTaHOBHTL cPHHaHcoBLIH aY,nHT B CTPYKTYpe MHHHcTepcTBa <l>HHaHCOB;


               COKpaTHTL KOJIHtfeCTBO CJIY:>KaIIJ;HX opraHOB cPHHaHCOBOrO aY,nHTa nyTeM
               yrrpa3,nHeHHH OpraHOB ay,nHTa, ,neHcTBYIOIIJ;HX Ha paHoHHoM YPOBHe;


               pa3penrnTb OTpaCJIeBbIM MHHHCTepCTBaM C03,naBaTh
               caMOCTOHTeJILHLIe CHCTeMLI TeXHHtfeCKOH HHCneKIJ;HH.


       (ii)    qTO KacaeTCH BHelIIHero ay,nHTa,


               C03,naTb CtfeTHbIH KOMHTeT, npe,nycMoTpeHHLIH KOHCTHTYIJ;HeH, B 3a,na'IH
               KOToporo 6y,neT BXO,nHTb KOHTPOJIL 3a HCnOJIHeHHeM 6IO,IUKeTa,


               Ha,neJIHTL 3TO yqpe}K,neHHe tfeTKHMH H JlCHLIMH nOJIHOMOtfHHMH,
               npe,nnOtfTHTeJILHO OrpaHHtfeHHbIe OpraHaMH rocy.n;apCTBeHHOrO ynpaBJIeHHJI, a
               TaK:>Ke npe,nOCTaBHTL HM KaK MO)KHO 60JIbIIIYIO CTeneHb caMOCTOHTeJILHOCTH;


               tfeTKO orrpe,neJIHTL cPYHKnHH aY,nHTa yqeTHoH ,nOKYMeHTanHH, BLmOJIHJleMbIX
               3THM yqpe}K,neHHeM, a 3aTeM co BpeMeHeM BKJIIO'IHTb B Kpyr ero nOJIHOMO'IHH
               ou;eHKY Mep nOJIHTHKH.
                                                          - viii -



xvi.       B ,n;OKJIa,ne   BbICKa3hIBaeTClI TO'IKa 3peHHlI OTHOCHTeJIbHO TOrO, '1TO ,n;eueHTpaJIH3aUHlI
MOJKeT BO MHOrOM crrOC06CTBOBaTb He06xo,n;HMOH peOpraHH3aUHH rocy,n;apCTBeHHbIX
yqpe}K,l.l;eHHH, 6JIaro,n;apll TOMY, 'iTO OHa rr03BOJIHT rrpHHHMaTb CTpYKTYPHble pemeHHlI B
60JIbrueH CTerreHH PYKOBO.n;CTBYllCb rroTpe6HOCTlIMH rroTpe6HTeJIeH ycnyr, B pe3YJIbTaTe '1ero
CTaHeT B03MO)I{HOH .n;H<p<pepeHUHaUHlI rocy,n;apCTBeHHoro BMeruaTeJIbCTBa B pa3JIH'1HbIX
pemoHax CTpaHhI.           B paMKax ,n;eHCTBYlOrueH CHCTeMbI           MeCTHble opraHbI rocy.n;apCTBeHHOrO
yrrpaBJIeHHlI <paKTH'1eCKH lIBJIj1JOTClI OT.n;eJIeHHlIMH ueHTpaJIbHoro rrpaBHTeJIbCTBa Ha MecTax. Ha
rrpaKTHKe MeCTHble, B rrepByJO O'1epe)J.b paHOHHble opraHbI rocy,n;apCTBeHHoro yrrpaBJIeHHlI
BhIrrOJIHHIOT 60JIbIIIHHCTBO rocy.n;apCTBeHHbIX <PYHKIJ;HH, CB1I3aHHbIX C Herrocpe.n;CTBeHHbIM
OKa3aHHeM ycnyr HaCeJIeHHJO. H3 MeCTHbIX 6IO,Il;}KeTOB <pHHaHCHPYlOTClI                       80   rrpoueHTOB
rocy,n;apCTBeHHbIX pacxo.n;OB Ha 06pa30BaHHe, 3.n;paBooxpaHeHHe, KYJIbTYPY H OT.n;bIX, a TaKJKe Ha
TpaHcrropT. PaCXO,llbI MeCTHbIX OpraHOB rocy.n;apCTBeHHoro yrrpaBJIeHHlI <pHHaHcHpYJOTClI, B
OCHOBHOM, H3 OOmHX pecypcOB. U;eJIbIO 6JO,Il;}KeTHorO rrpouecca lIBJIj1eTClI pacrrpe,n;eJIeHHe 3THX
06IUHX pecypcoB Me}K,l.l;y pa3JIH'1HhIMH YPOBHHMH rocy,n;apCTBeHHOrO 6JO,Il;}KeTa.                    B   xo,n;e 3Toro
rrpouecca pemaIOTClI ,n;Be 3a,na'1H:        (i)   06eCrre'1HTb o,n;HHaKoBhIH 06'beM ycnyr rro BceH CTpaHe; H
(ii)   3aHHTepeCOBaTb MeCTHbIe OpraHbI rocy.n;apCTBemmro yrrpaBJIeHHlI B aKTHBHOM yqaCTHH B
c60pe 06ruerocy,n;apCTBeHHhIX HaJIOrOB. HOPMbI pacxo,n;OB yCTaHOBJIeHbI C ueJIbIO perueHHlI
rrepBOH 3a,na'1H. CJIO)I{HaH CHCTeMa pe3epBHpOBaHHJl nOCTYfIJIeHHH rrpH3BaHa peIIIHTb BTOPYlO
3a,naqy.


xvii.      B YHHTapHOM        rocy.n;apCTBe cyru;eCTBYIOT ,Il;Ba crroc06a ,l.I;JI1I Toro, 1{T06hI BOIIJIOTHTb B
JKH3Hb pemeHHlI, KOTopble HarrpllMYIO KaCaIOTClI HaCeJIeHHlI TOH HJIH HHOH TeppHTOpHaJIbHOH
e,l.l;HHHUbI: rrocpe,n;CTBOM ,I{MempOBaHHJl (.n;eKoHUeHTpaUHH) rrOJIHOMO'1HH:; H rrocpe.n;CTBOM
nepe,I{am BJIaCTH Ha MeCTa (.n;eueHTpaJIH3auHH). KOHCTHTYUHlI Ka3axcTaHa rrpe.n;yCMaTpHBaeT
HCrrOJIb30BaHHe 060HX MeXaHH3MOB: CTaTbH C                  45   rro   88   orrpe,n;eJIlIIOT CHCTeMY .n;eJIerHpoBaHHlI
rrOJIHOMO'1HH: rocy,n;apcTBa HJIH "MeCTHoro rocy,n;apCTBeHHoro yrrpaBJIeHHlI" , Tor,n;a KaK
CTaTbJl    89   orrpe.n;eJIlIeT YCJIOBHJI ,Il;JIjI rrepe,n;a'1H BJIaCTH MeCTHbIM OpraHaM yrrpaBJIeHHlI HJIH
"MeCTHOMY caMoyrrpaBJIeHHIO •.. [ocyrueCTBJIlIeMoMY] HaCeJIeHHeM Herrocpe.n;CTBeHHO nyreM
BbI60pOB, a TaIOKe '1epe3 BbI60pHhIe H .n;pyrHe opraHbl MeCTHOrO
CaMoyrrpaBJIeHHJI ... YCTaHOBJIeHHbIe 3aKOHOM". O,IUlaKO Ha cero.n;IDI ,n;eHcTByeT TOJIbKO rrepBbIH
MeXaHH3M.


XVlll.     B .n;OKJIa,ne   rrpe.n;CTaBJIeHbI peKOMeH,l.l;aUHH OTHOCHTeJIbHO peOpraHH3aUHH MeCTHhIX
opraHOB rocy,n;apCTBeHHoro yrrpaBJIeHHlI PYKOBO,n;CTBYllCb 060HMH BbirueyrrOMJIHYTbIMH
rrOJIOJKeHHlIMH KOHCTHT}'IJ.HH. C O,ll;HOH CTOPOHbI, rrOJIHTHKa .n;eueHTpaJIH3auHH MOJKeT
rrpHBeCTH K C03,n;aHHJO ropo.n;CKHX H CeJIbCKHX MeCTHhIX opraHOB rocy.n;apCTBeHHoro yrrpaBJIeHHlI.
ITpouecc .n;eueHTPaJIH3aUHH ,n;OJI}KeH 6bITb rrOCTerreHHblM, Kor.n;a <paKTH'1eCKaH rrepe,n;a'1a
rrOJIHOMO'1HH B 06JIaCTH yrrpaBJIeHHlI H 6IO,Il;}KeTa 6y,n;eT ocyrueCTBJIjlTbClI B COOTBeTCTBHH C
B03MO)I{HOCTJlMH MeCTHbIX opraHOB H B paMKax ,n;eMOKpaTH'1eCKHX rrpoue.n;yp. ITPH JKeJIaHHH
rrpaBHTeJIbCTBa, TaKaH rrOJIHTHKa ,n;oJI)l{Ha COOTHOCHTbClI C BbICOKOH CTerreHbIO BbIpaBHHBaHHJI
rroTpe6HocTeH MeCTHbIX OpraHOB rocy,n;apCTBeHHoro yrrpaBJIeHHlI B Pa3JIH'1HbIX '1aCTlIX CTpaHbI.
C ,n;pyroH CTOPOHhI, B .n;OKJIa.n;e YKa3aHO, '1TO rrpe,l.l;JIaraeMbIH rro,n;xo,n; He OCJIa6JIlIeT rocy.n;apcTBo,
a Ha060pOT - rr03BOJljleT rocy,n;apcTBeHHbIM opraHaM B311Tb Ha ce611 OCHOBHbIe <PYHKUHH rro
rrpoBe,n;eHHIO rrOJIHTHKH rrpaBHTeJIbCTBa.
                                                          - ix-

xix.    B :;)TOM KOHTeKCTe, O,n;HHM H3 aCneKTOB pecPopMbI MeCTHbIX opraHoB rocy,n;apCTBeHHoro
ynpaBJIeHH.SI ,n;OJDKHO .SIBJUlTbC.SI C03,n;aH.He   287   ropo,n;CKHX opraHOB MeCTHoro CaMoynpaBJIeHH.SI H
2()().400   opraHOB MeCTHoro CaMoynpaBJIeHH.SI B CeJILCKOH MeCTHOCTH. QT06bI TaKasI nOJIHTHKa
,n;eueHTpaJIH3aIUlH npHHeCJIa }KeJIaeMbIe pe3YJIbTaTbI, ee .rryqme Bcero npOBO,u;HTL B YCJIOBH.SIX,
Kor,n;a 6y,n;eT 06eCnetIeH KOHTPOJIb Ha,n cHCTeMoH ynpaBJIeHH.SI rocy,n;apCTBeHHbIMH cPHHaHcaMH H
nOBbIC.SITC.SI 06IUHe nOKa3aTeJIH HaJIOrOBo-6IO,IVKeTHOH ccPepbI, lITO n03BOJIHT nOJIY'DlTb
onpe,n;eneHHYIO cB060,u;y MaHeBpa B 6IO,IVKeTHOM npouecce, KOTOPasI K HaCTO.SllUeMY BpeMeHH
npaKTHQeCKH HCtIe3JIa. ITpouecc ,n;eueHTpaJIH3aIU1H ,n;OJI}KeH OCYlUeCTBJI.SITbC.SI B HeCKOJIbKO
:;)TanOB.


                  ITPH nepe,n;atIe nOJIHOMOtIHH OpraHaM MeCTHOrO caMoynpaBJIeHH.SI BJIaCT.SIM
                  CJIe,n;yeT HatIaTb C pa3BHTH.SI OrpaHHtIeHHOrO Kpyra cPYHKIUIH, HanpHMep, C
                  ropo,n;cKOH HHcPpacTpYKTYPbI (Bo,n;ocHa6JKeHHe, ueHTpaJIbHOe OTonneHHe,
                  OCBelUeHHe YJIHU, y60pKa Mycopa H 06IUeCTBeHHLIH TPaHCnopT), ,n;eTCKHX Ca,nOB,
                  yqpe)l{,IJ;eHHH KYJIbTYPbI H ,n;ocyra H HeKOTopblX nOTPe6HTeJIbCKHX yc.rryr. TaxOH
                  naKeT MOJKeT npe,n;CTaBJUlTb OKOJIO         1,5   npoueHTa BBIT. Ha Cne,u;yIOlUeH CTa,nHH B
                  Be,n;eHHe MeCTHbIX opraHOB MOJKHO nepe,n;aTb ,n;oporn MeCTHOro 3HatIeHH.SI H
                  HeKOTopbIe yqpe)l{,IJ;eHH.SI 3,n;paBOOXpaHeHH.SI. Ha nOCJIe,u;yIOIUHx CTa,nH.SIX npouecca
                  BJIaCT.SIM CJIe,n;yeT paCCMOTpeTb B03MOJKHOCTb ,n;eueHTpaJIH3aIUlH HeKOTOpblX
                  cPYHKUHH, CB.SI3aHHblX C 06IUHM 06pa30BaHHeM.


                  Ha HatIaJIbHOH CTa,u;HH nepe,n;aTb MeCTHbIM opraH aM CaMoynpaBJIeHH.SI
                  nOJIHOMOtIH.SI no B3HMaHHIO «MeCTHbIX,. HaJIOrOB H npe,n;OCTaBHTb HM npaBO
                  nOBbnnaTb CTaBKY HaJIOra Ha ,n;OXO,n; cPH3HtIeCKHX JIHU. MeCTHbIe opraHbI nOJIyqaT
                  npaBO CB060,IJ;H0 YCTaHaBJIHBaTb CTaBKH (HO He 6a3Y) 3THX HaJIOroB B npe,n;enax
                  CBoeH IOPHC,u;HKUHH no c06CTBeHHOMY YCMOTpeHHIO, B npe,n;eJIax, YCTaHOBJIeHHbJX
                  Ha 06IUeHaUHOHaJIbHOM YPOBHe. ITo Mepe pa3BHTH.SI npouecca nepe,n;atIH
                  nOJIHOMOtIHH 6y,n;YT HaH,n;eHbI HOBbIe HCTOtIHHKH HaJIOrOBblX nocTynneHHH.


                  YCTaHOBHTb       CHCTeMY ,n;oTaIUlH Ha BbIpaBHHBaHHe pacxo,n;OB, nepetIHCJI.SleMblX H3
                  ueHTpaJIbHOrO 6IO,IVKeTa B 6IO,IVKeTbI MeCTHblX OpraHOB rocy,n;apCTBeHHoro
                  ynpaBJIeHH.SI.


xx.     BlUe O,n;HHM acneKTOM pecPopMbI MeCTHbIX OpraHOB rocy,n;apCTBeHHoro ynpaBJIeHH.SI
.SIBJI.SleTC.SI tIeTKOe onpe,n;eJIeHHe, B tIaCTHOCTH, B KOHTeKCTe pecPoPMbI 6IO,IVKeTHOrO npouecca,
<PYHKWfH     M8CTHMX OpraHOB rocy,!{spCTB8HHoro YIIPaBJI8HHH nyTeM


                  OTKaJa OT no,n;pa3YMeBaeMOro ,n;eJIernpOBaHH.SI a,nMHHHCTpaTHBHblX, TeXHHtIeCKHX
                  H cPHHaHcoBbIX cPYHKUHH :;)THX yqpe)l{,IJ;eHHH H tIeTKOrO YCTaHOBJIeHH.SI
                  nOJIHOMOtIHH rocy,n;apCTBeHHoro yqpe)l{,IJ;eHH.SI, B Be,n;eHHH KOToporo OHH
                  HaXOAATC.SI,


                  OTMeHbl ,n;eHcTBYIOlUeH CHCTeMbI pe3epBHpOBaHH.SI nOCTYnJIeHHH OT
                  ..peryJIHpyIOIUHX" HaJIOrOB no Mepe nOBbnneHH.SI 3cPcPeKTHBHoCTH CHCTeMbI
                  HaJIoro06JIoJKeHH.SI


                  H cPHHaHCHpOBaHHe MeCTHbIX OpraHOB rocy,n;apCTBeHHoro ynpaBJIeHH.SI flYTeM
                  06bltIHblX 6IO,IVKeTHblX aCCHrHOBaHHH, KOTOPbIMH MeCTHble opraHbI nOJIyqaT
                  npaBO pacnOp.SlJKaTbC.SI B COOTBeTCTBHH C nOJIHOMOtIH.SIMH, nepe,n;aHHbIMH HM
                  rocy,n;apCTBeHHbIMH MHHHCTepCTBaMH.
                                                         - x-



xxi.      PeOpraHH3aIU1l1 CHCTeMhI rpIDK,D;aHCKOH cnyx6b1 lIBJIlIeTClI qaCThIO KOMIlJIeKCHOH
npOrpaMMhI COKpaW;eHHlI rocY,D;apCTBemlOrO CeKTOpa.               B HaCTOllw;ee   BpeM1l np06JIeMa
38.KJIIOllaeTClI He CTOJIhKO B TOM, lITO <p0H,D; 3apa60THOH IlJIaThI CJIHIIIKOM 06peMeHHTeJIeH (,u:OJI1l
<pOH,D;a 3apa60THOH IIJIaThI B 6IO,IOKeTe, COCTaBJI1lIOW;U OKOJIO         15   npon,eHTOB 06w;eH CYMMhI
pacxo,u:OB H3 rOCY,D;apCTBeHHoro 6IO,IOKeTa, BnOJIHe COOTBeTCTByeT aHaJIOrHtIHbIM nOKa3aTeJI1lM
no CTpaHaM co cpe,llHHM H BhICOKHM ,u:OXO,D;OM), H lITO K03<P<PHD,HeHT ,D;H<p<pepeHIJ;HaIUlH
3apa6OTHoH IlJIaThI OKR)I{eTClI CJIHIIIKOM cxaThIM. np06JIeMa COCTOHT B TOM, lITO                (i)   B
pe3YJIbTaTe qpe3MepHoro ypOBH1I 3aH11TOCTH pa3Mep 3apaooTHoii lLlIaTM Bcex KaTeropHH
pa60THHKoB pe3KO COKpaTHJIClI: 3apIlJIaTa HaH60JIee HH3KOOIlJIallHBaeMbIX pa6OTHHKoB rOpa3,D;0
HHxe npOJKHTOl{HOrO MHHHMYMa, a HaH60JIee BhICOKOOIlJIa1lHBaeMhIe pa60THHKH nonyqaIOT
JIHIIIb He3HallHTeJIhHYIO qaCTh Toro, lITO OHH MOrJIH 6bI nonyqaTb B qaCTHOM ceKTope, H                    l{TO

(ii)   ,D;eHCTByIOW;U B HaCTOllw;ee BpeM1l OTKPMTllH CHCTeMa rp~aHcKoii CJIY)KOM, B PaMKax
KOTOPOH rocY,D;apCTBeHHbIe CJIyXaJ.IJ,He HaHHMaIOTClI rocY,D;apCTBeHHbIMH yqpe)l{,D;eHHlIMH no
copCTBeHHoMY YCMOTpeHHIO, a He rocy,u:apCTBOM B n,eJIOM, He cnOC06CTByeT nOBhIIIIeHHIO
npo <peCCHOHaJIH3Ma.


xxii.     liCnpaBJIeHHe cyw;eCTBYIOw;eH CHTYaD,HH Pa3,D;YTOCTH IIITaTOB rOCY,D;apCTBeHHoro
anITapaTa He MoxeT 6hITh ,D;OCTHrHYTO ITYTeM 06paw;eHHlI K CHMnTOMaM, a He K HCTOl{HHKaM
3THX np06JIeM, KOTophIe KPOIOTClI B llpe3MepHO IIIHPOKHX MacIIITa6ax H BHYTpeHHeH
<pparMeHTaD,HH rOCY,D;apCTBeHHoro ceKTopa (KaK ynOM1lHYTO B naparpa<pe v).                B TO   xe BpeMlI,
eCJIH n,eJIhIO TaKOrO COKpaw;eHHlI .HBJI1IeTClI nOBhlIIIeHHe, a He CHHxeHHe 3<p<peKTHBHOCTH
rocy,u:apCTBeHHoro BMeIIIaTeJIhCTBa B OT,D;eJIbHbIe <PYHKUHH, Heo6xo,D;HMbI napaJIJIeJIbHbIe yCHJIHlI,
HanpaBJIeHHble Ha C03,D;aHHe rpIDK,D;aHCKOH CJIYX6hl, B KOTOPOH 6bIJIH 6hI 3aH1lTbI Ha
nOCTO.HHHOH OCHOBe npO<peCCHOHaJIbHble COTPY,D;HHKH, peIIIHBIIIHe nOCBlITHTh ce611 HHTepecaM
rOCY,D;apCTBa.   ,ll;rnI ,D;OCTH:iKeHH.H   3TOH ,D;BO.HKOH n,eJIH onpe,D;eJIeHbI npHopHTeTHbIe MephI no
CJIe,D;YIOIlJ,HM HanpaBJIeHHlIM ,D;ellTeJIbHOCTH:


          (i)     qTO KaCaeTC.H: KOMIIJIeKTaU;HH nepCOHaJIOM, Heo6xo,IlHMO


                  HCKJIIOllHTh H3 CnHCKa rocY,D;apCTBeHHhIX cnyxaW;Hx COTPy,u:HHKOB yqpe)l{,D;eHHH,
                  He .HBJI1IIOIlJ,HXC.H: qaCThIO CHCTeMbI rOCY,IlapCTBeHHbIX OpraHOB,


                  COCTaBHTh IIITaTHOe paCnHCaHHe YTBep)l{,D;eHHbIX ,IlOJI)l{HOCTeH, a TaK)I{e CnHCOK
                  nepCOHaJIa, <paKTHlleCKH 3aH11TOrO BO Bcex 6IO,IOKeTHbIX yqpe)l{,D;eHH.HX,
                  OCTaBIIIHXC.H nOCJIe nepeCMOTpa IOPHC,IlHKD,HH rocY,IlapCTBeHHbIX OpraHOB H
                  COKpaw;eHH.H MacIIITa60B CHcTeMhI, H YCTaHOBHTh CHcTeMy HenpephlBHoro
                  06HOBJIeHHlI HH<pOPMaD,HH;


                  nepeCMOTpeTb nOp1l,Il0K KOMITJIeKTan,HH nepCOHaJIOM yqpe)l{,D;eHHH
                  3,IlpaBOOXpaHeHH.H H 06pa30BaHHlI B COOTBeTCTBHH C HOBOH nOJIHTHKOH B
                  OTHOIIIeHHH 3THX ,IlBYX ceKTopoB (naparpa<phI viii-x);


                  CKoppeKTHpOBaTh yp0BeHb 3aH1lTOCTH B COOTBeTCTBHH C nOTpe6HOCTlIMH
                  peOpraHH30BaHHbIX rOCY,IlapCTBeHHbIx yqpe)l{,D;eHHH (CM. naparpa<p vii),
                                                   - xi-
                 pa3paOOTaTh HOByro CHCTeMY BhIXO)UlhIX nocooHH;


         (ii)    qTO KaCaeTCg YCJIOBHH HaHMa Ha paooTY, HeOoxO,lUlMO


                 nOCJIe COKpan:J;eHHg qHCJIeHHOCTH Cny}K8.IItHX rocy,napCTBeHHhIX yqpe}K,Il;eHHH,
                 OTKa3aThCg OT OTKPhITOH CHCTeMhI H nepeHTH Ha CTaTYTHyIO CHCTeMY
                 rpa}K,Il;aHCKOH CJIY}KOhI (CHCTeMY PaRrOB, ,nOJI}KHOCTeH HJIH CMemaHHYIO CHCTeMY)
                 npH HaHMe rocy,napCTBeHHhIX cny}KaIIUlX;


                 nepeCMOTpeTh YCJIOBHg HaHMa ,npyrHx KaTerOpHH rocy,napCTBeHHhIX CJIY}Kan:J;HX
                 (nepCOHaJIa MeCTHhIX opraHoB rocy,napCTBeHHoro ynpaBJIeHHg, yqHTeJIeH H
                 Me,nnepCOHaJIa, COTPY,nHHKOB caMocrogTeJIhHhIX yqpe}K,Il;eHHH, 3aKOHo,naTeJIhHhIX
                 H cy,neoHhIX opraHOB).


         (iii)   qTO KaCaeTCg OIIJIaTbI Tpy,na, HeOoXO,lUlMO


                 O)UlOBpeMeHHO C COKpan:J;eHHeM qHCJIeHHOCTH CJIY}KaIIUlX, CKoppeKTHpOBaTb
                 YPOBeHh 3apaooTHoH IIJIaTbI H CTPYKTYPY ,nOJI}KHOCTeH B COOTBeTCTBHH C HOBOH
                 CTaTYTHOH cHcTeMoH, yqHThlBax oOIIUle oIO,Il;}KeTHhIe orpaHHqeHHg H
                 B03MO}KHOCTH CHCTeMbI ynpaBJIeHHg Ka,IJ;paMH;


                 BBeCTH OOJIee CTporne npOn;e,nyphI ynpaBJIeHHg Ka,IJ;PaMH no,n PYKOBO,nCTBOM
                 Ka3HaqeHCTBa H HOBOro rocy,napCTBeHHOrO opraHa, B Be,neHHH KOTOPOro oy,neT
                 HaxO,lUlThCg rpa}K,Il;aHcKax CJIY}KOa.




                              npHOpHTeTHbJe HanpasneHHs pecl»OPMbJ

xxiii.   IbJIo}KeHHbIe BbIllie 3a,n;a':I:H, HeCOMHeHHO, gBJIjlIOTCg aMOHn;H03HbIMH. II03TOMY B
HaCTOgmeM ,nOKJIa,IJ;e BJIaCTgM peKOMeH,nYeTCg npH,nep::arnBaThCg nOCTeneHHoro no,nxo,na, H
COCTaBHTh rpaq,HK npHHjJ:THg OCHOBHbIX Mep B COOTBeTCTBHH C HX HeOTJIO}KHOCThIO H
nOTpeOHOCTgMH B ,nOCTH}KeHHH nOJIHTHqeCKOrO KOHceHcyca H/HJIH B npOBe,neHHH
nO,Il;rOTOBHTeJIhHOH paOOThI.


xxiv.    IIcpsOOTfcpc,lUfoii 3a,I{8Tfcii ,Il;0JI}KH0 CTaTh nOBhIllieHHe 3q,q,eKTHBHoCTH pacnpe,neJIeHHg
oIO,Il;}KeTHhIX pecypcoB H MexaHH3MOB KOHTPOJIg 3a oIO,Il;}KeTHOH ,neUeJIhHOCThIO, a TaK}Ke
COKpameHHe a,nMHHHCTpaTHBHhIX CTPYKTYP. OTO o6'hgCRXeTCg He TOJIhKO TeM, 'ITO 3TH ,nBe
OOJIaCTH ,negTeJIhHOCTH B HaCTOgmee BpeMg XapaKTepH3YIOTCg HaHOOJIee cephe3HhIMH
He,n;OCTaTKaMH, HO H nOTOMY, 'ITO OHH HMeIOT HaHOOJIhIIIee 3HaqeHHe ,II;JIjJ: ycnelliHoro
npOBe,nCHHg peq,opMbI.    H   3TO He TOJIhKO nOTOMY, 'ITO, no KpaHHeH Mepe, B IIJIaHe ynpaBJIeHHg
OIO,Il;}KeTHhIM npOn;eCCOM Y}Ke paspaooTaHhI KOHKpeTHhIe npe,Il;JIO}KeHHg. PeIIIaIOID;He ycnexH B
npon;ecce ynpaBJIeHHg OIO,ll;}KeTHOH ,negTeJIbHOCThIO H peopraHH3an;HH a,IJ;MHHHCTpaTHBHOH
CTPYKTYPhI TaK}Ke gBJIgIOTCg npe,Il;nOCbIJIKaMH npHRXTHg ,n;pyrHX Heooxo,nHMhIX Mep, TaKHX KaK
C03,n;aHHe rpa}K,Il;aHCKOH CJIY}KOhI B 3aKOHo,n;aTeJIbHOM nopg,n;Ke, nepeCMOTP COn;HaJIhHOH
nOJIHTHKH H pa3BHTHe OpraHOB MeCTHoro CaMoynpaBJIeHHg. ,IJ;eHCTBHTeJIhHO, peopraHH3aD;Hg
OIO,Il;}KeTHOH CHCTeMhI H a,IJ;MHHHCTpaTHBHOH CTPYKTYPhI n03BOJIHT BJIaCTgM, BqaCTHOCTH,
HaqaTb ,negTeJIhHOCTh no O,n;HOMY H3 ,nByx HanpaBJIeHHH peq,opMbI, a HMeHHO, K pa3paOOTKe
Ha,n;JIe}KamHX MeXaHH3MOB a,IJ;MHHHCTpaTHBHOH H OIO,Il;}KeTHOH ,nen;eHTpaJIH3aD;HH nOJIHOMOqHH
                                                   - xii -

:u;eHTpaJIbBOrO rrpaBHTeJIbCTBa rryTeM HX rrepe,nalflf (HJIH ,neJIernpOBaHHH) MeCTBbIM OpraBaM
rocy,napCTBeBBOrO yrrpaBJIeBHH. AHaJIOrnllBO, pe4>oPMY 61O,nJKeTBOH CHCTeMbl CJIe,nOBaJIO 6bl
BaqaTb C CeKTOpOB 06pa30BaBHH H 3,npaBOOXpaHeBHH.


xxv.     no Mepe pa3BHTHH ,neHTeJIbHOCTH no 3THM OCHOBHbIM HarrpaBJIeBHHM, BJIaCTH MOryT
«nepe,nOXHYTb. H 06,nyMaTb IIOCJ1eJfY1O~He CTa,I{HH peq:,opMbl. HanpHMep, lITO KacaeTCH
,ne:u;eHTpaJIH3a:u;HH, 3Ta «nepe,nbIlIIKa. MO:>KeT 6hITb HCnOJIb30BaHa ,n.ID[ pa3pa60TKH MeXaHH3MOB
pacrrpe,neJIeBHH rrOJIHOMOlflfH MeJK,lly MeCTHbIMH OpraHaMH H HX no,nOTlleTHOCTH, 6e3 KOTOPblX
MeCTHLle opraHbl OCTalOTCH 3ara,nKOH; ,n.ID[ ,nOCTH:>KeBHH nOJIHTHqeCKoro KOHceBcyca
OTHOCHTeJIbHO COD;HaJIhBO-3KOHOMHqeCKoro 3HaqeBHH ,ne:u;eHTPaJIH3au,HH; H ,n.ID[
COOTBeTCTBYlQlD;eH peOpraBH3aD;HH CTPYKTYPhl IOPHC,nHKUHH H OpraHOB rocy,napCTBeBBoro
yrrpaBJIeBHH, a TaK:>Ke ,n.ID[ pa3pa60TKH 34>4>eKTHBHOH CHCTeMbl 4>HHaHCHpOBaHHH MeCTHbIX
OpraHOB. AHaJIOrHllBO, 3Ta «nepe,nhIlllKa. ,nOJI:>KHa 6hITb HCnOJIh30BaHa ,nJHI ,nOCTH:>KeHHH
KOHceHcyca OTHOCHTeJIbHO HOBOro 3aKOHo,naTeJIbCTBa 0 rpa:>K,II,aHCKOH cJIY:>K6e, a TaK:>Ke ,n.ID[
C03,naBHH Heo6xo,nHMLIX CHCTeM yrrpaBJIeHHH Ka,npaMH.         II   HaKOHe:u;, OIIbIT, HaKOIlJleHHbm Ha
HaqaJIhHbIX CTa,nHHX npo:u;ecca pa:u;HOHaJIH3a:U;HH CHCTeMbI pacxo,nOB Ba CO:U;HaJIhHYKJ c4>epy,
MO:>KeT 6bITb HCnOJIb30BaH rrpH pa3pa60TKe H npOBe,neBHH 60JIee KOMIlJIeKCHOH, rrpo,nYMaHHOH
H :u;eJIeHarrpaBJIeBBOH pe4>opMbI COD;HaJIhHOH rrOJIHTHKH H nporpaMM rocy,napCTBeBHbIX
pacxo,nOB.



                              OpraHH3qHOHHO-npaBOBasI oeHosa pecjlOPM


xxvi.    Ar.uI ycneuIHoro   npOBe,neBHH npe,nJIaraeMbIX pe4>opM CHCTeMbl rocy,napCTBeBHbIX
yqpe:>K,neBHH He06xo,nHMa TBep,naH pelllHMOCTb npaBHTeJIbCTBa, a TaK:>Ke COOTBeTCTBYlQlD;aH
HHCTHTYD;HOHaJIbHaH OCHOBa. 06a 3THX YCJIOBHH Heo6xo,nHMbl ,n.ID[ npo,nOJI:>KeBHH rrpo:u;ecca
npe06pa30BaBHH HeCMOTpH Ha conpOTHBJIeBHe OKonaBllIHXCH 61OpOKpaTHqeCKHX CTPYKTYP H
Tpy,nHOCTH rrepexo,nHoro nepHo,na, KOTOpLle MOryT OKa3aTb KpaHHe He6JIarOnpHHTHoe
B03,neHCTBHe Ha HeKOTopLle KaTeropHH rocy,napCTBeBHbIX CJIY:>KaIlUlx H nOTpe6HTeJIeH
rocy,n:apCTBeBHbIX yCJIyr.


xxvii.   B c4>epe rocy,napCTBeBBblX 4>HHaHcoB PYKOBO,nCTBO rrpo:u;eCCOM pe4>opM ,nOJDKHO,
HeCOMHeBBO, B3HTb Ha ce6H MHBHCTepCTBO 4>HHaHCOB. npH co,neHCTBHH Ka3HaQeHCTBa                        CillA,
AreHTCTBa Me:>K,nyHapO,nHoro pa3BHTHH       CIDA   H COBeTBHKOB MB<I> B paMKax MHBHCTepCTBa Y:>Ke
npopa6oTaH PM npe,nJIO:>KeBHH, npe,ncTaBJIeHHblX B HacToHlD;eM ,noKJIa,ne, B QaCTHOCTH
OTHOCHTeJIbHO C03,naHHH HOBOH CHCTeMbI Ka3HaQeHCTBa I.


xxviii. BMecTe C TeM, elD;c npe,nCTOHT opraHH30BaTh CHCTeMY J'IIpBBJIeHHJI H q:,HHBHCHPOBBHHJl
lIpOIl,eCCB peOpraHH3BIl,HH rp8.JK,I{aHcKoii cnYJK6bl. nOCKOJIbKY 3TOT npouecc OXBaTblBaeT BCIO
CHCTeMY rocy,napCTBeBHbIX opraHOB, Bce MHBHCTepCTBa, rocy,napCTBeHHbIC KOMHTeThl H
HaxO,nHIlUIeCH B HX Be,neBHH yqpe:>K,neBHH, a TaK:>Ke MeCTHble OpraHbI rocy,napCTBeHHoro
yrrpaBJIeBHH H opraHhI MeCTBoro caMoynpaBJIeHHH, peKOMeu,nyeTCH nepe,naTb Bce nOJIHOMO'IHH
no ynpaBJIeBHIO rrpoUCCCOM pe4>opM opraHy, OCYlD;eCTBJIHlOlD;eMY o61D;ee PYKOBO,nCTBO pa6oToH
BeeH CHCTeMbl rocy,napCTBeBBblX opraHOB H B03rJIaBJIHCMOMY npeMbep-MHHHCTpOM, C TeM




   'STOT KOMlIOHeHT pecpopMLl nOMeplICHBaeTCJI TaJOKe B PaMKax IIpoeKTa Mo,nepHH33UHH KUHa'leHCTBa,
ocyrueCTBJIJleMoro BCeMHpHI>IM liaBKOM.
                                                   - xiii -

'tfr06bI B KPyr ero rrOJIHOMOlJJlH BXO.n;HJIH Bce cPYHKJJ:HH, CBjI3aIIHLIe C 06eCrre'leHHeM
HOpMaJIbHOrO cPYHKIUiOHHPOBaHHX HHCTHTYUHOHaJIbHOH CTPYK'rYPbI. 3TOT opraH .n;OJDKeH
OTBe'laTb 3a palpa60TKY nporpaMMhI .n;eHCTBHH, 3JIeMeHTOB CTpaTemH, onpe.n;eJIeHHe CT~H
rrporr,ecca pecPopM H oCYIII,eCTBJIeHHe rrpeo6pa30BaHHH Ha Ka:>K,IlOH H3 CT~H 3TOro rrporr,ecca.
3TOT opraH MO:lKeT BKJlJOqaTb .n;Ba crrerr,HaJIH3HPOBaHHbIX OT.n;eJIa, O.n;HH H3 KOTOPbIX 6y.n;eT
3aHHMaTbCB: CTPYK'rYPOH rocy.n;apCTBeHHbIX ycrryr, a .n;pyroH - rpa:>K,llaHCKOH Crry:lK60H, rrpH'IeM B
COCTaB Ka:>K,IlOro H3 3THX OT.n;eJIOB .n;OJI:lKHbI BXO.n;HTb OpraHH3arr,HOHHbIe e.n;HHHrr,bI, OTBe'lalOIII,He
3a palpa60TKY rrpaBHJI H yrrpaBJIeHHe. OT.n;eJI, 3aHHMalOIII,HHCB: rpa:>K,llaHCKOH Crry:lK60H, MO:lKeT
nocrry:lKHTb OCHOBOH .n;JIjI C03.n;aHRj{ rrOCTOB:HHOrO yqpe:lK.n;eHHB:, B 3a,n;a'lH KOToporo 6y.n;eT
BXO.n;HTl> o6III,ee PYKOBO.n;CTBO JIlO.n;CKHMH pecypcaMH.


XXIX.   If    HaKOHerr" B YCJIOBH5IX pa3.n;po6JIeHHOCTH rocy,napCTBeHHbIX yqpe:lK.n;eHHH, OTBe'lalOlII,HX
3a KOHKpeTHbIe ceKTopa HeB03MO:lKHO 6y.n;eT OCYIII,eCTBJIj{Tl> yrroMXHyTble BbIIIIe CTPYK'rYpHbIe
pecPopMbI B ccPepax OOpaSOBllJlHll H 3,IqJBBOOxpaueHHJI: Heo6xo.n;HMa KOHCOJIH.n;aII,HB: POJIH
rocy.n;apCTBeIIHLIX yqpe:lK.n;eHHH C rr,eJIblO 3cPcPeKTHBHoro PYKOBo.n;CTBa 3THM rrporr,eCCOM. QTo6bI
CTaJIO B03MO:lKHl>1M IlJIaHHpOBaHHe .n;eB:TeJIbHOCTH B PaMKax pecPopM B ceKTopax H
npOrH03HpOBaHHe rroTpe6HOCTeii B pecypcax, Bce yqpe:lK.n;eHHB: 3.n;pasooxpaHeHHB: H
06pa30BaHHB: .n;OJDKHbI 6bITb nepe.n;aHbI B Be.n;eHHe COOTBeTCTBYlOIII,HX MHHHCTepCTB H HX
TeppHTOpHaJIbHbIX OT.n;eJIeHHH (B PaMKax rrepe.n;a'lH nOJIHOMOlJJlH, rrpe,n;rrO:lKeHHOH B
rraparpacPe xix). BMecTe C TeM, MHHHCTepCTBa 3.n;paBOOXpaHeHHB: H o6pa30BaHHB: .n;OJI:lKHl>I
OTBe'laTb 3a rrporpaMMHpOBaHHe H yrrpaBJIeHHe rocy.n;apCTBeHHbIMH pacxo.n;aMH B CBOHX
ceKTopax.



                                               3aKJIIOQeHBJ(


xxx.    B rr,eJIOM B HaCTOB:III,eM ,nOKJIa,n;e orrpe.n;eJIHlOTCB: IljITb rrpHopHTeTHbIX HarrpaBJIeHHH
.n;eB:TeJIbHOCTH B rrporr,ecce rrepexo.n;a Ha PbIHOtIHylO 3KOHOMBKY:


        (i)        rr,eJIeHarrpaBJIeHHOe COKpaIII,eHHe a,n;MHHHCTpaTBBHhIX CTPYKTYP, 'ITO rroTpe6yeT
                   (HeCOMHeHHO, 60JIe3HeHHoro) YBOJIbHeHHB: JIHIIIHHX COTpy,nHHKOB;


        (ii)       KOHCOJIHAaD;HH yqpeJK,ll;eHHH COrr,HaJIbHOrO ceKTopa nyTeM nOBbIIIIeHHH POJIH
                   aM6YJIaTOpHOro JIe'leHHB: B ccPepe 3.npaBOOXpaHeHHB: H YBeJIH'IeHHB: KOJIHqeCTBa
                  yqaIII,HXCB: B paC'IeTe Ha o.n;Horo npeno.n;aBaTeJIj{ B ccPepe 06pa30BaHHB:;


        (iii)      BBe.n;eHHe MeXaHH3MOB yrrpaBJIeHHB: 61O,Il;:lKeTOM, rrpe.n;ycMaTpHBalOIII,HX BbI60p
                   HaH60JIee rrpHopHTeTHhIX HanpaBJIeHHH .n;eB:TeJIbHOCTH BMeCTO pacrrpe.n;eJIeHHB:
                   pecypCOB, onpe.n;eJIB:eMOrO 3K30reHHbIMH cPaKTopaMH (KaK 3TO npOHcxo.n;HJIO B
                   p8.MKax KOMaH,n;HO-a,n;MHHHCTpaTHBHOH CHCTeMbI);


        (iv)      .n;HcPcPepeHIlHaII,HB: rocy.n;apCTBeHHOro BMemaTeJIbCTBa B pa3JIH'IHhIX pemoHax
                   CTpaHhI B COOTBeTCTBHH C npHopHTeTaMH MeCTHoro HaCeJIeHHB: rryTeM
                   rrOCTeneHHOH nepe.n;a'lH COOTBeTcTBYlOIII,HX nOJIHOMoquH opraHaM MeCTHoro
                   caMoyrrpaBJIeHHB: ;


        (v)        C03.n;aHHe CHCTeM yrrpaBJIeHHB: Ka,n;paMH, cnoco6CTBYlOlII,HX HerrpepbIBHOCTH
                   cPYHKJJ:HOHHpOBaHHB: rpa:>K,llaHCKOH crrY:lK6bI, a TaK:lKe 3aHHTepeCOBaHHOCTH H
                   npOcPeCCHOHaJIH3MY COTpy.n;HHKOB.
                                     TPAHC«I>OPMAUlU( rocY,LlAPCTBA


                                A.    Heo6xoJlHMOCTb npOBeJleHHSI pe4l0PMbl



1.        ,!1;06HBillHCh 3Ha'lHTeJIhHhIX ycnexoB B npou;ecce nepexo,D;a Ha phlHOquylO 3KOHOMHKY.
KaJaxcTaH ,D;OCTHr CTa,D;HH. Ha KOTOPOH pecPopMa CHCTeMhI rocy,D;apCTBeHHoro annapaTa
CTaHOBHTC.sI HeOTJIO:>KHbIM ,D;eJIOM. OT cOBeTcKoH CHCTeMhI CTpaHa YHaCJIe,D;OBaJIa CTOJIh
illHpoKoMacllITa6HbIe rocY,D;apCTBeHHbIe CJIYJK6hI H HHcPpacTPYKTYPY. 'ITO HX HeB03MOJKHO CTaJIO
nOMep:>KHBaTh HCnOJIh3Y.sI JIHIIIb C06CTBeHHhle pecypChI. I10 60JIhllIHHCTBY napaMeTpOB 06'beM,
eCJIH He Ka'leCTBO, YCJIYr, OKa3hIBaeMhIX rOCY,D;apCTBOM HaCeJIeHHlO, MOJKHO cpaBHHTh C
nOKa3aTeJIjJMH no CTpaHaM           03CP   C 60JIee BhICOKHM ,D;OXO,D;OM. O,D;HaKO 61O.D;JKeTHbIe pecypchI,
BhI.D;eJIjJeMbIe Ha ynpaBJIeHHe 3THMH yCJIyraMH H HX cPHHaHCHpOBaHHe, COKpaTHJIHCh 3a
nOCJIe,D;HHe '1eTblpe rO,D;a Ha u;eJIbIX   75   npou;eHTOB. O,D;HaKO     ,liP   HaCTO.sIm;erO BpeMeHH
npaBHTeJIhCTBO nhITaeTC.sI pacnpe,D;eJIHTh CKY,D;HbIe pecypcbI no BceM 6e3 HCKJIlO'IeHH.sI 06JIaCT.sIX
,D;e.sITeJIbHOCTH, BMeCTO Toro 'lT06b1 OT06paTh HaH60JIee Ba:>KHbIe H3 HHX H Y,D;eJIHTh HM
nOBhnneHHoe BHHMaHHe. B pe3YJIhTaTe BeCh Kopa6JIh, HMenyeMhIH rOCY,D;apCTBOM. 6hICTPO
norpYJKaeTC.sI B BO,D;Y.


2.        B HaCTO.sIm;eM ,D;OKJIa,D;e nO,D;'1epKHBaeTC.sI He06xo,D;HMOCTh CpO'lHOrO npHH.sITH.sI
peillHTeJIhHbIX Mep C u;eJIhlO no.n:,n;epJKaHH.sI He06xo,D;HMOrO ypOBH.sI OCHOBHhIX rocY,D;apCTBeHHhIX
yCJIYr. B '1aCTHOCTH, He06xo,D;HMO 06eCne'lHTh CJIe,D;YlOm;ee:            (i)   onpe,D;eJIHTh, Kame HaH60JIee
Heo6xo)lHMhIe cPYHKUHH ,D;OJI:>KHbI BhmOJIH.sIThC.sI rocY,D;apCTBeHHbIMH CTpYKTYpaMH H CJIYJK6aMH H
Kame MeHee npHOpHTeTHbIe cPYHKUHH MOJKHO nepe,D;aTb 06m;eCTBeHHbIM opraHH3aU;H.sIM;
(ii)    rOCY,D;apCTBO ,D;OJIJKHO ocym;eCT8JIjJTh BMellIaTeJIbCTBO ,D;HcPcPepeHIJ;HpOBaHO, PYKOBO,D;CTBY.sICb
npHOpHTeTaMH H36HpaTeJIeH HJIH npHHHMaR BO BHHMaHHe CHTYaU;HlO Ha phlHKe; H
(iii)   He06xo,D;HMO YCOBepIlleHCTBOBaTh OT,D;eJIbHbIe cPYHKUHH, C TeM '1T06hI 06eCne'lHTh HX
MaKCHM aJIhuyro caMooKynaeMOCTh.




                       B.   MaCllITa6b1 CHCTeMbi rOCYJlapCTBeHHbIX yqpe}l(JleHHI



BblCOKHI ypoBeHb paJBHTH.R rOCYJlapCTBeHHblX YCJIyr, yuacne.n;OBaHHbll OT CTapoA
CHCTeMbI

3.        HeCMOTp.sI Ha TO 'ITO Ka3axcTaH OTHOCHTC.sI K KaTeropHH CTpaH C ,D;OXO,D;OM HHJKe
Cpe,D;HerO, CTpaHa YHaCJIe,D;OBaJIa OT COBeTCKOH CHCTeMhI CHCTeMY rOCY,D;apCTBeHHhIX YCJIyr,
MaCIIlTa6bI KOTOPOH cpaBHHMhI TOJIbKO JIHillb C MacllITa6aMH aHaJIOrH'IHblX CHCTeM.
,D;eHCTByrom;HX B npOMbIlIIJIeHHO pa3BHTblX CTpaHax. HanpHMep, TaKHe nOKa3aTeJIH KaK
270     '1elIOBeK B paC'IeTe Ha O,D;Horo Bpa'la HJIH     100 '1eJIOBeK   B paC'IeTe Ha O,D;HOrO CaHHTapa,
allaJIOrH'IHbI HJIH npeBOCXO,lJ;jJT ,D;aJKe HaH60JIee BblCOKHe nOKa3aTeJIH no CTpaHaM 3ana,D;HOH
EBponhI. ,IJ,.n.sI cpaBHellH.sI, B IIIBeIJ;HH Ha O,D;Horo Bpa'la npHXO,D;HTC.sI      400   '1eJIOBeK. B
BeJIHK06pHTaHHH, r,D;e TaKJKe ,D;eHCTByeT rocY,D;apCTBeHHa.sI CHCTeMa 3)1paBOOXpaHeHH.sI
(HaU;HOHaJIhHaR cJIYJK6a 3,D;paBOOXpaHeHH.sI), Ha o,D;HOro Me,D;HU;HHCKoro pa60THHKa npHXO,D;HTC.sI
52     '1eJIOBeKa, a B Ka3axcTaHe - JIHllIh   41.   I1JIOTHOCTh pacnpe,D;eJIeHH.sI ,D;opor C TBep,D;bIM
nOKphITHeM COCTaBJI.sIeT      8,4   KM Ha ThIC.sIqy '1eJIOBeK, 'ITO Bbnne nOKa3aTeJIeH, 3acPHKCHpOBaHHhiX
B ,D;Pyrnx CTpaHaX CO cpe,D;HHM ,D;OXO,D;OM, HMelOm;HX CTOJIh JKe 06I1lHPnylO TeppHTopHlO, TaKHX
                                                                   -2-

KaK ApreHTHHa          (1,9       KM Ha ThICjlqy qeJIOBeK), TYPIJ;HjI           (5,3   KM), YKpaHHa     (3,1   KM) H IOJKHaJI
AcPPHKa       (1,4   KM).


4.        CTOJIh BhICOKHH ypOBeHh rocy.n;apCTBeHHhIX YCJIYr Bcer.n;a TpeoyeT 3HaTfHTeJIbHOrO
KOJIHTleCTBa 38HJJTblX B 6IO,IPKeTHOM ceKTope. ,IJ;aHHhIe TaOJIHIJ;hI                        1 CBu.n;eTeJIhCTBYIOT      0 TOM, 'liTO
H no 3TOMY nOKa3aTeJIIO Ka3aXCTaH MOJKHO cpaBHHTh C HaHOOJIee pa3BHThIMH B
npOMhIIIJJIeHHOM OTHOIlleHHH CTpaHaMH 3ana,n;HOH EBpOnhI. TaKOH nOKa3aTeJIh KaK
npHOJIH3HTeJIhHO            6,4   rocy.n;apCTBeHHhIX CJIyxaW;Hx (ueHTPaJIhHhIX H MeCTHhIX rocy.n;apCTBeHHhIX
opraHoB) B paCqeTe Ha CTO qeJIOBeK, MOJKHO cpaBHHTh JIHIllh C TaKHMH cTpaHaMH KaK <l>paHn;HjI,
Hu.n;epJIaH.n;hI, BeJIHKOOpHTaHHjI H HTaJIHJI, KaJK,n;aJI H3 KOTOPhIX OOJIee qeM B                             10 pa3
npeBocxo.n;HT Ka3aXCTaH no .n;oxo.n;y Ha .n;yIllY HaCeJIeHHjI. B TO xe BpeMJI, B MeHee ooraThlX
cTpaHax-qJIeHaX EBponeHcKoro COI03a (EC), TaKHX KaK HpJIaH.n;HjI H rpeUHjI, B
rocy.n;apCTBeHHhIX yqpe)K,ll.eHHjlX 3aHJITO MeHee                   3     npOueHTOB HaCeJIeHHjI.


              Ta6JlHua 1: 3alUIToCTb B rocY.llapCTBeBBOM ceKTope B OT.lleJJbBblX CTpauaxY


CTpaHa                                       BHn               lleHTpam.Hoe             MeCTHLIe oprBHLI             HTOro
                                   Ha ,IlyIIIy HBCe.lleHIUI   npaBHTeJIbCTBO            roc. ynpaBJleHIUI
                                          B nnn?!
                                           (SUS)              (% HaCeJIeHIUI)


Ka3a.lCCTaH                                2,830                    1.5                        4.6                      6.1

beJIbrIUI                                  20,450                  2.7                         2.3                      5.0
4)p~1UI                                    19,820                  4.6                         2.1                      6.7
repMaHIUI                                  19,890                  1.8                         1.7                      3.5

rpe~1UI                                    11,400                  2.2                        0.3                       2.5
HpJIBIU\HlI                                14,550                  1.4                        0.8                       2.1
HTaJIlUI                                   18,610                  3.8                        2.3                       6.2
HImep.JlllH.IUd                            18,080                  4.8                        1.6                       6.4
nOPTYI'aJIlUI                              12,400                  3.9                        1.1                       4.9
HCIlBHIUI                                  14,040                  3.1                        1.0                       4.0
BeJIHKOopHTBHIUI                           18,170                  1.4                        5.1                       6.5

II Ka3a.lCCTaH (1994); liem.rIUI, HCIlaHlUI (1992); HpJIBIU\HlI, BeJIHKOOpHTaHIUI (1991);
   «!>p~, repMIlHIUI, HImepJI~ (1990); rpe~IUI, nopTyraJIlUI (1989),
lJ napHTeT IlOxynBTem.HOH cnocooHoCTH B 1994 r.

HCTO'lHHKH: EBponeHcICHii COBeT, ATJIaC 8ceMHpHoro baBKa, ,Il;OKJIa,D. 0 MHPOBOM pa3BHTHH 3a 1992 r.


5.        TaKYIO CHTYallHIO MOJKHO OO'bjlCHHTh ueJIhIM pg.n;OM <jlaKTopoB, YHaCJIe.n;OBaHHhlX OT
COBeTCKOH CHCTeMhI. KaK H B .n;pyrHx pecnyOJIHKaX OhIBillero COBeTCKoro COI03a,
npe.n;nOlfTeHHe OT.n;aBaJIOCh oOw;eCTBeHHoMY, a He JIHqHOMY nOTpeOJIeHHIO, KpOMe Toro,
He3HaqHTeJIhHhIe pa3JIHqHjI B 3apa6oTHOH MaTe H BhICOKHH ypOBem oopa30BaHHOCTH
cnOCOOCTBOBaJIH npHBJIeqeHHIO BhICOKOKBaJIHcPHllHpOBaHHoro nepCOHaJIa, HanpHMep B TaKHX
c<jlepax .n;ejlTeJIhHOCTH KaK 06pa30BaHHe H 3.n;paBooxpaHeHHe, H HaKOHeu, BaxuOCTh
cooopaxeHHH oe30naCHOCTH, KaK BHYTpeHHeH, TaK H BHeIIIHeH, nOMoraIOT OO'b.sICHHTh
OTHOCHTeJIhHO Baxuoe 3HaqeHHe CneUHaJIHCTOB, 3aH.sIThIX B 3THX ceKTopax (CM. TaOJIHUY                                         5).   H
HaKOHeu, TOT <jlaKT, 'liTO no OKOHlJaHHH BTOPOH MHPOBOH BOHHhI Ka3aXCTaH CTaJI cBoero po.n;a
                                                               -3-

«BHTPHHOHlO COBeTCKOrO COlO3a H BCJNeCKH H.D:eaJIH3HpOBaJICH, B qaCTHOCTH, B xO.ll.e KOMnaHHH
OCBOeHHH IJ,eJIHHHl>IX 3eMeJIl. B 50-e rO.ll.hI, CqHTaHCh qyTh JIH He KOJIhlOeJIhlO HOBoro COBeTCKoro
qeJIOBeKa, nOMoraeT OO'bHCHHTh HenpOnOpIJ,HOHaJIhHO 3HaqHTeJIhHhIii 06'beM pecypCOB,
BhI.IJ.eJIjlBllIHXCH Ha IJ,eJIH pa3BHTHH pecny6JIHKH!f. 00 3TOM TaIOKe CBH.D:eTeJIhCTByeT BhlCOKaH
nJIOTHOCTh OOrn;eCTBeHHl>IX yCJIyr B paiiOHax OCBoeHHH IJ,eJIHHHl>IX 3eMeJIh, r.ll.e nrrOTHOCTh
HaCeJIeHHH KpaHHe He3HaquTeJIhHa.


COKPaIUeHUe 06'beMa 61OJl)l(eTHbiX pecypCOB

6.      YriHThIBaH, qTO nO,lJ,ll;ep)l(aHHe CTOJIh BhICOKoro ypOBHH yCJIyr BCer.ll.a TpeoyeT
3HaquTeJIhHhIX 3aTpaT, CYMMa cpe.ll.CTB, aCCHruyeMhIX Ha 3TH IJ,eJIH H3 rOCY.ll.apCTBeHHoro
6KIAXeTa pe3KO COKpaTHJIaCh 3a nOCJIe.ll.HHe ro.ll.hI: C                1991      no 1995 roA' 06maJ/ c)'MMa CPCA'CTB,
BhIA't:JIt:HHhIX H3 rOCYA"apCTBCHHOro 6IO)!)KCTa, COKpaTHJIaCb                      B 4 pa3a (CM. CxeMY 1). 3TO
npOH30lIIJIO no CJIe.IJ.YlOIIJ,HM TpeM npHqHHaM:


(i)     3a BeCh nepHO.ll. BBII COKpaTHJICH Ha 50 npOIJ,eHTOB (CM. CxeMy                           1), qTO B CBOIO oqepe.ll.h
        npHBeJIO K COKpaIIJ,eHHIO oa3hI nocTynrreHHH, He06xo.ll.HMhIX                      .IJ.JIH q>HHaHCHpoBaHHH
        rOCY.ll.apCTBeHHl>IX crryJK6. AHaJIOrHqHaH cHTyaIJ,HH CJIOJK.HJIaCh B OOJIhUlHHCTBe .Il.pyrnx
        CTpaH ohIBlliero CCCP (CM. CxeMy 2);


(ii)    B YCJIOBHHX COKpaIIJ,eHHH 6a3hI nOCTynrreHHH roCY.ll.apCTBO YJKe He MOrJIO ooecnequTh
        He06xo.ll.HMhm YPOBeHh .Il.OXO.ll.OB. Ha Ta6JIHIJ,e 2 nOKa3aHO COKparn;eHHe .Il.OJIH
        KOHCOJIH.D:HpOBaHHhIX nOCTynJIeHHH B 6IOAXeT B 06IIJ,eM 06'beMe HaIJ,HOHaJI1.HOrO .Il.0xo.ll.a C
        36,8    npOIJ,eHTa BBII B 1992 ro.ll.Y .Il.O npom03HpyeMhIX 22,4 npOIJ,eHTa BBII B 1995 ro.ll.Y
        (6e3 }"'leTa TpaHc<pepTOB). B TO BpeMH KaK 60JIhUlHHCTBY 6hIBllIHX COIJ,HaJIHCTHqeCKHX
        C'rpaE npHXO.ll.HJIOCh npeO.ll.OJIeBaTh nocrre.ll.CTBHH pe3Koro COKpaIIJ,eHHH OIO.IJ.}KeTHhIX
        nOCT)'nJIeHHH (CM. Ta6JIHIJ.Y           3),   HHr.ll.e 9TO He npOHCXO.IJ.HJIO CTOJIh BHe3anHO H B CTOJIh
        3HaqHTeJIhHOH CTeneHH, KaK B Ka3aXCTaHe Ha npOTHJKeHHH nOCJIe.ll.HHX .Il.ByX JIeT (B 1994-
        95 ro,ll;ax KOHCOJIH.D:HpOBaHHhIe oIO.IJ.}KeTHhle nOCTynJIeHHH COKpaTHJIHCh Ha IJ,eJIhlX 13
        npOIJ,eHTOB BBII).


(iii)   B cepe.ll.HHe 1993 rO,ll;a TpaHc<pepThI Cpe.ll.CTB Ka3aXCTaHY, CHaqaJIa OT COI03HOro
        npaBHTeJIhCTBa, a 3aTeM OT POCCHH, npeKpaTHJIHCL. 3TO OKa3aJIO Om,YTHMoe B03,ll;eHCTBHe
        Ha COCTOHHHe OIO.IJ.}KeTa, nOCKOJIhKY 06'beM 9THX TpaHc<pepToB .Il.OCTHrarr 20-25 npOIJ,eHTOB
        BBII Ka3axcTaHa Ha cero.ll.HHllIHHH .Il.eHh. IIpeKparn;eHHe TpaHC<pePTOB He Y.Il.aJIOCh
        BOCnOJIHHTh qHCThlM nepeqHCJIeHHeM pecypCOB H3 HCTOqHHKOB 3a npe.ll.eJIaMH OhIBlliero
        CCCP. 06'beM 9THX pecypcoB COCTaBJIHJI JIHllih 3,7 npOIJ,eHTa BBII B 1994 ro.ll.Y, H3
        KOTOPhIX MeHee 2 npOIJ,eHTOB HCnOJIh30BaJIHCh                   .IJ.JIH   <pHHaHcHpoBaHHH OIO.IJ.}KeTHoro
        .n,e<pHIJ,HTa (CM. Ta6JIHIJ,Y 2).


7.      PHJJ. .L\pyrnx    <paKTOPOB, OOYCJIOBHBllIHX COKparn;eHHe rocY.Il.apCTBeHHhIX paCXO.ll.OB,
3HaqHTeJIhHO OCJIOJK.HHJI CHTyaIJ,HIO B 6IO.IJ.}KeTHoH c<pepe Ka3axcTaHa. HaH60JIee 3HaqHTeJIhHhIM
H3 9TH" <paKTopOB HBHJIOCh HCKJIlOqeHHe KBa3H<pHCKaJIhHhIX OnepaIJ,HH H3 oaHKOBCKOH
o-rqeTHOCTH H HX BKJIIOqeHHe B 6IO.IJ.}KeT, HaqHHaH C 1995 rO.ll.a. HecMoTpH Ha TO, qTO 3TOT llIar




~'ToT «pan,   'ITO B 3TOM npoD,ecce BblABHHYJIHCb MHorne COBeTCKHe PYKOBO)l;HTeJlH (HanpHMep, BpellCHeB. nOHOM3peB), T310Ke
06'bllCRlleT oco6oe BHHM3HHe. YAeJllleMOe pecny6JlHKe.
                                                                 -4-

B KOHeqHOM CqeTe 6hIJI npe,ll;npHIUIT ,ll;JHI TOrO, ~06hI Y BJIaCTeH npOn8JIO JKeJIaHHe
q,HHaHCHpOBaTh npe,ll;npHflIDI B HeOq,HIUl8JIhHOM nOp1I,l.lKe, TeM He MeHee, 3aTPaThI Ha
pecl>HHaHCHpOBaHHe B3aHMHOH 3a,IJ;OJIJKeHHOCTH npe,IJ;npH.sITHH no nJIaTeJKaM BeCHOH                                         1994 ro,ll;a   H
HCnOJIb30BaHHe rOCY,ll;apCTBeHHbIX rapaHTHH no BHYTpeHHHM H HHOCTpaHHbIM Kpe,ll;HTaM
3HaquTeJIhHO YT.sIJKeJIHJIH 6peM.sI paCXO,ll;OB npaBHTeJIbCTBa.


8.       TaKHM o6pa30M, B pe3YJIhTaTe KOppeKTHpOBOYHbIX Mep B 6IOJPKeTHoii cljJepe, nOCTpa,IJ;8JIH
npe}K,ll;e Bcero TaKHe KaTeropHH paCXO,ll;OB KaK                  (i)   TpaHccl>epThI ,ll;OManIHHM X03.s1HCTBaM (-
7    rrpOn;eHTOB     BBn   B   1992-95 IT.),    qTO o6epHYJIOCb B OCHOBHOM COKpaIn;eHHeM neHCHOHHhIX
BhIIIJIaT;   (ii)   rocY,ll;apCTBeHHhle KarrHT8JIOBJIOJKeHH.sI             (-6   rrpOn;eHTOB    BBn      B   1992-95    IT.), KOTophIe
K HaCTO.slIn;eMY BpeMeHH rrpaKTHqeCKH npeKpaTHJIHCh; H                              (iii) paCXO,ll;hI Ha q,HHaHcHpoBaHHe H
ynpaBJIeHHe ,ll;e.slTeJIhHOCThIO rocY,ll;apCTBeHHhIX CJIYJK6                     (-4 rrpOn;eHTOB BBn) (CM. Ta6JIHn;y 2).

BJIHSlHHe cOKpaIUeHHSI paCXO,llOB Ha ccllepy rocY,llapCTBeHHblx YCJIYT

9.       HecMoTp.sl Ha COKpaIn;eHHe 61O,ll;}KeTHhIX paCXO,ll;OB, 06'DeM ycnyr, OKa3hIBaeMhIX
HaCeJIeHHlO, OCT8JIC.sI, B OCHOBHOM 6e3 H3MeHeHHH, rro KpaHHeit: Mepe Ha 6YMare. KOJIHqeCTBO
yqHTeJIeH ,ll;HeBHbIX nIKOJI q,aKTHqeCKH B03POClIO C Haq8JIa ,ll;eB.sIHOCThIX rO,ll;OB, B TO BpeM.sI KaK
pecypChI, BhmeJI.sIeMhIe ccl>epe 06pa30BaHH.sI, pe3KO COKpaTHJIHChY (CM. Ta6JIHn;y                                   4). B   ceKTope
3,ll;paBOOXpaHeHH.sI 6hIJI npHIUIT pjl,IJ; Mep, HarrpaBJIeHHbIH Ha orpaHHqeHHe 06'heMa
aM6YJIaTOpHhIX Me,ll;Hn;HHCKHX yCJIyT H KOJIHqeCTBa 60JIbHH1ffibIX KoeK.                                C 1993     no   1994 ro,ll;
KOJIHqeCTBO KOHKo-MecT B paCqeTe Ha                   10 000     qeJIOBeK H KOJIHqeCTBO BpaqeH (KoTopoe 3aBHCHT
OT KOJIHqeCTBa 60JIhHHqHhIX KoeK), COKpaTHJIHCh COOTBeTCTBeHHO Ha                                   8   H    4   npOueHTa.
HecMoTp.sl Ha TO ~O 3TH MepbI rro pan;HOH8JIH3an;HH 3aCJIYJKHBalOT O,ll;06peHH.sI, OHH He
COH3MepHMhI C MaCIlITa6aMH np06JIeM, KOTophIe npe,ll;CTOHT peIIIHTh, TaKHX KaK COKpaIn;eHHe
nO~H Ha ,ll;Be TpeTH 06'heMa Cpe,ll;CTB B paCqeTe Ha ,Il;YIIIY HaCeJIeHH.sI, BhmeJIjleMhIX ceKTOpy,
KOTopoe HaMeTHJIOCh C Haq8JIa 9O-x rO,ll;OB.                 B   60JIee IlIHPOKOM KOHTeKCTe, HMelOIll;HeC.sI q,aKThl
CBH,Il;eTeJIhCTBYIOT 0 JIHIITh He3HaquTeJIhHOM COKpaIn;eHHH qHCJIeHHOCTH rOCY,ll;apCTBeHHhIX
CJIYJKaIn;HX.




;'(}rqaCTH :!frO YBCJIH'lCBHC MOlKHO 06'bllCHHTh HC,naBHCii aKTHBH38UHCH   ycwmH,   HanpaBllCHHhIX Ha C03,naHHC IIIKon, r,nc 06}"ICHHC
Be,nCTCli HC Ha PYCCKOM. a Ha Ka3axCKOM 113h1XC.
                                                                                    -5-

                                                Ta6JIHua   2: COCToRHHe KOHCOJIIlJUlPOBaHHOro 61O,IJ,JKeTa, 1992-1995
                                                               (B npoueHTax BBn B TeJ<YIUHx ueHax)

                                                                DIO,lJ)KeT                     BHe61O,lJ)Kenthle CpeACTBa          KOHCO.IIH,WJPOIlaHBl>lii 610JtlKeT
                                                      1992      1993         1994   1995   1992        1993       1994      1995   1992        1993        1994         1995


1.   Te!CYlIU!e onepagHH
     TeK}'LUHe nOCT}'llJIeHHll H TPaHCcPePTbI         24.5      21.5         17.7   17.5   15.3        15.7         6.1      7.1   38.9        37.2         23.8        23.6
      npllMl:oIe B3.JlOrn                              7.6       7.8          5.2    5.6   11.5        10.8         4.2      6.3   19.1        18.6          9.4        12.0
      KocDeBBbIe H3.JlOrn                             13.9       9.3          6.8    4.8    1.5         1.3         0.5      0.0   15.4        10.6          7.3         4.8
      HeS3.Jloroll1>le nOCT}'llJIeSHII                 0.9       4.4          5.7    6.8    1.4         2.3         1.4      0.0    2.2         6.8          7.1         6.8
      nOTa.I\lIH                                       1.7       0.0          0.0    0.0    0.4         1.3         0.0      0.0    2.1         1.3          0.0         0.0
      TpaHccPepTLI Me:llt.AY OpraHaMH roc. ynp.        0.4       0.0          0.0    0.2    0.5         0.0         0.0      0.7     ..           ..           ..         ..

     TeK}'LUHe paCXO,lUd                              24.7      20.1         14.9   17.7   11.0        11.4         8.5      6.8   34.8        31.6         23.5        23.5
      nOTpe6neHHe                                     17.5      17.5         11.3   13.7    0.6         1.7         0.9      0.8   18.1        19.2         12.2        14.5
      BbInJIaTa npO~eBTOB                              2.2       0.1          1.7    0.2      .,          ..        2.2      0.0    2.2         0.1          3.9         0.2
         no BuyrpeHBeii 33.Jl0JI:lKeHHOCTH             0.0       0.1          1.6    0.0      ..          ..        2.2      0.0    0.0         0.1          3.8         o.Oj
         no BHeUIBeii 33.Jl0JI:lKeHHOCTH               2.2       0.0          0.1    0.2      ..          ..        0.0      0.0    2.2         0.0          0.1         0.2
      TpauccPepTbI AOMaJllHHM X03MCTBaM                3.0       1.1          0.7    0.8    8.2         7.1         3.9      5.8   11.2         8.3          4.6
                                                                                                                                                                         6.61
      Cy6cHlUIH                                        1.5       1.4          1.0    2.3    1.4         2.6         1.4      0.0    2.9         4.0          2.4         2.3
      TpauccpepTbI Me:llt.AY opraHaMH roc.
           ynpaBJIeHHll H AP. TPaHccPePTLI             0.5       0.0          0.3    0.7    0.4         0.0         0.0      0.2      ..          ..           ..          ..

     Tex:ym;ee CaJrbAO                                -0.2       1.4          2.8   -0.2    4.3         4.2        -2.4      0.3    4.1          5.6         0.3         0.1

2.   OnepagHH no c'Ie!! o!!!!IDICeHHII KanBT3.JlOB
     noxOll OT KanBT3.Jla                              0.0       2.9          0.3    0.7    0.0         0.0         0.0      0.0    0.0          2.9         0.3         0.7
     K.amrr3.JlOBJIOlKeHHll                            6.7       5.1          5.6    2.6    4.7         4.1         1.6     -0.5   11.4          9.2         7.2         2.0
       qHcToe s:pemrroBaHHe H yqacTHe                  0.0       1.5          2.7    1.6    4.7         4.1         1.6     -0.5    4.7          5.6         4.3         1.1
       HBBec~HH                                        6.7       3.6          2.9    1.0    0.0         0.0         0.0      0.0    6.7          3.6         2.9         1.0

3.   06wee CaJrbllO                                   -6.8      -0.8         -2.5   -2.1   -0.5         0.1        -4.0      0.8   -7.3         -0.7        -6.5        -1.3

4.   ~HHaHCHpOBaHHe                                                                                                                 7.3          0.7         6.5         1.3
       BuyrpeIIBee                                                                                                                  3.1          0.0         4.5        -0.6
         DaHKOBCKall CHCTeMa                                                                                                       -2.1         -1.1         3.6         0.9
         APyrne BuyrpeHRHe HCTO'lHHKH                                                                                               4.4          1.1         0.9        -1.5
       BHewHee                                                                                                                      4.2          0.7         2.1         1.9

HCTO'lHRKH: MHIIBCTepcTBo cPHHaHCOB H o~eHKH COTPY.I\HHKOB BCeMHPHoro DaBKa.
                                                                  -6-

      Ta6JIHua       3.    ,nuBaMHKa 61O)lJKeTBbIX nOCTynJIeBH:it B OTJleJIbBbIX CTpaBax,                         1989-94 rr.

  CTpaHa                                                 H3MeHeHHe (% BBIl)                      YpoBeHb 1994 r. (% BBIl)


  nom.ma                                                           6.5                                     47.9
  BeRI'pWI.                                                         -6.8                                   52.3
  60nrapWi.                                                       -21.9                                    38.0
  1'yMLIHHJ!                                                       -18.5                                   32.6
  POCCWI.                                                          -4.5                                    36.3
  KhXPn.I3CltaJI PecnyOllHKa                                      -14.2                                    24.3
 KUaxCTaH                                                         -21.7                                    19.0
 Y30eXHCTaH                                                         7.8                                    43.0
  6enapYCb                                                         -1.6                                    36.6
 YKpaHHa                                                           15.9                                    42.3


 HCTO'IHHK: "From Plan to Market: Patterns of Transition" M. de Melo, C. Denizer, A. Gelb, Policy Research Working Paper, World
         Bank, JanuaI)' 1996.


                          Ta6JIHua   4:    KOJIHl.feCTBO WKOJI H Y'lHTeJIe:it,             1985-1994 IT.


                                                                    1985            1990         1992        1993           1994




 lliKOiIbl                                                         8,109           8,487        8,654       8,740        8,942
      rOpO~cXHe                                                     1,718          1,902        1,977       2,005             ..
      CeiIbcKHe                                                    6,391           6,585        6,677       6,735             ..

 Y'IHTeJllI 1/                                                     206.9           248.9        273.7       280.7        270.3



 1/ B TbICll'fllX 'IMOlleK no COCTOllHlUO Ha Ha'l8JlO Y'leOHoro roM (ceHTJlOpb).
 HCTO'lHHK: CTaTHCTlf1IeCKHH e:lKero~HK rOCKOMCTaTa 3a 1993 H 1994 IT.

10.         B pe3YJIbTaTe      cyMMa paCXOjfOB B paC'leTe Ha ejfHHHI{}' roCYjfapCTBeHHbIX ycnyr
3HallHTeJIbHO COKpaTHJIaCb.               B nepBYIO   Ollepe.n;b nOCTpa,narra 3apaOOTHWI llJIaTa B OIO,tUKeTHOM
ceKTope, npHlIeM B ropa3.n;o OOJIbmeH CTeneHH, lIeM 3apaOOTHWI llJIaTa B .n;pyrHx ceKTopax
3KOHOMHKH.          B 1991     ro.n;y 3apaOOTHWI llJIaTa CJIyxalWlx rocy.n;apCTBeHHbIX yqpe)l(,I1;eHHH B
Cpe,IJ;HeM COOTBeTCTBOBarra 3apaOOTHOH llJIaTe paOOTHHKOB npOMbIIILrleHHbIX rrpe.n;npHjlTHH, a K
Cepe,IJ;HHe       1995   ro.n;a OTHOCHTeJIbHbIH pa3Mep 3apaooTHoH llJIaTbI B oIO,tUKeTHoM ceKTope
COKpaTHJICjl rrpHOJIH3HTeJIbHO Ha o.n;HY TpeTb rro cpaBHeHHIO co Cpe,IJ;HeH 3apllJIaTOH B
rrpOMbIllIJIeHHOM ceKTope (CM. CxeMY                  3). K   3TOMY BpeMeHH rroKynaTeJIbHWI cnocooHoCTb
3apllJIaTbI B oIO,tUKeTHoM ceKTope COCTaBJIjlJIa B cpe.n;HeM JIHmb                     40    rrpOIJ,eHTOB OT ypOBIDI
1991    ro.n;a.   B pe3YJIbTaTe      3THX H3MeHeHHH MHHHMaJIbHWI 3apaooTHWI llJIaTa B OIO,tUKeTHOM
ceKTope COCTaBJIjleT MeHee rrOJIOBHHbI rrpO)I(HTOllHOro MHHHMYMa H ee He.n;OCTaTOllHO .n;axe JlJljl
Toro, lITOObI rroKyrraTb Ka)I(,I1;bIH .n;eHb oaToH XJIeoa H OYTbillKY MOJIOKa. 3apaooTHWI llJIaTa
                                                                   -7-

WKOJIhHOrO yqHTemI e,IJ.Ba ,lJ.OCTHraeT npOJKHTOtIHOrO MHHHMYMa.                                H   ,lJ.8JKe CTOJIh HH3KasI
3apflJIaTa BhIflJIatIHBaeTCg HeperyJIgpHO, OC06eHHO Ha 06JIaCTHOM H paiiOHHOM ypOBlUIX (6oJIee
nO,IJ.p06HO 3apa6oTHasI llJIaTa B rOCY,lJ.apCTBeHHOM CeKTOpe o6cY)K,IJ.aeTCg B qacTH                                    2,    fJIase   II
,lJ.oKJIa,lJ.a). Bo MHorHX CJIyqasIX 6lO,lOKeTHhie yqpe)K,IJ.eHHg CO,IJ.eHcTBYIOT pa3BHTHlO npHyca,lJ.e6HhIX
yqacTKoB HJIH pa3Be,IJ.eHHIO CKOTa H llTHIJ;hI B ,lJ.OMaWHHX YCJIOBHgX (KOpOB, cBHHeH H llTHIJ;hI),
JIH60 B KatIeCTBe aJIhTepHaTHBHoro MeTO,IJ.a OflJIaThI TPY,lJ.a rOCY,lJ.apCTBeHHhIX CJl}'}KaIIJ;HX
BhlflJIatIHBalOT 3apa6oTHYlO llJIaTy B HaTYPaJIhHOH cjlopMe 6JIaro,IJ.apg 6apTepHhIM onepaIJ;HgM,
npOBO,IJ.HMhIM C MeCTHhIMH npOH3BO,IJ.HTeMMH.


11.        KoppeKTHpoBKa ccjlephI ycnyr B COOTBeTCTBHH C HMelOID;HMHCg cpe,IJ.CTBaMH He
3aTpamBaeT HH MaCWTa60B HHcjlpaCTPYKTYPhI, HH tIHCJIeHHOCTH nepCOHaJIa, a JIHIIIh KaT/eCTBO
yc.nyr.     Bo MHorHX CJIyqasIX ,lJ.OXO,IJ.HT ,lJ.O Toro, tITO MO}KHO BnOJIHe 060CHOBaHHO YCOMHHThC.s: B
TOM, OKa3hlBaeTCg JIH Ta HJIH HHM YCJIyra Boo6ID;e H He gBJIgIOTC.s: JIH CYID;eCTBYlOIIJ;He
CTPYKTyPhl CBoero pO,IJ.a ,lJ.eKOpau;HgMH. B3gTh K npHMepy 3JIeMeHTapHoe Me,IJ.HIJ;HHCKOe
06CJIYJKHBaHHe, r,IJ.e ,lJ.eMOpaJIH3aIJ;H.s: HH3KOOllJIatIHBaeMOro nepCOHaJIa, OCTPasI HeXBaTKa H
,lJ.OpOrOBH3Ha 3JIeMeHTapHhIX Me,IJ.HKaMeHTOB H 3anyID;eHHocTh Me,IJ.HIJ;HHCKHX yqpe)K,IJ.eHHH MOryT
,lJ.OCTHraTh TaKHX, MacIllTa6oB, tITO OCHOBHhlM cjlaKTopoM, yrpoiKalOIIJ;HM 3,IJ.OPOBhlO HaCeJIeHHg,
CTaHOBHTCg YXY,lJ.WeHHe caHHTapHo-rHrHeHHtIeCKOrO COCTOgHHg. 3Ta CHTyaIIHg,
XapaKTepH3YIOID;asICg 6hICTPOH ,lJ.erpa,IJ.aIIHeH 06ID;eCTBeHHhlX YCJIyr, ,lJ.OCTaTOtIHO nOJIHO onHcaHa
B ,IJ,OKJIa,lJ.e 0 pa3BHTHH JIlO,lJ.CKHX pecypCOB, nOnrOTOBJIeHHOM IIporpaMMOH Pa3BHTHg
OpraHH3aIJ;HH 06'be,IJ.HHeHHhIX HaIJ;HH (IIPOOH), B KOTOPOM Cpe,IJ.H npOtIero OTMetIaeTC.s:, tITO
«pa3pyrueHHe rOCY,lJ.apCTBeHHoH CHCTeMhI3,IJ.paBOOXpaHeHH.s:, B paMKax KOTOPOH
OCYIIJ;eCTBJI.s:JIHCh KaK npoqlHJIaKTHKa 3a6oJIeBaHHH, TaK H JIetIeHHe Bcero HaCeJIeHH.s:, a TaKiKe B
OCHOBHOM OCYID;eCTBJIjJJICg KOHTPOJIh 3a caHHTapHO-rnrneHHtIeCKHM COCTOgHHeM, npHBeJIO K
pe3KOMY YBeJIHtIeHHIO KOJIHtIeCTBa CJIyqaeB HHcjleKIJ;HOHHhIX 3a6oJIeBaHHH 'J!.


3ana'fH, KOTopbIe npe}lCTOHT peWHTb


12.        IIpHlIIJIo BpeM.s: HOBoro MhllllJIeHHg, Kor,IJ.a npHopHTeTHhIM HanpaBJIeHHeM ,lJ.egTeJIhHOCTH
CTaHeT nOBhlweHHe KatIeCTBa yCJIyr HJIH, no KpaiiHeH Mepe, o6eCnetIeHHe HX COOTBeTCTBH.s:
MHHHMaJIhHhIM CTaH.IJ.apTaM, a TaKiKe npHBe,IJ.eHHe 06'beMa «TeopeTHtIeCKH» npe,IJ.OCTaBJIgeMhlX
yCJIyr B COOTBeTCTBHH C            (i)   06'beMOM Cpe,IJ.CTB, HMelOID;HXC.s: .D.JI.s: TOro, tIT06hI o6eCnetIHTh TaKHe
CTaH.IJ.apThI; He      (ii)   nepBOOtIepe,lUlbIMH nOTpe6HOCTgMH Tex, KOMY 3TH yCJIyrH OKa3hIBaIOTCg.
COtIeTaHHe CJIasgHCKOH BhIHOCJIHBOCTH H a3HaTCKoro TepneHHg ,lJ.O CHX nop n03BOJIgJIO CTpaHe
OTKJIa,lJ.hIBaTh npHlUITHe 3THX BaiKHhlX peweHHH, Ha,lJ.egCh Ha JIyqmHe BpeMeHa.                                      K     COiKaJIeHHIO,
HeT OC06hIX OCHOBaHHH Ha,lJ.e.s:ThCg Ha TO, tITO B 6JIHiKaHWeM 6Y,lJ.YID;eM MOiKeT 6hlTh 06ecnetIeH
npeiKHHH ypOBeHh pecypCOB, tITo6hI CTpaHa MOrJIa n03BOJIHTh ce6e no.n:.n:ep)KaHHe
YHaCJIe,IJ.OBaHHOH CHCTeMhI yCJIyr. ,IJ,8JKe eCJIH 6Y,lJ.eT Mo6HJIH30BaH nOTOK nOCTYnJIeHHH OT
pa3pa6oTKH HecjlTgHhIX MeCTOpOiK,IJ.eHHH (H eCJIH npaBHTeJIhCTBY Y,lJ.aCTCg 06eCnetIHTh HX
nepetIHCJIeHHe B rOCY,lJ.apCTBeHHhIH 6IO,lOKeT), 3THX nOCTyflJIeHHH 6Y,lJ.eT He,IJ.OCTaTOtIHO ,IJ.JIg TOro,
tITo6hl 6lO,lOKeTHhle pecypChI (B peaJIhHOM BhIpa)KeHHH) ,lJ.OCTHrJIH npeiKHero ypOBlUI,
CHH3HBWerOCg C HatIaJIa ,lJ.ec.s:THJIeTHg ~.



~.Ka3axCTIIH:    3a.n.a'lH nepexoJlHoro nepHo.na•. ,lJ.oKJIan 0 pa38HTHH JIIO,u;CK.HX pecypCOB 3a 1995 r .• npOOH.   3TOT   .nOMan MOllQlO
'1HTaTh napaJIJIeJIhHO C HaCTOJ!lll,HM .nOManOM.

~J)OJlee TOro, HCTOpHll COBeTcKoro COlO3a H ,D;pyrHX CTpIlH (HanpHMep, AruKHpa) CBHJleTeJIhCTByeT 0 TOM, 'ITO 6eCnOJIe3HO
Hane1lThCli. Ha nocTYJLIIeHHll OT npoIWKH TonpOB, nhITaJiCh OTJIOllQlTh CTPYKTYPHhle npeo6pa30BaHHli.. K 6()..M IT. COBeTcKHH COlO3
HC'IepnaJI Bee B03MOllQlOCTH .nJUl 3KCTeHcHBHoro pOCTa, n03TOMY B03HHM8 Heo(ixOJlHMOCTh B npOBe.neHHH 3KOHOMH'leCK.HX pe<llopM
C UeJIhlO o6eCne'leHHlI 60JIee HHTeHCHBHoro 3KOHOMH'leCKoro pa3BHTHlI. llOJlHTHK8 pe<llopM, H8'1aTaJI KOChll"HHhlM H ero
                                                                             -8-

 13. BJIaCTH Bce 60JIee OT'IeTJIHBO OC03HalOT Heo6xo.u,HMOCTh KopeHHoro H3MeHeHHg CTapbIX
rocy.u,apCTBeHHbIX CTPYKTYP H MeTo.u,OB pa6oTbI. O.u,HaKo B3aHMOCBg3b Me:>K,IJY 3TOH u;eJIblO H
pe<i>opMoH MeXaHH3MOB ynpaBJIeHHg rocy.u,apCTBeHHbIMH pecypCaMH (TaKHx KaK
a.u,MHHHCTPaTHBHoe YCTPOHCTBO. yrrpaBJIeHHe 61O.u,JKeTOM H rocy.u,apCTBeHHag cJIYJK6a) ropa3.u,o
MeHee O'leBH.u,Ha. O.u,HaKo rrOJIHag Hecrroco6HoCTb CHCTeMbI ynpaBJIeHHg rocy.u,apCTBeHHbIMH
pecypCaMH CBoeBpeMeHHO pearHpOBaTh Ha H3MeHeHHe CHTyau;HH, rrpeIIjJ:TcTByeT Heo6xo.u,HMOMY
COKpa.I.IJ;eHHlO H peOpraHH3aU;HH rocy.u,apCTBeHHbIX CJIYJK6, rrepeCMOTpy MeTo.u,OB BMelIlaTeJIbCTBa
rocy.u,apCTBa B 3KOHOMH'leCKYlO .u,eneJIbHOCTh, peopraHH3aU;HH CTPYKTYP ynpaBJIeHHg H
rrpOBe.u,eHHlO cooTBeTcTBYIOIu;eH Ka.u,pOBOH rrOJIHTHKH. Bo MHorHX OTHOlIleHHgX CTPYKTYPbI H
MeTo.u,bI pa60TbI rrpaKTH'leCKH He rrpeTeprreJIH HHKaKHX H3MeHeHHH rro cpaBHeHHlO C COBeTCKHM
rrepHo.u,OM. TaKJKe KaK H B 6bIBlIleM CCCP, OHH MelIlalOT rrepepacrrpe.u,eJIeHHlO pecypCOB B
Ka3axcTaHe.

14. B CJIe.u,ylOIu;Hx Tpex pa3.u,eJIaX rrpe.u,rrpHHHMaeTCg rrOrrbITKa 3a.u,a'la BbmBHTb OCHOBHble
He.u,OCTaTKH H HaMeTHTb rrpHopHTeTHbIe MephI, HarrpaBJIeHHbIe Ha YCTpaHeHHe 3THX
He.u,oCTaTKoB. B Pa3.u,eJIe C pe% H.u,eT 0 pe<i>opMe rocy.u,apCTBeHHhIX CTPYKTYP, a B Pa3.u,eJIe D
OIIHcaHhI CHCTeMbI ynpaBJIeHHg rocy.u,apCTBeHHhIMH pecypCaMH, B 'laCTHOCTH, ynpaBJIeHHe
61O.u,JKeTOM H rpaJK.u,aHCKag cJIYJK6a. B Pa3.u,eJIe E o6cYJK.u,aeTCg Borrpoc 0 TOM, KaK 3TH
pe<i>opMbI HHCTHTYU;HOHaJIhHOH CTPYKTYPhI MOryT crroco6CTBOBaTh Heo6xo.u,HMOH
rrepeOpHeHTaU;HH OCHOBHblX rocy.u,apCTBeHHbIX rrporpaMM, B rrepBYlO O'lepe.Il.b B c<i>epax
3.u,paBooxpaHeHHg Ho6pa30BaHHg.

 15. BaJKHO C caMoro Ha'laJIa rro.u,'lepKHYTh, 'ITO rrepexo.u, CTPaHbI K PbIHO'IHOH 3KOHOMHKe He
rrpOHcxo.u,HT 3a O.u,HH .u,eHb. B CJle.u,YlOIIUlx rraparpa<i>ax CTaHOBHTCg O'leBH.u,HbIM, 'ITO 3TOT
rrpou;ecc Tpe6yeT pelIlHMocTH H HaCToHlfHBOCTH. KpOMe Toro, He y.u,aCTCg H36eJKaTh TpY.u,HOCTeH
.u,IDI HeKOTophIX KaTeropHH HaCeJIeHHg, rrOTpe6JIglOIu;erO rocy.u,apCTBeHHbIe yCJIYrH, H rrepCOHaJIa
rOCy.u,apCTBeHHhIX Y'lpeJK.u,eHHH, rrpe.u,OCTaBJIglOIu;HX 3TH YCJIYrH. Pe3YJIhTaTbI JKe CKaJKYTCg
TOJIhKO 'lepe3 HeKOTopoe BpeMg.




e,lUlHOMhlUlJleHHHKaMH, 3axJIe6H}'JlaCb B Ha'laJIe        70-x roJ],OB,   KOrJ].8 6bICTpbiH lIKOHOMH'leCKHH POCT, OCHOBallHblH Ha YBeJIH'leHHH
06'LeM8 npOH3BOJ],CTBa TOBaPOB, n03BOJlHJI npaBHTeJIbCTBY M06HJIH30BaTb 3Ha'lHTeJIbHbIe nOCTyIIJleHKII, B pe3YJIbTaTe 'Iero
OKOnaBmHMC.IJ CTaphIM CTPYKTYPaM He npHmJlOCb HH'lerO MeH.IJTb.                 B   KOHIl,e KOHIl,OB 31'0 npOMe,u,neHHe npH6JlH3HJIO OKOH'l8TeJIbHbIH
KpH3HC   80-x   ro,1l.0B (CM. S. Fisher and   W.   Easterly, "The Soviet Economic     Decline", World Bank Economic Review,    September   1995).
                                                                       -9-

                                                C.    rOCy.napCTBeHHble CTPYKTYPbl


0630P DOJIHTH"IecKHX H a,nMHHHCTpaTHBHbIX CTPYKTYP


16.        3a rrOCJIenHHe mlTb JIeT CTpyxTypa IIOJIHTHIfeCKHX oprBHOB Ka3axcTaHa rrpeTeprreJIa
3HatrnTeJIbHble H3MeHeHHH. B neKa6pe                         1991   rona, B rrOCJIenHHe nHH 6b1BlIIerO CCCP Ka3axcKaJI
COBeTCKaJI CO~HaJIHCTHtfeCKaJI Pecrry6JIHKa (Ka3aXCKaJI CCP) rrpOB03rJIaCHJIa He3aBHCHMOCTb H
CTaJIa Pecrry6JIHKOH Ka3axcTaH. IlOTpe6oBaJIocb HeMHOrHM 60JIee rona, rrpe:>K.ne tfeM HOBoe
rocynapcTBo CMOrJIO YCTaHOBHTb OCHOBOrrOJIaraIOmHe rrpHH~rrbl CYBepeHHoro Pa3BHTHH. 3TH
rrpH~rrbI 3aKpeIIJIeHbI B KOHCTHTy~H cTpaHbI, rrpHHHTOH B HHBape                                        1993 rona. O)lHaKO 3TH
rrOJIO>KeHHH rrepBOH KOHCTHTy~H 6bmH rrepeCMOTpeHbI B MaPTe                                         1994 rona, Korna JIHlIIb tfepe3
nBa rona rrOCJIe rrapJIaMeHTCKHX BbI6opOB rrapJIaMeHT 6bm 06'bHBJIeH BHe 3aKOHa. B HOBOH
KOHCTHTy~HH, rrpHHHToH B aBrycTe                          1995   rona, YCTaHOBJIeHbI OCHOBHble rrpHH~HmI H
HarrpaBJIeHHH pe4>opMbI CHCTeMbI rocynapCTBeHHbIX opraHOB H yqpe:>K.neHHH. B KOHCTHTyn;HH (B
CTaTbe          2   H rraparpa4>e   4   CTaTbH       3)   TaK>Ke rrO)lTBep:>K.naeTCH TO, lITO Pecrry6JIHKa Ka3aXCTaH
HBJIjJeTCH YHHTapHbIM roCynapCTBo~J (CM. BCTaBKY                            2.1)     C rrpe3HJleHTCKOH 4>OPMOH rrpaBJIeHHH
(CTaTMI          2)   H BbI60PHblM rrapJIaMeHTOM (CTaTbH                 49f.

17.        YHaCJIenOBaHHble OT COBeTCKoro BpeMeHH 8,!{MHHHCTpaTHBHbIe CTPYXTYPbI H3MeHHJIHCb
JIHlIIb B He3HatfHTeJIbHOH CTerreHH. BOJIblIIHHCTBO 3THX CTPYKTyP rrpOnOJIJKaIOT neHcTBoBaTb Ha
OCHOBe rrpHHUHrrOB «neMOKpaTHtfeCKOrO ~eHTPaJIH3Ma,., xapaKTepH3YIOmerOCH BbICOKOH
CTeIIeHbIO ~eHTPaJIH3a~HH rrpo~ecca rrpHHHTHH pelIIeHHH B COtfeTaHHH co CTOJIb JKe
3HatfHTeJIbHOH CTerreHbIO CerMeHTa~H HCrrOJIHHTeJIbHbIX 4>~H. IlpeMbep-MHHHcTP, ero
3aMeCTIUeJIH H rrepCOHaJI Ka6HHeTa MHHHCTPOB OTBetfaIOT 3a PYKOBOnCTBO pa3pa6oTKoH Bcex
HarrpaB.JIeHHH rrOJIHTHKH rrpaBHTeJIbCTBa H KOHTPOJIb 3a ee rrpOBeneHHeM. HMeHHo OHH
rrpHHHMaIOT Bce rrOJIHTHtfeCKHe pelIIeHHH.


18.        Ka6HHeT MHHHCTPOB PYKOBO)lHT BceMH rocynapCTBeHHhlMH opraHaMH, HatfHHaH C
MHHHCTepCTB H HHJKe rro BepTHKaJIH. PecIIYOJIHKBHCKHe yqpe)K,l{eHHJl rrpenCTaBJIjJIOT C060H
rrepBbIH ypOBeHb H BKJIIOtfaIOT rocynapcTBeHHbIe MHHHCTepCTBa, rocynapcTBeHHbIe KOMHTeTbI If
npyrne KOMHTeThl H rocynapCTBeHHbIe opraHhl, a TaKJKe a)lMHHHCTpaTHBHble yqpe:>K.neHHH H
KOMMeptfeCKHe rrpeJlIlPHHTHH, HaXO)ljJ~eCH B HX BeneHHH. Pa3JIHtfaIOT nBa ypOBHH oprBHOB




:'IIoHJI'THe .YHHTapHoro. rOCYMPCTB8 YKa3h1BaeT, Ha 'feM OCHOB8H8 ero Opr8HH38LtHOHH811 CTPYKTypa. rOBOpJllOpH,IUl'lCCKHM
1I3h1KOM, YHHTBPHblM C'IHTaeTCJl roCYMPCTBO, B KOTOPOM npHHJlTHC 3SKOHOB HBJlIIeTCJl PlCKJ1IO'IHTem.HoH npepOrSTHBOH
IJ,eHTpam.Horo npaBHTem.CTBa.       B P8MKax   t/JeJ<ep8.JIhHoro rocY,J{BPCTBa '1aCTb nOJIHOMO'fHH no npPlHJI'TPIIO 3SKOHOB PI BHeceHHIO
Pl3MeHeHHH B KOHCTHTYIJ,HIO (T.e. roCYMPCTBeHHbliI cysepeHHTeT) nepe.naHa cy6'beKTaM q,e.nepaIJ,HPI (HanpHMep, WTST8M B CillA,
pernOHaM B BelIbrnH PlJIH 3eM.lIJlM (Under) B repMaHHH). KOHq,e,J{epJI.1{Heii Ha3h1BaeTCJl aCCOIJ,HaIJ,HJl rocy.napCTB. B KOTOPOH
MelKI'OcY,18pCTBeHHbJii opraH ynpaBJIeHHJl BhlfiOnHJleT IOpH,IUl'leCKHe q,YHKIJ,PlH • .neJIerPJpOBSHHble eMY roCYMpCTB8MH-'1neHaMH.
J(eIJ,eHTpIIJIH3B.aHJ1 Mo:w.eT npOHCXO,nHTb B HeCKOlIbKHX q,oPMax. OHa Mo:w.eT ocyw;eCTBJIJlTbCJl B nopll,llKe I1epMll'lH
3!J.KOHqJf8TeJI1JI.bIX I10JIHOMO'lHH (B COOTBeTCTBHH C nono:w.eHHJlMH KOHCTHTyIJ,HH) 'lJIeHaM t/Jc,J{epaIJ,HH, .neHCTBYIOI1UiM B
COOTBeTCTBHH C KOHCTHTYIJ,HeH. KpOMe TOro, KaK B YHHTapHbIX rocy,napCTBaX, Tax: H B (KOH)q,e,nepaIJ,HlIX. lITo MO:w.eT npOHCXO,nHTb
B BH.ne I1I~pe,u;B'lH HCI10JIHHTeJIbH.bIX tP}'HKIJ,HH (B COOTBeTCTBHH C 3aKOHOM) MeCTHhIM opraHaM rocy,napCTBeHHoro ynpaBJIeHHJl.          B
nOM cJIY'lse Bce MeCTHhie OpraHbI rocYMPCTBeHHoro ynpaBJIeHHJl, BbI60pHbIe PlJIH .npyrne, CTaHOBJlTCli 'faCTblO HCnOJIHHTelIbHOH
BJIaCTH.   II   HaKOHeIJ,. npaBHTelIbCTBO Mo:w.eT npe.noCTaBHTb onpe,neneHHYJO CTeneHb aBTOHOMHH II,llMHHHCTpaTHBHhIM opraHaM,
MeCTHbIM PlJIH 06meHaIJ,HOHBlIbHbIM, nyTeM I1epe,J{8.'lH HM HCI10JIHHTeJIbH.bIX tP}'HKIJ,HH nOCT8HOBJIeHHeM npaBHTelIbCTBa. O.nHaKO B
nOM CJIY'{ae opraH, KOTOPOMY nepe,naHbI nOnHOMO'fHJl, OCTaeTCli Ha onpe,neJIeHHOH CTyneHH HepaplCH'leCKOH neCTHHIJ,bI B
COOTBeTcrBHH C ycnOBHJlMH nepeM'fH eMY lITHX nOJIHOMO'lHH. ,IJ,nl!liCHOcrH B MHHOM ,noltJIa.ne TePMHHOM MeCTHble OpraHbl
I'QCY,J{SPCTJJeHHOI'Q ynpBBJIeHHJ1 Ha3blBaIOTCli HCnOJIHHTelIbHbIe opraHhI, ,neHCTBYIOlIJ,He B paMKax nepe.naHHbIX HM nOJIHOMO'lHH.


!!! IIapJIaMem COTOHT H3 .n,syx: MamKJIHC. H36HpaeMbJii nocpe.nCTBOM npllMoro ronoCOBaHHJl. H CeHaT, H36HpseMbJii II}'TeM
xocBeHHoro roJIOCOBaHHJl. Kpyr nOJIHOMO'fHH 3aKOHo,naTeJIbHOH BJIaCTH CTporo orpaHH'lHBalOTCli KORCTHTYIJ.HeH.
                                                                     - 10-

rOCY,I48pCTBeHHoro yrrpaBJIeHHJI (onpe.n;eJIeHHe KOTOPbIM .n;aeTCH B CHOCKe                                   5),   npe.n;cTaBJUlIOW;HX
l.\eHTpaJIbHOe npaBHTeJIbCTBO Ha MeCTHOM YPOBHe B npe.n;eJIax CBOHX IOPHC.n;HKlUlli H
B03rJIaBJIHeMbIe 8KHMaMH: 06JIaCTHbIe opraHbI rocy.n;apCTBeHHOrO ynpaBJIeHHH                                          19   06JIaCTeH H
2   ropO,I(OB 06w;eHaI.\HOHaJIbHOrO 3HatfeHHH (ArrMaTbi H JIeHHHcKa) H paifoHHbIe OpraHbI
rocy.n;apCTBeHHoro ynpaBJIeHHH                 220   ropo.n;CKHX paHoHoB H               83   HaCeJIeHHbIX nyHKTOB ropo.n;CKoro
THna 06JIaCTHOro 3HatfeHHH). KaJK,IJ;bIH YPOBeHb MeCTHbIX opraHOB rocy.n;apCTBeHHoro
ynpaBJIeHHH no.n;t{lfHHeTCH BblilleCTOHw;eMY YPOBHIO. BMecTe C pecny6JIHKaHCKHM
npaBHTeJIbCTBOM 3TH TPH YPOBHH MeCTHbIX OpraHOB rocy.n;apCTBeHHOrO ynpaBJIeHHH 06pa3YIOT
«e.IJ;HHYIO CHCTeMY HCnOJIHHTeJIbHbIX OpraHOB pecny6JIHKH H 06eCnetfHBaIOT npOBe.n;eHHe
o6w;erocy.n;apCTBeHHOH nOJIHTHKH C yqeToM HHTepeCOB H nOTpe6HOCTeH pa3BHTHH Ha
COOTBeTCTBYIOw;eH TeppHTOpHH." (CTaTbH                         87,   naparpa<i>       1 KOHCTHTYI.\HH).

OCHOBHble CTpyKTypHble JUlcnponOPUHH

19. B         3THX CTPYKTYPax H CJIYiK6ax 3aHHTO 60JIee                      1 MJIH     tfeJIOBeKY, B TOM tfHCJIe OKOJIO
260 000       tfeJIOBeK Ha pecny6JIHKaHCKOM ypOBHe H npH6JIH3HTeJIbHO                                780 000     tfeJIOBeK Ha MeCTHOM
ypoBHe. KaK OTMetfaeTCH B naparpa<i>e                     4,   TaKOH ypoBeHb 3aHHTOCTH B .n;aHHoH c<i>epe
.n;eHTeJIbHOCTH He HBJIHeTCH xapaKTepHbIM .n;JIH CTpaH C PbIHOtfHOH 3KOHOMHKOH H Cpe.IJ;HHM
.n;OXO,I(OM. KpaTKHH 0630P CTPYKTypbI nepCOHaJIa rocy.n;apCTBeHHbIX OpraHOB nOKa3bIBaeT, B tfeM
HMeHHO 3aKJIIOtfaIOTCH .n;HcnpOnopl.\HH (CM. Ta6JIHI.\Y                       5).     3TH .IJ;HcnpOnopl.\HH
CKOHl.\eHTpHpOBaHbI B CJIe.n;YIOW;HX 06JIaCTHX .n;eHTeJIbHOCTH:


•        CaMOCTOJlTeJIbHbIe yqpelKl!eHHJI H IIpe,I4IIpHJlTHJI, KOTOPblMH 6YKBaJIbHO nepenOJIHeH
         pecny6JIHKaHCKHH ypOBeHb OpraHOB rocy.n;apCTBeHHOrO ynpaBJIeHHH (a B03MOiKHO H
         HHiKeCTOHW;He ypOBHH, XOTH HeT .n;OCTaTOtfHbIX .n;aHHblX, tfT06bI 3TO yTBepiK.IJ;aTb) H B
         KOTOPblX 3aHHTbI .n;eCHTKH TbICHtf pa60THHKOB - nOtfTH                             100 000       tfeJIOBeK - eCJIH yqHTbIBaTb
         .n;OBOJIbHO MHOrOtfHCJIeHHblH nepCOHaJI AKa.neMHH HayK.


•        06JI8CTHble OpraHbl rocy,I48pcTBeHHoro yrrp8BJIeHHJI, KOTopbIe npe.n;cTaBJUlIOTCH
         ,lJ;OCTaTOlffiO MHOrOtfHCJIeHHbIMH no cpaBHeHHIO C pecny6JIHKaHcKHMH.


•        Yr,rpelKl!eHHJI 06P830BaHHJI H 3/W8Booxp8HeHHJI (KoTopbIe, KaK npaBHJIO, HaXO.IJ;jJTCH B
         Be.n;eHHH MeCTHbIX opraHoB rocy.n;apcTBeHHoro ynpaBJIeHHH), B KOTOPbIX 3aHHTO OKOJIO
         70   np0l.\eHTOB rocy.n;apcTBeHHbIx CJIYiKaW;HX. 3TO KOJIHtfeCTBO HBJIHeTCH tfpe3MepHbIM no
         JII06bIM CTaH,IJ;apTaM, oco6eHHo )J;JlH ceKTopa 3.n;paBooxpaHeHHH. KOJIHtfeCTBO pa6oTHHKoB,
         3aHHTbIX B c<i>epe 3.n;paBooxpaHeHHH, COCTaBJIHeT OKOJIO                             40   np0l.\eHTOB rocy.n;apCTBeHHbIX
         cnYiKaIl.\HX H      2,4   np0l.\eHTa HaCeJIeHHjI CTPaHbI~.


20.      B TO)l{e BpeMH, Pccrry6JIHKaHCKHe MHHHCTCPCTB8 H yqpClKI!CHHJI MHHHCTcpCKoro YPOBHJI
(3a HCKJIIOtfeHHeM KOMHTeTa Hal.\HOHaJIbHOH 6e30naCHOCTH), B KOTOPbIX 3aHHTO MeHee                                                 10 000
tfeJIOBeK, no BceH BH.n;HMOCTH, He.n;oYKOMllJIeKTOBaHbI nepCOHaJlOM no BceM napaMeTpaM.
<l>parMeHT~HjI a,I(MHHHCTpaTHBHbIX CTPYKTYP Ha YPOBHe MHHHCTepCTB Be.n;eT K .n;aJlbHeHilleMY
CHHiKeHHIO HX 3<i><i>eKTHBHOCTH (CM. naparpa<i>bI                       28-30).



?,'He C'UITali nepCOHaJI CHCTeMbi COIl;HaJIhHOro 06ecneQeHlUl.


~;Jl,n:g cp8BHeHHlI, BO <l>pamum. HanpHMep. ::ITa KaTerOpHll pa60THHKOB COCTaBlIlieT       14 npou,eHTOB roCYAIIPCTBeHHbIX   CJI}'JKa.IllHX H
1.14 npOu;eHT8 H8ceneHHJI. ,IJ;a:JICe B BenHK06pHT8HHH C ee roCY,ll.3pCTBeHHoH      CHCTeMOH 3,D.p3BooxpllHeHHlIICOJIH'leCTBO Me,lIIlepCOHaJI8
COCTliBlIlieT nHIUh 21 npou;eHT rocyp,apCTBeHHbIX CJI}'JKa.IllHX II 1.9 npOu;eHT8   H8ceneHHli CTPaHbI.
                                                                 - 11 -


                 Ta6JIHIJa S: CTPYJCTypa nepCOHaJIa rOCY.llapCTBeHHbIX Y'lpexc.n;eHHit
                                       (no OueHKaM 3a 1994 r.)

 A. rBCITYSnHKAHCKHE
       1. UeHTpaJIbHble
       1.1 MHHHCTepCTBa                                                                          6,800
       1.2 rOCYAaPCTBeHHhIe KOMHTeThI                                                             1,100
       1.3 KOMHTeT Ha.u.HOHam.HOH 6e30naCHOCTH                                                   6,900
       1.4 ;llpyrne CJl}'JK6h1                                                                    1,600
       2. npyrne pecny6lIHKaHCXHe f'lpel!9leHHR
       2.1 MeCTHhle    OT~eHH$!      pecny6JIHKaHCKHX Y'lpel!9leHHH                              30,200
       2.2 IIoCOJlJ>CTBa                                                                            100
       2.3 IIpasooxpaHHTeJlJ>Hhle opraHhI                                                        58,300
       2.4 KOMHTeT Ha.u.HOHam.HOH 6e30nacHocTH                                                   6,900
       2.5 Boop}'lKeHHhle CIf.llhI                                                               63,000
       2.6 Ax:a,neMH$! HaYK                                                                      41,400
       2.7 ;llpyrne neHTpam.Hhle Y'lpel!9leHH$!'                                                 42,700
        HTOrO                                                                                   258,900
 B. MECTHbIE
       I. 06JIaCTHl>le opraHhI roCYAaPCTBeHHoro ynpaBJIeHM                                       46,100
       2. PaiioHHble H ropOJlCKHe opraHhI                                                        21,500
       3.   3~aBOOXPaHeHHe                                                                      506,000
       4. 06pa3oBlUlHe                                                                          299,100
       5. ;llpyrne MeCTHble opraHhI                                                                o
        HTOrO                                                                                   780,000
 HTOrO                                                                                          1,040,000

HCTO'lHHK: OneHKH COTPYAHHKOB BCeMHpHOrO SaHKa, OCHOBaHHhIe HB JlaHHhIX 0 6!O,ll)KeTe H llITBTHOM pBcnHCaHHH.



21.     IIpe,ll,hmYruHe IIOnhITKH COKPSTHTb f[HCJICHHOCTb 38.HJlTbIX B rOCYPspCTBCHHbIX
ygpCJK,aCHHHX He npHHeCJIH XeJIaeMhIX pe3YJIhTaTOB, TaK, B pe3YJIllTaTe npHWlToro B KOHUe
1994   rO,ll,a peIlleHHH 0 COKparueHHH "UlCJIeHHOCTH nepCOHaJIa Ha                      25   npoueHTOB, 06ruHH cPOH,ll,
3apa6oTHoH IIJIaThI Y,ll,aJIOCh COKpaTHTh JIHIllll Ha                   2-3   npOueHTa. 3TO MO)KHO 06'bHCRHTh
HeCKOJIbKHMH cPaKTOPaMH: He npHHHMaJIHCh MepllI, HanpaBJIeHHhle Ha o,n;HOBpeMeHHoe
pa3YKPynHeHHe a,u,MHHHCTpaTHBHhIX CTPYKTYP; He 6hIJIO HHcPOPMaUHH OTHOCHTeJIbHO CTpYKTYPhI
H COCTaBa rpaJK.n;aHcKoH CJIYX6bl, Heo6xo,n;HMOH WIH pa3pa6oTl<H coOTBeTCTBYJOrueH nOJIHTHKH
(eM. naparpacP        95);   a,ll,JIH ceKTopoB, r,ll,e 3aWlTO HaH60JIee 3HaqHTeJIbHOe KOJIHqeCTBO
pa60THHKOB, oco6eHHO ,ll,JIH COUHaJIhHbIX ceKTopOB, ,ll,eJIaJIHCb MHOrO"UlCJIeHHbIe HCKJIJOqeHHH.


22.     U:HcPPbI, npe,n;CTaBJIeHHbIe B Ta6JIHUe                5,     HBHO YKa3hIBaIOT Ha TO, 'ITO MepbI,
HanpaBJIeHHbIe Ha COKparueHHe KOJIHqeCTBa 3aWlTbIX B rOCY,ll,apCTBeHHOM ceKTope, He npHHeCYT
JKeJIaeMbIX pe3YJIhTaTOB, eCJIH CTPYKTYpHhle npeo6pa30BaHHH He 6y.n;yT COnpOBO)K,l1,aTbCH
nepeCMOTpOM nOJIHTHKH B OTHOIlleHHH 3,n;paBOOXpaHeHHH H 06pa30BaHHH. 3Ta nOJIHTHKa
o6CY.JK.I\aeTCH B Pa3,n;eJIe         E.
                                                      - 12 -

PeOpraHH3aWUI peCnYOJlHKaHCKHX OpraHOB rocYJlapCTBeHHoro ynpaBJIeHHJI


23.    HeOnpaB,Jl;aHHO 3Ha'IHTeJIbHbIe pa3MepbI pecny6JIHKaHCIOIx CTpYKTYP o6YCJIOBJIeHbI ,Jl;BYMil
<paKTOpaMH, yuaCJIeAOBaHHbIMH OT COBeTCKOH CHCTeMbI:                 (i)   He,Jl;OCTaTO'lffiO 'IeTKHM
pa3rpaHH'IeHHeM Me:>K,IJ;y c<pepoH ,Jl;ejlTeJIbHOCTH a,IJ;MHHHCTpaTHBHbIX cny:JoK6 H ,Jl;pyrHMH BH,Jl;aMH
Ae.sITeJIbHOCTH, KOTopble B ycnOBHXX PbIHO'iffiOH 3KOHOMHIOI MOryT H He BXO,Jl;HTb B KPyr
nOJIHOMO'IHH rOCY,Jl;apCTBeHHbIX yqpe)K,Jl;eHHH; H       (ii)   <pparMeHTaIJ;HeH MHHHCTepcIOIX CTPYKTYP,
YHacne,Jl;OBaHHOH OT npe:JoKHeH KOMaH,Jl;HO-a,IJ;MHHHCTpaTHBHOH CHCTeMbI.


      Kpyr nOJlHOMO'IHii roeyJlapCTBeHHhlX OpraHOB


24.   Ha6JIIo,Jl;aIOmeeCx B HaCTOXmee BpeMX pa3rptlHHf{(;mH6 M61K.)1Y 6IOtpK6THhIM C6KTOPOM H
OCTaJIbHOii 3KOHOMHKOii XBJIjfeTCX pe3YJIbTaTOM npon;ecca, Ha'laToro eme B                   1987   ro,Jl;Y B
6bIBmeM COBeTCKOM COI03e, KorAa rocY,Jl;apCTBeHHbIe <pHHaHCbI 6bIJIH OT,Jl;eJIeHbI OT <pHHaHCOB
npe,Jl;IIpHXTHH. O,Jl;HaKO 3TOT npon;ecc 3aTpOHYJI B OCHOBHOM «MaTepHaJIbHYIO c<pepy», a
rocYAapcTBeHHble yqpe)K,Jl;eHHX COXPaHHJIH 3a C060H <PYHKI.I;HH, KOTopble MOryT BbmOJIIDITbCX Ha
PbIHO'iffiOH OCHOBe 'IaCTHbIMH HJIH rocY,Jl;apCTBeHHbIMH Kopnopan;HXMH, JIH60 ,Jl;pyrHMH
yqpe)K,Jl;eHHXMH, HanpHMep HeKOMMep'leCIOIMH acCOn;Han;HXMH HJIH npo<pcoI03aMH.


25.   CnHcoK yqpe)K,Jl;eHHH, <pHHaHcHPyeMbIx H3 pecny6JIHKaHcKoro 6IO,Jl;:>KeTa, BKJlIO'IaeT                    2 236
6IO,Jl;)KeTHbIX yqpe)K,Jl;eHHH, pacnpeAeJIeHHbIX no      79     KaTeropHXM (CM. IIpHJIo:JoKeHHe). 1133THX
yqpe)K,Jl;eHHH   1 804   HaXO,Jl;jfTCX B Be,Jl;eHHH opraHOB MHHHCTepCKoro ypOBIDI, a OCTaJIbHble :JoKe            400
HMeIOT O'leHb MaJIO o6mero C rOCYAapCTBeHHbIMH OpraHaMH, H XBJIjfIOTCX, CKopee,
npo<peccHOHaJIbHbIMH aCCOn;Han;HXMH (HanpHMep, COI03 nHCaTeJIeH, COI03 MY3bIKaHTOB, COI03
,Jl;paMaTyproB, Ka3axcKoe areHTCTBO aBTOpcIOIX npaB H T .n., ToprOBo-npoMbIumeHHblMH
06'be,Jl;HHeHHXMH (TaKHe KaK rOCTHHH'IHble KOMnneKCbI H Ka3axcKoe TeJIerpa<pHoe areHTCTBO,
HJIH a,IJ;MHHHCTpaTHBHble yqpe)K,Jl;eHHX, Tame KaK AKa,IJ;eMHX HaYK H MY3eH). ECJIH BHHMaTeJIbHO
npOaHaJIH3HpOBaTb        1 840   yqpe)K,Jl;eHHH, HaXO,Jl;jfITlHXCX B Be,Jl;eHHH MHHHCTepCTB, OKa3bIBaeTCX,
'ITO eme COTHH yqpe)K,Jl;eHHH MO:>KHO BKJIIO'IHTb B BbllIIenepe'lHCJIeHHble KaTeropHH. <l>aKTbI
CBH,Jl;eTeJIhCTBYIOT 0 TOM, 'ITO B 3THX yqpe)K,Jl;eHHXX MOryT 6hITb 3aH.HTbI COTHH TbICXl{H
pa60THHKOB H 'ITO 3Ta KaTeropHX MO:JoKeT 6hITb CTOJIb :JoKe KPynHoMacmTa6HOH, KaK H CaM
ceKTOp rOCY,Jl;apCTBeHHoro ynpaBJIeHHX. ,I],e.sITeJIhHOCTh MHorHX H3 HHX MO:JoKeT <pHHaHCHpOBaTbCX
3a C'IeT 'lJIeHCKHX B3HOCOB HJIH OKa3aHHX nnaTHhIX yCJIyr.


26.   IIoKa pa3pa6aThIBaeTcx 60JIee nO,Jl;p06Hax nporpaMMa peopraHH3an;HH CHCTeMhI
rOCY,Jl;apCTBeHHhIX opraHOB, nepBblMH lIIaraMH Ha nyTH YCOB6pm6HCTBOBtlHHH CYI4eCTByIOIIJ.HX
a,!{MHHHCTpaTHBHbIX CTPYKTYP AOJI:>KHbI 6hlTb cneAYIOITlHe MepbI:


      (i)    COCTaBJIeHHe cnHCKa Bcex a,IJ;MHHHCTpaTHBHhIX yqpe)K,Jl;eHHH C YKa3aHHeM
             BhmOJIH.HeMbIX HMH <PYHKIJ;HH. TaKoH CnHCOK ,Jl;OJI:JoKeH COCTaBJIXTbCX Ha OCHOBe
             HH<popMan;HH, nonyqeHHoH B npon;ecce pa3pa6oTIOI HOBOH <PYHKIJ;HOHaJIbHOH H
             HHCTHTYIJ;HOHaJIbHOH KJIaCcH<pHKaIJ;HH 6IO,Jl;)KeTa ('ITO o6CY)K,Jl;aeTCX B
             naparpa<pe      66).

      (ii)   IIpH,Jl;aHHe OT,Jl;eJIbHOrO IOpH,ll;H'IeCKOrO CTaTYCa npoq,eccHOHaJIbHbIM aCCOn;HaIJ;HXM,
             a,IJ;MHHHCTpaTHBHbIM yqpeJK,Il;eHHXM, npOMbIlIIJIeHHbIM H KOMMep'leCIOIM
             npe,Jl;npHXTHXM H BKJIIO'IeHHe HX B OC06hIH pe:>KHM ynpaBJIeHHX.
                                                          - 13 -

         (iii)    AHaJIH3 XapaKTepa .n;eHTenbHOCTH H CTPYKTYPbI Ka:>K.nOrO H3 yqpexmeHHH C TeM
                  tff06bI onpe.n;enHTb yqpexmeHHH, KOTOpbIe MOryT 6bITb rrpHBaTH3HpOBaHbI H
                  npe06pa30BaHbI B KOMMeptIeCKHe HnH HeKOMMeptIeCKHe OpraHH3aI.J.HH, B3HMaTb
                  nnaTY 3a OKa3bIBaeMble ycnyrH no YCTaHoaneHHbIM TapHcPaM, OCTaBaHCb B
                  rocy.n;apCTBeHHOM ceKTope, HnH Te yqpexmeHHH, .n;eHTenbHOCTb KOTOPbIX .n;OIDKHa
                  cy6CH.n;HpOBaTbCH H3 6IO,IOKeTa.


27.        3TOT npoI.J.ecc cPaKTHtIeCKH Y.iKe HatIaT BO MHorHX tIaCTHX CTpaHbI.           B   tIaCTHOCTH, p.s:.n;
MeCTHbIX OpraHOB rocy.n;apCTBeHHoro ynpaaneHHH OT.n;enHn CBOH «a.D;MHHHCTpaTHBHbIe,.
opraHH:iaI.J.HOHHbIe e.n;HHHI.J.bI, KOTopbIe npo.n;on.iKaIOT cPHHaHCHpOBaTbCH H3
06merocy.n;apCTBeHHoro 6IO,IOKeTa, OT «npOH3Bo.n;HTenbHbIX" OpraHH3aI.J.HOHHbIX e.n;HHHI.J.
(HanpHMep, nOtffOBaH cnY.iK6a, CBH3b, aBHanepeB03KH, Bo.n;OCHa6.iKeHHe), KOTopbIe HatIHHaIOT
.n;eHCTBOBaTb Ha OCHOBe caMocPHHaHCHpOBaHHH. O.n;HaK03TOT npOI.J.eCC OCTaeTCH
He3aBepmeHHbIM, B OCHOBHOM no npH'tIHHe OTCYTCTBHH COOTBeTCTBYIOmHX IOpH.n;H'tIeCKHX cPOPM,
B KOTopble MO.iKHO 6bmo 6b1 npe06pa30BaTb 3TH OpraHH3aI.J.HOHHbIe e.n;HHHI.J.bI.


          clJparMeHTauull pecny6J1HKaHCKHX yqpe)l(,lleHHii

28.       CTPYKTypa Opr8.HOB roCY.JrspCTBeHHoro yrrpSBJleHHJI K83SXCTSHS xspSKTepH3yeTCJI
BMCOKOH CTeIIeHhIO lPP8I'MeHTaIQIH. B Be.n;eHHH Ka6lmeTa MHHHCTPOB Haxo.n;.s:TCH
56 a.n;MHHHCTpaTHBHbIX yqpexmeHHH (22 MHHHCTepCTBa, 13                 rocy.n;apCTBeHHbIX KOMHTeTOB,
7 KOMHTeTOB H 14 .n;pyrnx rocy.n;apCTBeHHblX yqpexmeHHH).              KOnHtIeCTBO yqpexmeHHH
MHHHCTepCKoro ypOBIDI B .n;aa-TpH pa3a npeBblllIaeT aHaJIOrH'tIHbIe nOKa3aTenH no 60nbwHHcTBY
CTpaH 03CP. 3Ta cPparMeHTaI.J.HH eme 60nee HaHO npOHBnHeTCH Ha ypOBHe .n;enaPTaMeHTOB.                              B
CTPYKType pecny6nHKaHcKHx opraHOB rocy.n;apCTBeHHOrO ynpaaneHHH HaCtIHTbIBaeTCH
HeCKonbKO COT a.D;MHHHCTpaTHBHbIX yqpexmeHHH nepBoro YPOBIDI, HnH .n;enapTaMeHTOB.                           B
CTPaHa:K 03CP KOnH'tIeCTBO Ta:KHX yqpexmeHHH, KaK npaBHno, He npeBbIwaeT CTa.


29.       B   60nbIIIHHcTBe CTPaH 03CP opraHH3aI.J.HOHHaH CTpYKTYpa yqpexmeHHH CTPOHTCH Ha
OCHOBe «rocy.n;apCTBeHHblX cny.iK6,., KOTopbIe BbmonIDIIOT onpe.n;eneHHbIe «cPYHKI.J.HH» H
no.n;pa3.n;eneHbI Ha .n;enapTaMeHThl. HMeHHO .n;enapTaMeHTbI, a He MHHHCTepCTBa HanHIOTCH
IIpOCTeHIIIHMH H CTSOHJIblIMMH Mo.n;enHMH nOCTpoeHHH CTPYKTYPbI rocy.n;apCTBeHHbIX opraHOB.
B Ka3aXCTaHe }Ke q,YHKI.J.HH a.D;MHHHCTPaTHBHoro opraHa onpe.n;emnOTCH Ha ypOBHe
MHHHCTepCTBa, H nOHBneHHe HOBOH cPYHKI.J.HH nOtffH aBTOMaTH'tIeCKH Be.n;eT K C03.D;aHHIO eme
O.n;HOH TaKOH CTpYKTYpbl.


30.       B pe3ynbTaTe         nepCOHaJI MHHHCTepCTB, HeMHOrO'tIHCneHHbIH no Me.iK.D;YHapo.n;HbIM
CTaH.n;apTaM B KpaHHe He3Ha'tIHTenbHbIX KOnH'tIeCTBaX pacnpe.n;emleTCH no pacTymHM
R.n;MHHKCTpaTHBHbIM CTpYKTypaM. KOnH'tIeCTBO COTPy.n;RHKOB Bcex KaTeropHH, 3aIDITbIX B
opraHH3aI.J.HOHHbIX no.n;pa3.n;eneHHHx nepBoro ypOBHH, KaK npaBHno, He npeBbIwaeT                     20   'tIenOBeK
- B MIlHHcTepCTBax 3KOHOMHKH H cenbcKoro X03HHCTBa 3TO ganHeTCH cpe.n;HHM nOKa3aTeneM.
MHor.n;a .n;OXO.n;HT .n;o Toro, 'tITO HenOIDITHO, BbInOnHHIOTCH nH Bo06me HeKOTopble cPYHKI.J.HH
n.enoro p.s:.n;a .n;enapTaMeHTOB.


31.       B   3TOH cHTyaI.J.HH HaHO He06xo.n;HMa KOHCOJIHlfmHJI. Y.iKe npHHHTO peweHHe 0 TOM, 'tITO
Ha'tIHHaH C      1996 ro.n;a   KOnH'tIeCTBO COTpy.n;HHKOB ynpaaneHHH .n;on}KHO COCTaBnHTb He MeHee
20    'tIenOBeK, OT.n;ena - He MeHee     10 'tIenOBeK   H OT.n;eneHHH - He MeHee   4   'tIenOBeK. XOTH 3TO
n03BonHT HeCKonbKO YMeHbWHTb KOnH'tIeCTBO a.D;MHHHCTpaTHBHbIX CTPYKTYP H
COOTBeTCTBYIOmHX WTaTHblX pacnHcaHHH, BP.s:.n; nH 3TO B KopHe peIIIHT np06neMY.
                                                         - 14 -

 32.           HaH60JIee u;eJIeC006pa3HoH npe.nCTaBJUIeTCH KOHCOJIH)J;aI.J;HH CTPYKTYPLI yqpe>K,lJ,eHHH B
npou;ecce aHaJIH3a, oT6opa H 06'Le.nHHeHHH BLInOJIHSleMLIX HMH tP)'HKC(HH, HJIH JIHKBH)J;aI.J;HH
HeKOTophIX cPY~HH. AHaJIH3 3THX cPYIlKUHH .nOJDKeH npe.nmeCTBOBaTh paU;HOHaJIH3aU;HH
CTPYKTYP H OXBaTLIBaTh Bce a.nMHHHCTpaTHBHhIe yqpe>K,lJ,eHHH, .neHCTBYlOIIUle Ha
pecny6JIHKaHCKOM ypOBHe, a He TOJIhKO yqpe>K,lJ,eHHH B paHre MHHHCTepCTB. 3TOT npou;ecc
MOJKeT BKJIIO'IaTh HeCKOJIhKO 3TanOB:


              (i)     OCHOBLIBaHCL Ha cnHCKe Bcex a.nMHHHCTpaTHBHLIX yqpe>K,lJ,eHHH, ynOMHHYTOM B
                      naparpacPe   26,   B KOTOPOM YKa3aHhI cPYHKUHH, BLInOJIHSleMLIe 3THMH
                      yqpe>K,lJ,eHHHMH, BLljIBHTh H JIHKBH.tlHpOBaTh HeHYJKHhIe cPY~HH H aBTOMaTH'IeCKH
                      ynpa3.tlHHTh HJIH npHBaTH3HpOBaTL a.nMHHHCTpaTHBHLIe yqpe>K,lJ,eHHH,
                      BhInOJIHSlBmHe 3TH cPYHKUHH.


              (ii)    Y CTaHOBHTh   e.nHHhIe HOPMLI OTHOCHTeJIhHO Toro, tITO KacaeTCH pa3Mepa
                      yqpe>K,lJ,eHHH H HX OpraHH3aI.J;HOHHOH CTpYKTYPLI (c yqeToM cPYHKI.J;HOHaJIhHhIX
                      oco6eHHOCTeH, reorpacPHtIeCKOrO nOJIOJKeHHH H T.n.)


              (iii)   ArpernpoBaTL OCTaJIhHhIe cPYHKUHH B KpynHLIe rocy.napCTBeHHhle cnYJK6bI H
                      KOHCOJIH.tlHpOBaTb .neHCTBYIOI.IJ;He CTpYKTYPhI B CHCTeMY, BKJIIOtIaIOmyIO He MeHee
                      100 .nenapTaMeHToB     nepBoro ypOBHH, C yqeToM Heo6xo.nHMhIX B03MOJKHOCTeH .tlJUl
                      ocymeCTBJIeHHH KOHTPOJUI.


              (iv)    06'be.tlHHHTb .nenaPTaMeHTbI B yqpe>K,lJ,eHHH ypOBHH MHHHCTepCTB PYKOBO.nCTBYHCb
                      e.tlHHLIMH KpHTepHHMH H B COOTBeTCTBHH C npHOpHTeTaMH nOJIHTHKH
                      npaBHTeJIbCTBa.


,I1;.I:uI   Toro tITo6LI 3TOT npou;ecc 6bIJI nOCJIe.nOBaTeJIbHLIM H KOMnneKCHbIM, a TaKJKe Y'lHTLIBaH
B3aHMOCBH3h Me>K,lJ,Y pa3JIHtIHhIMH YPOBHHMH opraHOB rocy.napcTBeHHoro ynpaBJIeHHH, B .naHHbIH
npou;ecc Heo6xo.nHMO BKJIIOtIHTb TaKJKe MeCTHhIe opraHLI rocy.napCTBeHHoro ynpaBJIeHHH.


              UeHTpaJIH3auH.R npouecca paapa60TKH nOJIHTHKH

33.           Eme O.nHHM pe3YJIhTaTOM cPparMeHTaU;HH MHHHCTepCKHX CTpYKTYP HBJIHeTCH BhICOKa.Jl
CTeHeHh ~eHTPBJIH3aIJ.HH tP)'HKI{HH YHpaBJIeHHR H KOHTPOJIR Ha BbIcmeM YPOBHe opraHOB
rocy.napCTBeHHoro ynpaBJIeHHH (IIpeMhep-MHHHcTP, ero 3aMeCTHTeJIH H AnnapaT Ka6HHeTa
MHHHCTpoB). TaKaH CTPYKTypa 3TO HanOMHHaeT cBoero po.na npaBHTeJIhCTBa B MHHHaTIOpe, B
paMKax KOTOPOro Te JKe Ha.nMHHHCTepCKHe cP~H, BhInOJIHHBillHeCH npH COBeTCKOH CHCTeMe
(i) ll,eHTPaJIbHbIM KOMHTeTOM Hero OT.neJIaMH, OTBetIaBmHMH 3a pa3pa6oTKY nOJIHTHKH; H
(ii) COBeTOM MHHHCTPOB Hero ynpaBJIeHHHMH, KOTopLIe PYKOBO.tlHJIH .neHTeJIhHOCTLIO
MHHHCTepCTB H .npyrHX rocy.napCTBeHHbIX OpraHOB. TaKaH u;eHTpaJIH3aU;HH orpaHH'lHBaeT
nOJIHOMO'IHH H CTeneHb OTBeTCTBeHHOCTH PYKOBo.nHTeJIeH MHHHCTepCTB, CHHJKaeT
3Q>Q>eKTHBHOCTb pemeHHH nOJIHTHtIeCKHX H a.nMHHHCTpaTHBHhIX BonpOCOB H Be.neT K
.neMOpaJIH3aU;HH nepCOHaJIa MHHHCTepCTB.


34.           B OTJIH'lHe   OT cOBeTcKoH CHCTeMbI, HOBaH KOHCTHTYU;HH onpe.neJIHeT npaBHTeJIbCTBO KaK
KOJIJIernaJIhHLIH opraH, tIJIeHhI KOToporo Ka>K,D,bIH B OT,ueJIhHOCTH H BMeCTe OTBeTCTBeHHbI 3a
pemeHHH, npHHHMaeMbIe npaBHTeJIhCTBOM. 3TO nOJIOJKeHHe npe.nycMaTpHBaeT nepe.naqy
MHHHCTepCTBaM nOJIHOMOtIHH no pa3pa6oTKe nOJIHTHKH, tIeMY .noJIJKHa cnoco6CTBOBaTb
OnHCaHHaH BbIme KOHCOJIH.naU;HH opraHOB MHHHCTepcKoro YPOBHH.
                                                                   - 15 -

PeopraHH33.UID1 MeCTHblX OpraHOB rOCYllapCTBeHHoro ynp3.BJ1eHHSI


35.        C03,1l;aHHe opraHOB MeCTHoro caMoynpaBJIeHHB - npH YCJIOBHH, qTO 3TOT npouecc 6Y,Il;eT
,Il;OCTaTOqHO npO,ll;YMaHHhlM - Mo:x<:eT B 3HaqHTeJIhHOH CTeneHH cnoco6CTBOBaTh nOBhI1lleHHlO
3cPcPeKTHBHOCTH peopraHH3aUHH rocY,Il;apCTBeHHhIX CJIy:x<:6.                            B qaCTHOCTH,         3TO n03BOJIHT
CKOppeKTHpOBaTh CTeneHh H MacWTa6hI rOCY,Il;apCTBeHHoro BMeWaTeJIhCTBa C yqeToM
HMelOlI.UfXCB pecypcoB H npHopHTeToB Ha MeCTHOM ypOBHe. TaKaB rn6KocTh, no BceH
BepOBTHOCTH, n03BOJIHT nOBhICHTh 3cP<peKTHBHoCTh yCJIyr no cpaBHeHHlO C ,Il;eHcTBYJOIUeH
a,n;MHHHCTpaTHBHOH cHcTeMoH, B paMKax KOTOPOH yCJIyrH npe,ll;OCTaBJIBlOTCB B O,ll;HHaKOBOM
06'beMe no BceH CTpaHe.




36.        B paMKax       ,Il;eHcTBYJOIUeH CHCTeMhI MeCTHhle opraHhI rocY,Il;apCTBeHHOrO ynpaBJIeHHB
<paKTHqeCKH BBJI.RlOTCB OT,Il;eJIeHHBMH ueHTpaJIhHoro npaBHTemCTBa Ha MeCTax. 3a HeKOTOphIMH
HCKJIlOqeHHBMH (HarrpHMep, HaJIoroo6JIo:x<:eHHe, oxpaHa npaBonOp.Rl(Ka), MeCTHhle opraHhI
rOCY,Il;apCTBeHHoro ynpaBJIeHHB BhmOJIH.RlOT Bce <PYHKUHH npaBHTeJIhCTBa B PaMKax CBOHX
lOPHC,Il;HKUHH, He3aBHCHMO OT Toro, KTO nOX<:HHaeT IIJIO,ll;hI 3TOH ,Il;eBTeJIhHOCTH - JIHIIIh MeCTHoe
HaCeJIeHHe HJIH Bce HaCeJIeHHe CTPaHhI. HecMoTpB Ha TO ~O rOCY,Il;apCTBeHHhIH 61O,Il;X{eT HMeeT
HeCKOJIhKO YPOBHeH (61O,Il;X{eThI panOHHhIX H 06JIaCTHhIX opraHOB rOCY,Il;apCTBeHHoro ynpaBJIeHHB
H pecny6JIHKaHCKHH 61O,Il;X{eT), 3TH ypOBHH <paKTHqeCKH npe,ll;CTaBJI.RlOT C060H pa3JIHlflIhle
ypOBHH arpernpOBaHHB pa3JIHqHhIX 61O,Il;X{eTHhIX yqpeX{,ll;eHHH, npaKTHqeCKH He 06JIa,n;alOIUHX
<PYHKQHOHaJIhHOH HJIH HaJIOrOBO-61O,Il;X{eTHOH HH,Il;HBH,Il;YaJIhHOCThlO2!.


37.        B 3TOH     CHCTeMe KOMOCTCHl'{JIJl Ka.JK,I.(OrO H3 YPOBHCii Opr8HOB rOCYJ!apCTBCHHoro
YIIpaBJICHHJl onpe,ll;eJI.ReTCB opraHH3aUHoHHoH CTPYKTYPOH (T.e. TO HJIH HHoe yqpeX{,ll;eHHe
HaxO,ll;HTCB B Be,ll;eHHH opraHa rocY,Il;apCTBeHHOrO ynpaBJIeHHB onpe,ll;eJIeHHOro YPOBH.R), a He
<PYHKQHOHaJIhHOH CneQHaJIH3aUHeH (KOr,ll;a BhmOJIHeHHe KOHKpeTHhIX <PYHKUHH, TaKHX KaK
3JIeMeHTapHoe Me,ll;HQHHCKOe 06CJIYX<:HBaHHe, BXO,ll;HT B 06B3aHHOCTH opraH a roCY,Il;apCTBeHHoro
ynpaBJIeHHB onpe,ll;eJIeHHOrO YPOBH.R).                 B COOTBeTCTBHH           C 06IUHM npaBHJIOM, 61O,Il;X{eTHhIe
yqpeX{,ll;eHHB HaxO,ll;.RTCB B Be,ll;eHHH opraH a rocY,Il;apCTBeHHoro ynpaBJIeHHB, lOPHC,Il;HKUHB
KOToporo COOTBeTcTByeT TeppHTOpHaJIhHOH c<pepe OXBaTa OKa3hIBaeMhIX HMH yCJIyr.


38.       Ha npaKTHKe MeCTHhle, B nepByJO Oqepe,ll;h paHoHHhle opraHhI rOCY,Il;apCTBeHHoro
ynpaBJIeHHB BhmOJIH.RlOT 60JIhWHHCTBO rOCY,Il;apCTBeHHhIX <PYHKUHH, CBB3aHHhIX C
HenOCpe,ll;CTBeHHhlM OKa3aHHeM YCJIyr HaCeJIeHHlO.                         113 MeCTHhIX       61O,Il;X{eTOB <pHHaHcHPYlOTCB
80 npOIteHTOB        rocY,Il;apCTBeHHhIX paCXO,ll;OB Ha o6pa30BaHHe, 3,1l;paBOOxpaHeHHe, KYJIhTYPY H
OT,Il;hIX, a TaKX<:e Ha TpaHcnopT (CM. Ta6JIHUY                   6),   OKOJIO    33   npOIteHTOB Cpe,ll;CTB 06JIaCTHhlx
61O,Il;X{eTOB H    60   npOIteHTOB Cpe,ll;CTB 61O,Il;X{eTOB paHoHHhlx opraHOB rOCY,Il;apCTBeHHoro
ynpaBJTeHHB BhmeJIBlOTCB Ha o6pa30BaHHe H 3,1l;paBOOXpaHeHHe (Ta6JIHIta                                    7).   Cpe,ll;cTBa 3THX
61O,Il;X{eToB TaKX<:e HCnOJIh3YlOTCB )],JIB <pHHaHCHPOBaHHB 60JIhWHHCTBa npOrpaMM COQHaJIhHOrO




~Heo6lCO.llHMO npHHHMaTb so BHHMaHHe )lBe BlUKHbIX np06JIeMbI, ICOTopble npOTHBOPC'IaT MueHHlO, 'ITO CBepxy .lIOHH3Y o6eCne'leBa
nOJIHlISI ,lI.HCIlHI1JIHHa. Bo-nepBblX, S pe3YJIbTaTe q,HHaHCOBOro JqlH3HCa yseJIH'lHJIOCb HeCOOTSeTCTBHe MeJlC.llY OCHOSHblMH lleJI.llMH
nOJIHTHICH, YCTaHaBJIHsaeMbIMH Hasepxy, H Cpe.llCTBaMH me .lIOCTHJKeHHll, nonold}' pecny6JIHKalICKOld}' npaBHTeJIbCTsy HH'lero He
OCTaeTCJI. KpOMe UK npe.llOCTaBHTb MeCTHbIM OpraHaM rocY.llapCTBeHHoro ynpaBJIeHHll CaMHM pewaTb S03HHKalOIIlHe B pe3YJIbTaTe
np06JICMbI. BO-BTOPblX, nOCKOJIbICY HeT o6w,euauHOHaJIbHOH rp~aHCICOH Cny:lK6b1 (CM. naparpaq,b1           95-96),   Bee roCY.l\&PCTBCHHble
Y'lpe:lK,l4eFlHll YXOMllllCICTOBaHbI He npoq,eCCHOHaJIbHbIMH roCY.lIapCTBeHHbIMH Cny:lKamHMH, a nepCOHaJIOM, HallJlTbIM Ha MecTax,
ICOTOpblli, eCTeCTBCHHO, 60JIec JIOJlJIbHO OTHOCHTCJI K co6CTBeHHOH IOPHC.lIHKUHH.
                                                               - 16 -

06eCneqeHH.II, paCXO.n;bI Ha KOTOpble YKa3bIBaIOTC.II B rocy.n;apCTBeHHOM 6IO,IOKeTe!QI (B BH.IJ;e
nOC06HH CeMb.llM, nOMOmH npeCTapeJIbIM H HHBaJIH.n;aM, HJIH B BH.n;e Cy6CH.IJ;HpOBaHH.II
OTOnneHH.II H KOMMYHaJIbHbIX YCJIyr).               If   HaKOHen;, nOCJIe.n;HeH HaH60JIee 3Ha'IHTeJIbHOH
KaTerOpHeH paCXO.n;OB .IIBJI.IIJIOCh MaTepHaJIbHo-TeXHHqeCKOe 06CJIyJKHBaHHe H peMOHT .n;opor
(06JIaCTHble 6IO,IOKeTHble q,OH.n;bI) H 06meCTBeHHbIH TpaHCnOpT (Cnen;HaJIhHbIe q,OH,llbI
paHOHHOrO YPOBHJI).          B xo.n;e   HaJIOrOBOH peq,opMbI            1995   ro.n;a 6bIJIH OTMeHeHbI Cnen;HaJIbHbIe
HaJIOrH, nOCTYnJIeHH.II OT KOTOPhIX HCnOJIb30BaJIHCb .IJ;JI.II q,HHaHCHPOBaHH.II 3THX pacxo.n;OB.


39.         Pacxo.IJ;bI MeCTHbIX OpraHOB rocy.n;apCTBeHHoro ynpaBJIeHH.II q,HHaHCHPYIOTC.II, B
OCHOBHOM,         H3 OOIQHX pecypCOB. B HOBOM HaJIOrOBOM 3aKOHo.n;aTeJIbCTBe npOBo.n;HTC.II 6bITb
MOJKeT HeCKOJIbKO Ha.IJ;YMaHHoe pa3JIH'lHe Me)K,lJ;Y .n;BYM.II rpynnaMH HaJIOroB: IlllThlO
«o6merocy.n;apcTBeHHhIMH HaJIOraMH» H IIIeCTblO «MeCTHbIMH HaJIOraMH». n.llTblO BH.n;aMH
o6merocy.n;apCTBeHHbIX HaJIOrOB .IIBJI.IIlOTC.II           (i) HaJIOrn Ha .n;OXO.IJ;hI q,H3HqeCKHX JIHn; H npH6bIJIb
npe.n;npH.IITHH; (ii) HaJIOr Ha .n;o6aBJIeHHyIO CTOHMOCTb (H,IJ,c); (iii) aKIl;H3bI; (iv) HaJIOr Ha
Onepan;HH C ueHHbIMH 6YMaraMH; H (v) HaJIOr Ha nOJIb30BaHHe npHpO.IJ;HbIMH pecypcaMH.
illecTbIO BH.n;aMH MeCTHbIX HaJIOrOB .IIBJI.llIOTCR 3eMeJIbHbIH HaJIOr, HaJIOr Ha aBTOTpaHCnOpTHOe
cpe.n;CTBO, HaJIOr Ha HMYIUeCTBO, a TaKJKe TPH BH.n;a C60pOB. O.n;HaKo Ha npaKTHKe pa3JIH'IH.II
MeJK.n;Y 3THMH BH.n;aMH HaJIOrOB He TaK OQeBH.n;HbI, KaK Ha 3TO YKa3bIBalOT HX Ha3BaHH.II. C
O.IJ;HOH CTOPOHbI, HeCMOTpjl Ha TO 'ITO 6a3bl H CTaBKH o6merocy.n;apCTBeHHbIX HaJIOroB
onpe.n;eJI.ll1OTC.II H YCTaHaBJIHBaIOTCR ueHTpaJIbHblM npaBHTeJIbCTBOM, Bce                                 100   npoueHTOB
nOCTYnneHHH OT JIHQHOrO no.n;OXO.IJ;Horo HaJIOra nepe'IHCJI.IIlOTCjI B 6IO,ICKeTbI MeCTHbIX opraHOB.
KpoMe Toro, H3 pecrry6JIHKaHCKoro 61O,ICKeTa B MeCTHble 61O,IOKeTbI nepe'IHCJl.IIeTC.II QaCTb
nOCTYnJIeHHH OT «HaJIOroB, BbInOJlHJllOmHX q,YHKIJ;HH peryJIHpOBaHHR» - H,IJ,C, aKIJ;H30B,
q,HKCHpOBaHHOrO HaJIOra Ha nOJIb30BaHHe npHpo.n;HhlMH pecypcaMH H HaJIOra Ha npH6bIJIb
npe.n;npH.IITHH. C .n;pyroH CTOPOHhI, XOT.II nOCTYnneHHjI OT «MeCTHbIX» HaJIOrOB nepe'IHCJI.IIlOTC.II B
61O,IOKeTbI paHoHHblx OpraHOB rocy.n;apCTBeHHoro yrrpaBJIeHH.II, 6a3bl H CTaBKH 3TH X HaJIOrOB
YCTaHaBJIHBalOTCR ueHTpOM.


40.       IJ.eJIblO 61O,ICKeTHOrO npouecca .llBJl.IIeTC.II pacnpe.n;eJIeHHe 3THX 06mHX pecypCOB MeJK.n;Y
Pa3JIH'iHbIMH YPOBH.IIMH rocy.u;apCTBeHHoro 6IO.u;:>KeTa.                 B xo.u;e ::noro rrpo.u;ecca peWaIOTC.B: .n;Be
3a.u;aQH:   (i)   o6eCrreQHTb O.IJ;HHaKOBbm 06'beM yCJIyr rro BceH CTpaHe; H                (U) 3aHHTepeCOBaTb
MeCTHbIe opraHbI rocy.n;apCTBeHHoro ynpaBJIeHH.II B aKTHBHOM yqacTHH B c60pe
o6merocy.n;apcTBeHHbIX HaJIOrOB. HOPMbI pacxo.n;OB YCTaHOBJIeHbl C ueJlblO pemeHHjI rrepBoH
3a.u;a'IH (CM. rraparpaq,bI      62-63).    CJIO:lKHa.s CHCTeMa         pe3epBHpoBaHHH HocTyrmeHHH rrpH3BaHa
peIIIHTb BTOPYlO 3a,n;aqy. npH pacrrpe.n;eJIeHHH o6merocy.n;apcTBeHHblx pecypCOB MeJK,ll;Y
pa3JlHlffibIMH YPOBHJlMH rocy.n;apCTBeHHoro 61O,ICKeTa, .IJ;JIR MeCTHblX 61O,IOKeToB B nepBYlO
OQepe.n;b pe3epBHpYlOTCjI BC.II CYMMa HJIH QaCTb rrocTynneHHH OT peryJIHPYIOmHX HaJIOrOB,
B3HMaeMbIX Ha MeCTax, OrpaHHQHBaeMaR MaKCHMaJIbHbIM JIHMHTOM, YCTaHOBJIeHHbIM B
COOTBeTCTBHH C HOPMaMH pacxo.n;OB. OCTaJIbHa.s QaCTb cpe.n;CTB pacrrpe.n;eJI.IIeTCR B rrOpR.IJ;Ke
«.n;oTan;HH» OT ueHTpaJIbHOrO rrpaBHTeJIbCTBa. HH HopMa pacnpe.n;eJIeHHjI nOcTYnJIeHHH OT
peryJIHpYIOIlJ,HX HaJIOrOB, HH .n;OTaUHH OT ueHTpa He BJIHRlOT                      ex ante       Ha 06mylO CYMMY cpe.n;CTB,
BbI.n;eJIeHHYIO B 61O,IOKeTe .IJ;JI.II Ka)K,lJ;oro yqpe)K,lJ;eHH.II B Be.n;eHHH MeCTHoro opraH a ynpaBJIeHH.II.
CMeTbl pacxo.n;OB MeCTHbIX opraHOB YCTaHaBJIHBalOTCjI He3aBHCHMO OT npOUecca
pe3epBHpOBaHHjI cpe.n;CTB, H B COOTBeTCTBHH C 3THM MeHJIlOTC.II H HOPMhI pacnpe.n;eJIeHH.II
nOCTYnneHHH. O.n;HaKO HaJIOrOBhIe nOCTYnneHH.II pe3epBHpYIOTCjI )1;JIjI Toro, 'lTo6b1 o6ecrreQHTb
TaKOH nOpR.IJ;OK, npH KOTOPOM 6IO,IOKeTHbIe cpe.n;CTBa, KOTOPbIMH q,aKTHQeCKH pacnOJIaraeT




~,IlpYI'He pacxolUd Ha COLtHam.Hoe o6eCne'leHHe npOH3Bo]tllTCJ! C HCnOlIb30BaHHeM CpeJlCTB   tI>oH,ll,a   COLtHlIlll>HOro crpaxOBaHlUl..
                                                    - 17 -

MeCTHOe }":IpelK,Il;eHHe B XO,lfC HC110JIHeHHll DIO,JPKeT8, 3aBHCeJIH OT YPOBIDI nOCTYIIDeHHH,
nO.nyqeHHhIX MeCTHhIM OpraHOM rocy,n;apCTBeHHOrO ynpaBJIeHH", B tfheH IOPHC,lJ;HKIJ;HH
HaxO,n;HTC" ,n;aHHOe yqpeJK,IJ;eHHe.


41.     3TOT MeXaHH3M JIHIIII> B He3Ha'lHTeJIbHOH CTeneHH orpaHH'lHBaeT cBo6o.n;y ,n;eHcTBHH npH
npe,lJ;BapHTeJIbHOM pacnpe,n;eJIeHHH 6IO,IUKeTHbIX pecypcoB (B npouecce no,n;rOTOBKH 6IO,IUKeTa).
O,n;H!uc:o, TPY,lJ;Hee Bcero npHxo,n;HTC" Ha CTa,D;HH HCnOJIHeHH" 6IO,IUKeTa, nOCKOJIbKY K8..}I{,ltbIH
TeHre pacnpe,n;e~eTc" 'Iepe3 6IO,IUKeThI MHO:>KeCTBa yqpeJK,IJ;eHHH B COOTBeTCTBHH C
YCTaHOBJIeHHbIMH HOPMaMH H 6e3 yqeTa KOHKpeTHhIX nOTpe6HocTeii B pacxo,n;ax. O'leBH.n;HO,
'ITO 3Ta cBo6o,n;a ,n;eHcTBHH 6blJIa 6bI B 3Ha'lHTeJIbHOH CTeneHH OrpaHH'IeHa, eCJIH 6hI 6bIJIH
YCTaHOBJIeHbI <pHKcHpoBaHHhIe K03<P<PHUHeHThI, KaK HHor,n;a npe,lJ;JIaraeTc". bOJIee Toro,
Y'lHThIBU HeCTa6HJIbHOCTb YPOBIDI HaJIoroBbIX nOCTYJIJIeHHH 3a nocne,lJ;Hee Bpe~ (CM.
naparpa<p      56),   pa3Mep pecypCOB MeCTHhIX OpraHOB CTaHeT ropa3,lJ;o 60JIee Henpe,n;CKa3yeMhIM,
n03TOMY TaKOe npe,lJ;JIO:>KeHHe He HMeeT no,n; C060H OCHOBaHH".


COO,lJ;aHHe OPraHOB MeCTHoro CaMoynpaBJleHHH


42.     npH pa3pa6oTKe 110JIHTHKH ,lfeI!CHTp8JIH38.IQIH BJIaCT"M Heo6xo,n;HMO npeJK,IJ;e Bcero
HaRTH OTBeTbI Ha CJIe.n;yIOIUHe npHHUHnHaJIbHbIe BonpOCbI:


        (i)      CKOJIbKO YPoBHeH MeCTHbIX opraHOB rocy,n;apCTBeHHoro ynpaBJIeHH" ,n;OJI:>KHO 6bITb
                 B CTPaHe?


        (ii)     KaKOBa <popMa a.n;MHHHCTpaTHBHoH aBTOHOMHH, npe,n;ocTaBJI"eMOH KaJK,IJ;OMY H3
                 YPoBHeH?


       (iii)     Ha KaKOM ypOBHe npe,n;nO'ITHTeJIbHO C03,n;aTb opraHhI MeCTHoro caMoynpaBJIeHH"?


       (iv)      KaKOBhI ,n;OJI:>KHbI 6bITb 06.l13aHHOCTH opraHOB MeCTHOrO caMoynpaBJIeHH"?


TOJIbKO Ha TaKoH OCHOBe MO:>KHO pa3pa6oTaTh H YCTaHOBHTb 3<p<peKTHBHhIe MeXaHH3Mbi
HaJIOrOBo-6IOWKeTHoH ,n;e"TeJIbHOCTH.
                                                                               - 18 -

Ta6JlHua 6: PacnpeneJIeKHe pacXonoB Mell(Jly pecny6JlHKaHCKHM 6IOJl)KeTOM H 6IOJVKeTaMH MeCTHbiX OprauOB
                  rocynapCTBeKHoro ynpasJleHHJI (ci>aKTHqecKHe nOKaaaTeJlH aa 1994 r.)

    CTaTLR paCXO,QOB                        PCCny6HHKaHCKHH        MCCTH1>Iii        rOCYAaPCTBCHEUdH      Pecny6HHKaHcKHii      MeCTHLIH    rOCY;I\apCTBesH1>Iii



  YCnyTH aaceneHlUO                                87.3               12.7                100.0                  25.3              4.7              16.2
  060poHa                                          99.6               0.4                  10.0                  7.8               0.0               4.4
  Oxpaaa npaBonOpllJl;K8                           79.3               20.7                100.0                  9.9               3.2               6.9
  06pa:loBaBHC                                     17.1               82.9                100.0                  4.8               29.4             15.7
  3l\PaBOOXpaacHHc                                 13.7               86.3                100.0                  2.6               20.5             10.5
  COUHaJlLSOC o6ecnncHHc                           37.4               62.6                100.0                  3.5               7.5               5.3
  )f{JlnHIIlBo-lCOMMYHaJlLIChIC YCnyTH              1.3               98.7                100.0                  0.1               9.6               4.3
  KYlIhTYPa H ;I\ocyr                              47.2               52.8                100.0                  2.0               2.8               2.3
  3scpreTllltll                                     3.5               96.5                100.0                  0.1               3.4               1.5
  Cem.ClCOC X03JUi:CTBO                            89.1               10.9                100.0                  11.1              1.7               6.9
  npOMhlllIJlCSHOCTL                               97.8               2.2                 100.0                  0.7               0.0               0.4
  TpaacnopT H CBS3L                                13.5               86.5                100.0                  1.6               12.7             6.5
  JJ.pymc I!H,QhI lIeOS. ;I\CllTClIhHOCTH          81.8               18.2                100.0                  14.5              4.1               9.9
  npo'lcc                                          98.4                1.6                100.0                  16.1              0.3               9.2
  HTOro                                            55.8               44.2                100.0                 100.0             100.0             100.0
  (B IlpOu;elIT8X BBm                                                                                           (l0.4)            (8.2)            (18.6)

HCTO'lHHX: MHSHCTePCTBO q,HsaacoB (c HCIlOJIL30BallHCM OIlPC,QCJICSHH MB<J»; ,!\lI.HIChIC 0 pacxO;I\ax H3 pccny6nHKaHCKoro 61O.D;lIteTa He yqHTLIBaiOT 'IDCTOre
lCPe,QIITOBaBHR H yqaCTIUI B K8mITanc.




 Ta6JlHua 7: PacnpeneJIeKHe pacxo,nOB Mell(Jly OprauOB rocynapCTBeHHoro ynpaBJleHHJI pa3JlHQHbIX YPOBHeA
H B npeneJlax onKoro YPOBHJI OpraHOB rocynapCTBeHHoro ynpaBJleHHJI (ci>aKTHQeCKHe nOKaaaTeJIH aa 1994 r.)

                                                     06n8CTL                 PaHoa            MeCTHLIH opraa        06JIaCTL        PaHoa          MeCTH1>Iii



 Y CnyTH aacenCHHIO                                    32.8                  67.2                  100.0                 3.S         5.2               4.6
 06opoHa                                               55.6                  44.4                  100.0                 0.1         0.0               0.0
 Oxpaa8 "p8BOnOpllJl;K8                                66.5                  33.5                  100.0                 5.2          1.8              3.1
 06pa30Bauac                                           23.7                  76.3                  100.0                 17.3        37.4             29.3
 3l\PaBOOXpaaeHHe                                      32.9                  67.1                  100.0                 16.S        22.9              20.5
 COD;HaJlLaOe o6cCne'leSHe                             42.6                  57.4                  100.0                 17.9        16.1              16.S
 KYlIhTYPI, ;I\ocyr, penHI'IUI                         43.4                  56.6                 100.0                  2.7         2.4               2.5
 CCJlLclCoe X03mCTBO                                   67.9                  32.1                 100.0                  2.9         0.9               1.7
 npo'lee                                               62.5                  37.5                  100.0                 33.2        13.3             21.3
 HToro                                                 41.1                  5S.9                 100.0                 100.0       100.0             100.0
 (B npou;eHTax BBn)                                                                                                      (3.4)       (4.8)            (S.2)

HCTO'lHHIt: MHHHcTepCTBO q,HHaacoB, q,8KTH'letKHC 1l0K83aTenH 38     1994 ro,Q.
                                                                   - 19 -

43.           KOJIO'leCTBO YPoBHeD MeCTHhIX OpraHOB BJIaCTO. KaK npaBHJIO, XeJIaTeJIbHO
no,n;,n;epXHBaTb MHHHMaJIbHOe KOJIHlIeCTBO YPoBHeIi MeCTHbIX OpraHOB rocy,n;apCTBeHHoro
ynpaBJIeHHlI. C YBeJIHlIeHHeM KOJIHlIeCTBa 3THX YPoBHeIi, B03paCT8IOT nOTpe6HocTH B nepCOHaJIe
H ,n;pyrux pecypcax, a TaKXe BepOllTHOCTb ,n;y6JIHPOBaHHlI BbmOJIHlIeMbIX 06113aHHOCTeIi. BBH,n;y
3HaqOTeJIbHOIi TeppHTopHH CTPaHbI, HaJIHlIHe ,n;Byx YPoBHeIi OpraHOB BJIaCTH (CM. naparpaq,                                                 18)
npe,n;cTaBJIlleTClI ,n;OCTaTOllHO IJ;eJIeC006pa3HbIM H npOnOpIJ;HOHaJIbHbIM. TaKaJI CTpYKTYpa
xapaKTepHa ,n;JI1I cTpaH 03CP, oco6eHHo ,n;JIlI YHHTapHblx rocy,n;apCTB. C ,n;eMorpaq,HlIecKoIi
TOllKH 3peHHlI pa3MepbI MeCTHbIX IOPHC,n;HKI.I,HIi TaKXe npe,n;cTaBJIlIIOTClI 60JIee-MeHee
IJ;eJIeCOOOpa3HbIMH. tIHCJIeHHOCTb HaCeJIeHHlI 06JIaCTH (3a HCKJIIOlIeHHeM ropo,n;a JIeHHHcKa)
COCTaBJIlIeT B cpe,n;HeM OKOJIO             850 000     lIeJIOBeK, a paIiOHa - JIHilib HeMHorHM 60JIee
75 000    lIeJIOBeK. B CTpaHax 03CP cpe,n;HlIlI lIHCJIeHHOCTb HaCeJIeHHlI a,n;MHHHCTpaTHBHO-
TepPHTOpHaJIbHbIX e,n;HHHIJ; BepXHero YPOBHlI, KaK npaBHJIO, aHaJIOrHlIHa lIHCJIeHHOCTH
HaCeJIeHHlI 06JIaCTeIill! Ka3axcTaHa, o,n;HaKO lIHCJIeHHOCTb HaCeJIeHHlI 60JIee HH3Koro YPOBHlI
06bll{HO MeHbIIIe, lIeM B paIioHax. B HeKoTopoIi CTeneHH OTHOCHTeJIbHO KPYlIHble MeCTHble
opramI MOryT HMeTb CMbICJI. MHorne CTpaHbI 03CP HCnbITaJIH TPy,n;HOCTH, CBlI3aHHble C TeM,
'lTO HeKOTopbIe MeCTHbIe opramI CJIHiliKOM MaJIbI H He MOryT 3q,q,eKTHBHO BblnOJIHlITb CBOH
q,yHKIIHH, B TO xe BpeMlI n03HIJ;HH HX HaCTOJIbKO npOllHbI, liTO OHH 6y.ItYT npellllTCTBOBaTb
KOHCOJIH,n;aIJ;HH. HeCMOTpll Ha lIHCJIeHHOCTb HaCeJIeHHlI, pa3MepbI paIiOHHbIX opraHOB
rocy,n;apCTBeHHoro ynpaBJIeHHlI, KaK npaBHJIO, ,n;OCTaTOllHbI ,n;JIlI 3q,q,eKTHBHoIi OpraHH3aIJ;HH
rocy,n;apCTBeHHoro BMeIIIaTeJIbCTBa npH no,n;,n;epxaHHH npllMoro B3aHMo,n;eIicTBHlI C HaCeJIeHHeM,
oco6emm yquTbIBaJI llJIOTHOCTb ceTH ,n;opor.


44.           HaneJIeHOe nOJlHOMO'IORMO 0 nepe.lla'la nOJlHoMo'ioD. KOHCTHTYIJ;HlI Ka3aXCTaHa
npe,n;YCMaTpHBaeT ,n;sa BapHaHTa ynpaBJIeHHlI MeCTHbIMH opraHaMH rocy,n;apCTBeHHoIi BJIaCTH.                                                C
o~~HoIi CTOPOHbI, MeCTHble opraHbI MOryT OCTaBaTbClI lIaCTbIO YHHTapHoIi rocy,n;apCTBeHHoIi
cnCTeMbI 6y,n;yqu Ha,n;eJIeHHbIMH COOTBeTCTBYIOIIJ;HMH nOJIHOMOl{HlIMH. B HaCTOllIIJ;ee BpeMlI
,n;eIicTByeT HMeHHO TaKaJI CHCTeMa, B paMKax KOTOpoIi MeCTHbIe opraHbI BJIaCTH 06JIa,n;aIOT
onpe,n;eJIeHHoIi CBo6o,n;oIi ,n;eIiCTBHIi npH npOBe,n;eHHH rocy,n;apCTBeHHoIi nOJIHTHKH C yqeToM
MeCTHbIX YCJIOBHIi, OCTaBallCb B no,n;lIHHeHHH Y IJ;eHTpaJIbHOrO npaBHTeJIbCTBa. C ,n;pyroIi
CTOPOHbI, KOHCTHTYIJ;HlI OTKpbIBaeT IIIHpOKHe B03MOXHOCTH ,n;JI1I nepe,n;allH nOJIHOMOllHIi
MeCTHbIM OpraHaM rocy,n;apCTBeHHoro ynpaBJIeHHlI HJIH 4(OpraHaM MecTHoro caMoynpaBJIeHHlI»,
KOTOPaJI 4(OC~eCTBJIlIeTClI HaCeJIeHHeM Henocpe,n;CTBeHHO nyTeM BbI6opOB, a TaKXe lIepe3
BbI60pHbIe H ,n;pyrne opraHbI MeCTHoro caMoynpaBJIeHHg [ ... ], YCTaHoBneHHhIe 3aKOHOM,.
(CTaTbll    89).   B paMKax TaKoIi CHCTeMbI nepe,n;allH nOJIHOMOllHIi BepTHKaJIhHaJI HepapXHlIeCKa.Sl
CHCTeMa HClIe3aeT H MeCTHbIe opraHbI Ha,n;eJI.SIIOTC.SI HCKJIIOlIHTeJIhHhlM npaBOM peIIIaTb BonpOCbI,
OTHOClIIIJ;HeClI K HX cq,epe Be,n;eHH.SI. O,n;HaKO Tame opraHbI MeCTHoro caMoynpaBJIeHH.SI eIIJ;e
npe,n;CTOHT C03,n;aTb.


45.           YpoBeHh .lleueHTpaJI03auH0. Tenepb Heo6xo,n;HMO peIIIHTb, KaKOMY YPOBHIO (HJIH
YPOBH.SIM) a,n;MHHHCTpaTHBHO-TepPHTOpHaJIbHbIX e,n;HHHIJ; MOryT 6hITb nepe,n;aHbI 3TH
nOJIHOMOllHlI. COrJIaCHO CTaTbe                89   KOHCTHTYIJ;HH, MeCTHoe caMoynpaBJIeHHe 4(OC~eCTBJI.SIeTC.Sl
[ .•. ] B CeJIbCKHX H ropo,n;CKHX MeCTHblX C006lIJ;eCTBax, OXBaTbIBaIOIIJ;HX TepPHTopHH, Ha KOTOPbIX
KOMnaKTHO npOXHB8IOT rpynnbI HaCeJIeHH.SI,.. TaKHM o6pa30M, C03,n;aIOTC.SI oJIarOnpHlITHbIe
YCJIOBH.SI ,n;JI.SI C03,n;aHH.SI HOBbIX HaCeJIeHHbIX nyHKTOB. 3TO MoxeT 6bITb XOPOIIIHM HallanOM,
nOCKOJIbKY HMeHHO Ha 3TOM ypOBHe MOXHO OXH,n;aTb HaHOOJIee aKTHBHYIO ,n;e.SlTeJIbHOCTH



~'OJUtaKO B cocraBe o6nacreil MOJICe'T HaXO;nHTl>Cll ueJILIil PM e,wrHHll; 6011ee HH3KOro YPOBHJI. ItOlllf'tecrBO ItOTOpl>lX npeBbIIllaeT
olt6hI'1HYIO caoPMY ynpaBJllieMOCTH" (T.e. KOJIH'leCTBO Cy60p,wrHHPOBaHHI>IX e,wtHHll;, npH npeBbIllIeHHH KOTOPOro CHH:JICaeTCJI
3q,q,eKTHBHOCTI> ynpaBJleHHJI).
                                               - 20-

opraHOB MeCTHoro caMoynpaBJIeHHjI. KaK yxe OTMe"laJIOCb, HMeHHO Ha 3TOM ypoBHe
rocy~apcTBeHHble CJIYX6bI H30 ~lljI B ~eHh Henocpe~cTBeHHo B3aHMO~eHCTBYIOT C HaCeJIeHHeM
(KoTopoe nOJIh3yeTCjI KOMMYHaJIbHbIMH YCJIyraMH, IIIKOJIaMH, nOJIHKJIHHHKaMH), H n03TOMY
HMeHHO 3~eCh opraHbI MeCTHoro caMoynpaBJIeHHjI MOryT YCTaHoBHTh B ~OCTaTO"lHOH CTeneHH
060CHOBaHHble npHOpHTeTbI OTHOCHTeJIbHO xapaKTepa H 06'LeMa yc.rryr H aKTHBHO yqaCTBOBaTh B
pa3pa60TKe nOJIHTHKlI H B M06HJIH3aII.HH pecypcoB, He06xo~MhIX MjI npOBe~eHHjI 3TOH
nOJIHTHKlI.


46.       qTO KaCaeTCjI MHHHMaJIhHOrO pa3Mepa ~HHHCTpaTHBHo-TeppHTOpHaJIhHOH
e~HHHII.hI, 6hIJIO 6bI II.eJIeC006pa3HhIM, eCJIH 6hI Ha Ha"laJIhHOH CT~HH TOJIhKO OpraHLI
rocy~apCTBeHHOrO ynpaBJIeHHjI ropO~OB, 06JIaCTeH H paHoHoB 6hIJIH npeo6pa30BaHbI B
MYHHII.HnaJIHTeThI. E~HHII.bI 60JIee HH3KOro ypOBlljI ~OJIJKHbI OCTaThCjI 6e3 H3MeHeHHH. ITPH
TaKOH CHCTeMe ~MHHHCTpaTHBHO-TePPHTOpHaJIhHOe ~eJIeHHe CTpaHbI 6y~eT opraHH30BaHO no
06pa3II.Y, xapaKTepHOMY MjI CTPaH co 3Hat£HTeJIhHOH TeppHTopHeH H HH3KOH IIJIOTHOCThlO
HaCeJIeHHjI (HanpHMep, CIIIA HJIH CTPaHLI MarpH6a). B paMKax TaKOH CHCTeMhI IOPHC~KIJ,HjI
opraHOB MeCTHoro CaMoynpaBJIeHHjI He     Bcer~a   OXBaTbIBaeT BCIO TeppHTopHIO CTPaHLI,       HHor~a

orpaHHt£HBUCb paHOHaMH, t£HCJIeHHOCTh HaCeJIeHHjI KOTOPbIX ~OCTaTOt{Ha J.Ulj{ TOro, "IT06hI
MOJKHO 6hIJIO 060CHOBaTh C03~aHHe Tex HJIH HHhIX rocy~apcTBeHHhIX CJIyx6, H KOTophle
06JI~aIOT ~OCTaTOt{HbIMH HaJIOrOBO-6IOlUKeTHbIMH B03MOJKHOCTjlMH MjI q,HHaHCHpOBaHHjI 3THX
CJIYx6. HanpHMep, MaTepHaJIhHO-TeXHH"IeCKOe 06CJIYJKHBaHHe CeJIbCKlIX Jlopor MoxeT 6hITh
BnOJIHe JlOCT}'IIHbIM J.Ulj{ JlOCTaTOt{HO rycToHaCeJIeHHhIX CeJIhCKlIX paHOHOB, O~HaKO MO)KeT
OKa3aThCjI He no KapMaHY MjI paifOHOB C HH3KOH IIJIOTHOCThlO HaCeJIeHHjI.


47.       c)YHKUHH OpraHOB MeCTHoro caMoynpaBJIeHHSI. ~ana30H q,yHKIJ,HH, BbmOJIlljIeMhIX
MeCTHhIMH OpraHaMH BJIaCTH Ka3aXCTaHa (BKJIIO"IU 3JlpaBOOXpaHeHHe H o6pa30BaHHe,
KOMMYHaJIhHbIe yCJIyrn H TpaHcnopT (CM. naparpaq,        38»,   jlBJIjleTCjI ~OCTaTO"lHO mHPOKllM,
O~HaKO, XapaKTepHhIM MjI MHornx CTpaH 03CP. Co BpeMeHeM 60JlbmHHCTBO 3THX q,YHKIJ,HH
MOryT 6hITh nepeJlaHbI opraH aM MeCTHoro caMoynpaBJIeHHjI.


48.       TPH CTaTbH pacxo~OB, cpe~cTBa Ha KOTophIe B HaCTOjllIJ.ee BpeMjI BhlJleJljlIOTCjI H3
MeCTHhIX 61O,IUKeTOB, 3aCJIYJKHBalOT 60JIee BHHMaTeJIhHOrO paccMOTpeHHjI. Bo-nepBhlx,
He06xo~HMO paccMoTpeTh Bonpoc 0 pa3Mepe Cy6CHJlHH, npe~OCTaBJIjleMhIX B nopjlJlKe
COII.HaJIhHOrO o6eCne"leHHjI. ECJIH 3TH Cy6CHJlHH 6YJlYT COXpaHeHbI, TO HX CJIe.uyeT Ct£HTaTh
OJlHHM H3 B~OB nepepacnpe~eJIeHHjI pecypCOB. B CBOIO O"lepe~, nepepacnpeJleJIeHHe
C"IHTaeTCjI BHJlOM ~ejlTeJIhHOCTH, KOTOPU JlOJIJKHa OCYlIJ.eCTBJIjlThCjI B 60JIee-MeHee e~HOM
nOPMKe no BceH TeppHTopHH CTpaHhI H n03TOMY BXOJlHTh B 06j13aHHOCTH II.eHTpaJIbHoro
npaBHTeJIhCTBa. TaKllM 06pa30M, 60JIbmHHCTBO 3TH X IIJIaTeXeH JlOJlJKHhI OCTaBaThCjI
06j13aHHOCTblO rocy~apCTBa. BO-BTOPhIX, MeCTHhIe opraHbI He OTBe"laIOT 3a CTpOHTeJIhCTBO H
MaTepHaJIhHO-TeXHH"IeCKOe 06CJlYJKHBaHHe ~opor B CBoeH IOpHC~KIJ.HH, "ITO, KaK npaBHJlO,
BXOJlHT B 06j13aHHOCTH MeCTHhIX opraHOB B CTpaHax 03CP. BTopOCTeneHHhle ~oporH BnOJlHe
MOJKHO nepeJlaTh B Be~eHHe MeCTHhIX OpraHOB.      Ii   B-TpeTbHX, MeCTHhle opraHhI npe~OCTaBJlj{IOT
OCHOBHYIO "IaCTh YCJIYr, CBjl3aHHhIX C 06pa30BaHHeM H 3~aBOOXPaHeHHeM. B CTpaHax 03CP
II.eHTpaJIhHOe npaBHTeJIhCTBO npO~OJlXaeT HrpaTb 3Ha"lHTeJlhHYIO POJlh B 3THX 06J1aCTjlX
~ejlTeJIhHOCTH.



49.       3Ta nepe~a"la nOJlHOMOt£HH MeCTHbIM opraH aM He npOHCXOJlHT 3a OJlHH ~eHb. 3TO
MO)KeT 6bITh pe3YJlhTaTOM npOII.eCca IIOCTCIICHHbIX IIpco6pa30B8HHH. 3TOT rrpOII.eCC nepe~at£H
nOJIHOMOt£HH MoxeT npOXOJlHTh B CO"leTaHHH C pa3BHTHeM B03MOJKHOCTeH J.Ulj{ aBTOHOMHoro
ynpaBJIeHHjI H BHe~peHHjI HOBhIX ~eMOKpaTH"IeCKHX npoII.eJlYP Ha MeCTHOM ypOBHe. BepOjiTHO,
                                                   - 21 -

BJIaCTHM CJIe~eT HaqaTh C Pa3BHTIDI OrpaHHqeHHOrO Kpyra <pymmHH, HarrpHMep, C rOpO,n;CKOH
HH<ppaCTPYKTYPhi (BO,n;OCHa6JKeHHe, u:eHTpaJIhHOe OTOIIJIeHHe, OCBemeHHe YJIHU:, y60pKa MYcopa
H 06meCTBeHHbIH TpaHCrrOPT). ,n;eTCKHX Ca,AOB. yqpeJK,D;eHHH KYJIhTYPhI H ,n;ocyra H HeKOTOphIX
rroTpe6HTeJIhCKHX yCJIyr. TaKOH rraKeT MOJKeT rrpe,n;CTaBJIJITh OKOJIO      1,5   rrpou:eHTa BBn. Ha
CJIe~IOmeH CTa,AHH B Be,n;eHHe MeCTHhIX opraHOB MOJKHO rrepe,n;aTh ,n;oporn MeCTHoro 3HaqeHHH
H HeKOTophie yqpeJK,D;eHHH 3,n;paBOOXpaHeHHH. Ha rrOCJIe,n;YIOmHX CTa,r(HHX rrpou:ecca BJIaCTHM
CJIe~eT paccMoTpeTh B03MOJKHOCTh ,n;eu:eHTpaJIH3aU:HH HeKOTophIX <PYHKI{HH, CBH3aHHhIX C
06II{HM06pa30BaHHeM.


50.          06H3aHHOCTH OpraHOB MeCTHoro caMoynpaBJIeHHH He Bcer,n;a orpaHHBaIOTCH
KOHKpeTHhIM rrepeqHeM <PYHKI{HH. ComaCHO KOHCTHTYU:HH. MeCTHhle opraHhI OTBeqaIOT 3a
pemeHHe «BorrpOCOB MeCTHoro 3HaqeHHH ... He o6H3aTeJIhHO YCTaHaBJIHBan Kpyr 3THX
BorrpOCOB. npaBHTeJIhCTBa MHornx eBporreHcKHx CTpaH (BKJIIOqaH repMaHHIO, ~paHI{HIO.
nOPTYraJIHIO. HcrraHHIO H HTaJIHIO) CTapaIOTCH C03,n;an TaKHe YCJIOBHH, B KOTOPhIX MeCTHhle
OpraHhI CMOryT opraHH30BaTh CBOIO ,n;eHTeJIhHOCTh B COOTBeTCTBHH C rroTpe6HocTHMH
HaCeJIeHHH.    AJnl   3Toro MeCTHhle opraHhI Ha,AeJIHIOTCH 06II{HMH rrOJIHOMO~HMH rro pemeHHIO
Bcex BorrpOCOB MeCTHoro 3HaqeHHH. nO,n;pa3YMeBaeTcH. qro TaKHe rrOJIHOMOqHH
pacrrpOCTpaHHIOTCH Ha Bce <PYHKlI,HH. He BhIIIOJIHHeMhle opraHOM rocy,n;apCTBeHHoro yrrpaBJIeHHH
BhlmeCTOHmero YPOBHH. B 60JIhIIIHHCTBe CTpaH MeCTHhIM opraH aM TaKJKe rrepe,n;aeTCH PH):(
,n;pyrHX <pymmHH B 06H3aTeJIhHOM rropH):(Ke (COH3MepHMhIX C HMeIOmHMHCH peCYPCaMH), TaKHX
KaK YJIyqmeHHe caHHTapHo-rHrneHHqeCKHX YCJIOBHH. rrpOTHBOrrOJKapHaH 6e30rraCHOCTh.
MaTepHaJIhHO-TeXHHqeCKOe 06CJIYJKHBaHHe ,n;opor MecTHoro 3HaqeHHH H 06meCTBeHHhIH
TpaHcrropT). qTO KacaeTCH Ka3aXCTaHa. TaKHe <PYHKn:HH MOryT pa3JIHqaThCH MeJK,r(Y
ropo,n;CKHMH (HarrpHMep. y60pKa Mycopa) H CeJIhCKHMH (HanpHMep, peryJIHpOBaHHe
CeJIhCKOX03HHCTBeHHOH ,n;eHTeJIhHOCTH) OpraHaMH MeCTHoro caMoyrrpaBJIeHHH.


51.          BOJIee TOro, B pe3YJIhTaTe C03,n;aHHH opraHOB MeCTHoro caMoyrrpaBJIeHHH rrOHBHTCH
Heo6xo):UfMOCTh B ,n;y6JIHpOBaHHH 8.,l{MHHHCTpaTHBHbIX CTPYKTYp. PyKoBO,r(HTeJIh MecTHoro
opraHa BJIaCTH MoxeT o,n;HOBpeMeHHO yrrpaBJIHTh CJIYX6aMH, KOTopble JIH60 Ha rrpOTHJKeHHH
rrepeXO,r(Horo rrepHo,n;a JIH60 Ha rrocToHHHOH OCHOBe 6y,n;YT HaXO,r(HTbCH B IOPHC,r(HKI{HH ,n;aHHoro
opraHa BJIaCTH, H MeCTHbIMH OT,n;eJIeHHHMH rocY,Il;apCTBeHHhIX yqpeJK,D;eHHH. npeHMymeCTBa
TaKOH CHCTeMLI «HHTerpHpOBaHHhIX MeCTHhlX yqpeJK,D;eHHH" 3aKJIIOqaIOTCH B TOM, ~O ee
,n;OCTaTOqHO rrpOCTO pa3pa6oTaTL H OHa crroco6cTByeT KOOp,ll;HHaU:HH H KoorrepaU:HH MeJK,r(Y
yqpeJK,D;eHHHMH, BhIIIOJIHHIOmHMH pa3JIH~ble rOCY,Il;apCTBeHHhle <PYHKlI,HH B rrpe,n;eJIax TOH HJIH
HHOH IOPHC,n;HKI{HH. npH TaKOH CHCTeMe PYKOBO,r(HTeJIh MeCTHoro opraHa 6y,n;eT OTBeqaTh 3a
o,n;HOBpeMeHHoe HCrrOJIHeHHe ,n;BYX 61O,Il;:>KeTOB: rocy,n;apCTBeHHoro 61O,Il;:>KeTa B rrpe,n;eJIax CBoeH
IOPHC,r(HKI{HH H 61O,Il;:>KeTa MeCTHoro opraHa BJIaCTH, YTBepJK,D;eHHOrO MeCTHhIM COBeTOM (CM.
rraparpa<p   74).

52.          O,r(HaKO O,n;HHM H3 KOHKpeTHhIX acrreKTOB rrpeo6pa30BaHHH MeCTHhIX opraHOB
rocy,n;apCTBeHHoro yrrpaBJIeHHH B opraHhI MeCTHoro CaMoyrrpaBJIeHHH HBJIHeTCH TO, qTO B
OTHomeHHH rrOCJIe,n;HHX He ,n;OJIJKHa ,n;eHCTBOBaTL CHCTeMa HOpM. ECTeCTBeHHO, B HeKOTophIX
06JIaCTKx,n;eHTeJIhHOCTH u:eHTpaJILHOe rrpaBHTeJIhCTBO ,n;OJIJKHO rrpo,n;OJI:>KaTb YCTaHaBJIHBaTh
06mHe rrpaBHJIa H HOPMbI, ,Il;eHCTBYIOIIJ;He rro BceH CTpaHe (HanpHMep, IIIKOJIbHYIO rrporpaMMY),
a MeCTHble opraHbI ,n;OJIJKHbI C06JIIO,n;an 3aKOHbI rocy,n;apCTBa. O,n;HaKO rrpH BbIIIOJIHeHHH
<PyHKll,HH B Tex o6JIacTJlx ,n;eHTeJIbHOCTH, r,n;e MeCTHhIM opraHaM rrpe,n;OCTaBJIeHhI Bce
rrOJIHOMOqHH, HOPMbI H rrpaBHJIa. ,n;eHCTBYIOmHe B rrpe,n;eJIax IOPHC,r(HKI{HH, ,Il;OJI:>KHbI
YCTaHaBJIHBaThCH MeCTHbIMH COBeTaMH, a He u:eHTpaJIbHLIM rrpaBHTeJIbCTBOM.
                                                       - 22-

53.        cJ>HHaBCHpOBaHHe OpraBOB MeCTHoro caMoynpaBJIeHIDI. HOBhIM opraHaM MeCTHoro
CaMoynpaB1IemUI nOTpe6YIOTC.sI OT.n;eJIhHble HCTOlffiHKH tPHHaHCHPOBaHH.sI. Cpa3Y JKe
He06xo.n;HMO nO,[(l{ePKHYTh, 'ITO B COOTBeTCTBHH co OnHCaHHhIM Bhrrne cu,eHapHeM nOCTeneHHhIX
H3MeHeHHH, nOTpe6HocTH MeCTHhIX opraHOB B tPHHaHcHpoBaHHH B03paCTYT nOCTeneHHO, no
Mepe PalBHTH.sI npOIJ,eCca nepe.n;atlH HM nOJIHOMOtlHH H paCIIDIpeHH.sI Kpyra HX 06.s13aHHOCTeH.
1l03TOMY HeT He06xo.n;HMocn B He3aMe)l;JIHTeJIhHOM npHHHTHH Bcex pemeHHH OTHOCHTeJIhHO
MeXaHH3MOB tPHHaHCHpOBaHH.sI opraHOB MeCTHoro CaMoynpaB1IeHH.sI.                     B   npOIJ,eCce nepe.n;atIH
onpe.n;eJIeHHhIX tPYHKIJ,HH MeCTHhIM opraHaM nepcneKTHBhl nOJIyqeHH.sI CTPaHOH
rocy.n;apCTBeHHhIX .n;OXO.n;OB .n;OJIJKHhI B 3HatlHTeJIhHOH CTeneHH H3MeHHThC.sI B pe3YJIhTaTe
3KOHOMHtleCKHX rrpe06pa30BaHHH, 'ITO npe.n;CTaBHT B HeCKOJIbKO HHOM CBeTe pa3JIHtlHhIe BH.n;hI
HHCTpYMeHTOB HaJIOrOBo-6IO,ll;JKeTHOH nOJIHTHKH. O.n;HaKo Ha npOT.sIJKeHHH Bcero npOIJ,eCca
He06xo)l;HMO npH.n;epJKHBaTbC.sI OCHOBOnOJIaraIOIIJ,ero npHHIJ,Hna: nepe.n;atla nOJIHOMOtlHH
opraH aM MeCTHoro CaMoynpaB1IeHH.sI .n;OJIJKHa npOH3BO)l;HTbC.sI TOJIbKO B COtieTaHHH C
BbI.n;eJIeHHeM HM He06xo)l;HMhIX pecypCOB.


54,        Pa3pa6aTbIBaJI CHCTeMY tPHHaHcHpOBaHH.sI OpraHOB MeCTHoro caMoynpaBJIeHH.sI
npaBHTeJIbCTBY CTpaHhI CJIe.n;OBaJIO 6bl coxpaHHTb BIJCOKy:IO CTeIIeHb BIJpaBHHBaHHJI
IIoTpe6HocTeH MeCTHhlX opraHOB rocy.n;apCTBeHHoro ynpaBJIeHHR B PalJIHtlHhIX tlaCT.sIX CTpaHbI.
3TO COOTBeTcTByeT He TOJIbKO Tpa.n;HIJ,H.sIM CTpaHhI, HO H nOHHTHIO CnpaBe)l;JIHBOCTH, B TOM
IIJIaHe 'ITO HaCeJIeHHe Pa3JIHtlHhIX pernOHOB, IIJIaT.sIIIJ,ee HaJIOm no O.n;HoH H TOH JKe CTaBKe,
.n;OJIJKHO nOJIh30BaTbCR O)l;HHaKOBbIM 06'beMOM yCJIyr.


55.        PemeHHe 3TOH 3a,n,atIH OCJIOJKH.sIeTC.sI TeM, tlTO IIOCTyrIJIeHHJI OT OCHOBHbIX HaJIOrOB,
B3HMaeMbIX B CTpaHe, B 3HallHTeJIbHOH CTeIIeHH CKOH.qeHTpHpOBaHIJ B HeCKOJIhKHX 06JIaCT.sIX
(CM. Ta6JIHIJ,y   8). 113   ro.n;a B ro.n; OKOJIO tleTBepTH Bcex 06JIaCTeH nOJIyqaIOT MeHee nOJIOBHHhI
Cpe)l;HeH no CTpaHe CYMMhI nOCTynJleHHH OT JII060ro H3 HaJIOrOB B paCtieTe Ha                    .n;ymy   HaCeJIeHH.sI.
Ilp06JIeMa KOHIJ,eHTpaI.J;HH HaJIOrOBhIX nOCTYIlJleHHH CTaHOBHTCR Bce 60JIee OCTPOH, 0 tleM
CBH,ll;eTeJIbCTByeT YBeJIHtleHHe cpe.n;Hero KBa,n,paTHtieCKOrO OTKJIOHeHH.sI 06IIJ,eH CYMMhI
HaJIOrOBhIX nOCTYIlJleHHH Ha .n;ymy HaCeJIeHHR Ha          50   npou,eHTOB C HatlaJIa .n;o KOHIJ,a
0603peBaeMoro rrepHo.n;a        (1992-1995). B   pe3YJIbTaTe pa3HHIJ,a MeJK,lJ.y 06JIaCT.sIMH, nOJIyqaIOIIJ,HMH
HaH60JIbmyIO H HaHMeHhmyIO CYMMY HaJIOrOBbIX nOCTYIlJleHHH B paCtieTe Ha .n;ymy HaCeJIeHH.sI,
KOTOPaJI B     1992   ro.n;y BbIpaJKaJIaCb K03tPtPHI.J;HeHTOM   1:5,   .n;OCTHrJIa K03tPtPHI.J;HeHTa   1: 15   B
1995 ro.n;y.   CTeneHb paCXOJK,lJ.eHH.sI OKaJKeTCR eIIJ,e Bblme, eCJIH cpaBHHBan He 06JIaCTH, a
pa:iloHhI pa3JIHtlHbIX 06JIaCTe:il.


56.        CTOJIb BhlCOKaJI CTeneHb KOHIJ,eHTpaIJ,HH 06YCJIOBJIeHa TeM, 'ITO HaJIOrH B3HM8IOTCJI B
OCHOBHOM C npOH3BO,aCTB8, a He IIO IIpHHI{HIIy pe3H,aCHTCTIJa HJIH MCCTOHa3HaIlCHHJI. HaJIor Ha
.n;OXO.n;bI tPH3HtleCKHX JIHI.J;, y.n;epJKHBaeMbl:il H33apa60THOH IIJIaTbl, B3HMaeTC.sI, KaK npaBHJIO, He
TaM, r.n;e JIIO)l;H JKHBYT, a TaM, r.n;e OHH pa60TaIOT. HaJIor Ha npH6bllb B3HMaeTC.sI, B OCHOBHOM,
B Tex 06JIaCT.sIX H ropo.n;ax, r.n;e pacnOJIOJKeHhI maBHhle OT.n;eJIeHH.sI npe.n;npH.sITHH. AKIJ,H3hI H
H,Il,C BlHMaIOTC.sI no npHHI.J;Hny npOHCXO:lK,ll;eHH.sI (T.e. TaM, r.n;e TOBap npOH3BO)l;HTC.sI HJIH
BnepBhle BB03HTC.sI B CTpaHY), a He no npHHIJ,Hny MeCTOHalHatleHH.sI (T.e. TaM, r.n;e 06JIaraeMhlH
HaJIOrOM TOBap tPaKTHtieCKH nOTpe6JI.sIeTC.sI). <l>HKcHpoBaHHhIH HaJIOr Ha nOJIb30BaHHe
npHpo.n;HhIMH pecypcaMH B3HMaeTC.sI TOJIbKO B Tex 06JIaCT.sIX, r.n;e ecn nOJIe3Hhle HCKonaeMhIe.
                                                               - 23-

             Ta6J1Hua 8: HanoroBble nOCTynJleHHSI B paC'IeTe Ha JlYIIIY HaceneHHSI B
                   P3.3JIH'IHbIX o6J1aCTSIx (B npoueHTax OT cpe}lHero 3Ha'leHHSl)

           OtinaCTJ>                                             1992             1993    1994         1995


           AKMOnHHCICllJI.                                       134.0           207.8    103.7       114.0
           AlCTlOtiHHCICllJI.                                     88.3            83.1    122.9       139.6
           A..nMaTHHCICllJI.                                      34.3            44.4     40.4        31.2
           An.rpayclCllJI.                                        89.8            94.1    351.1       223.7
           BOCTO'lHO-Ka3axCTaHCKIUI                              110.4           100.2    109.5       120.9
           JKaM6J>.\JICICllJI.                                    50.6            52.2     41.1        37.9
           JKe3B:a3raHCICllJI.                                   127.3            88.0    121.9       101.6
           3an!l,lUlo-KaJaxCTaHCICllJI.                           79.1            72.6     56.9        62.1
           Kaparall,I\HHclCllJI.                                 179.5           141.6    126.9       121.8
           K3J>.\JI-OpmmCICllJI.                                  34.3            35.4     40.6       42.2
           KO'leT8YCICllJI.                                       88.1            78.5    63.5         64.3
           KOCTaHaHCKIUI                                         129.6           103.3    76.8         92.5
           MaJIl'I>ICTSYCICllJI.                                 161.1           170.9    174.6       246.3
           lIsanoAllPclCllJI.                                    160.9           158.6    114.8       143.2
           CeBepHo-Ks3axcTaHCICllJI.                              86.2            85.7    64.6        60.4
           CeMHIlanaTHHCICllJI.                                   56.2            59.3    60.4         57.4
           TaJI..IlblKYPraHclCllJI.                               54.8            45.4    27.9         19.3
           TypraHclCllJl.                                        155.7            87.7    46.9         38.2
           IOlKJIo-Ks38CTaHCICllJI.                               56.1            57.9    52.7        52.8
           r. A..nMaThI                                          152.6           209.1   287.5        283.2
           CpeAHee 3HS'IeHHe                                     100.0           100.0    100.0       100.0
           ClleAHee Kll8.lIllaTH'leCKOe OTKJIOHeHHe              46.1             52.2    83.6        74.5
           .!l!:!ans30H (MSKC.lMHH.}                               5.2             5.9     12.6        14.6
           CooTHoweHHe

           C Dl!ellJ>WV1llHM rolloM

           C 1992 r.
                                                                   ...           81.8     56.3        90.7
                                                                   ...             ...      .. .      59.7

           HCTO'lHHICH: MHHHCTepCTlJO «pHHaHCOB H on;eHICH COTPY.IIHHKOB 6aHKa



57.         Eru.e xYJKe TO, 'ITO HaJIOrOBbIe lIOCTYIIJIeHHH He TOJIhKO HepaBHOMepHO
paClIpe~emllOTCH lIO reorpa<pH'IeCKHM perHOHaM, HO 3TO COOTHOIIIeHHe lIOCTOHHHO MeHHeTCH.
KaK lIoKa3auo Ha TaOJIHu.e                8,   H3 rO,IJ.a B ro,IJ. lIOCTOHHHO MeHHeTCH 3<p<peKTHBHoCTh coopa
HaJIOrOBhIX lIOCTyIIJIeHHH (KoTopaH H3MepHeTCH rryTeM cpaBHeHHH HaJIOroBhIX lIocTYIIJIeHHH B
paC'IeTe Ha,nymy HaCeJIeHHH B KaxQlOH H3 OOJIaCTeH co cpe;umM lIOKalaTeJIeM lIO cTpaHe). 3TO
eme oOJIee 3aMeTHO, eCJIH lIpOCJIe,IJ.HTh oOJIee lIPO,IJ.OJI.lKHTeJIhHhIH lIepHO,IJ. BpeMeHH (Ha TaOJIHu.e
-4    rO,IJ.a). ECTeCTBeHHO, 3TY H3MeH'lHBOCTh MOJKHO OT'IaCTH OO'hHCHHTh 3KOHOMH'IeCKHMH
IIOTpHceHHHMH, KOTOPhIM cTpaua IIO,IJ.BeprnaCh Ha IIpOTHJKeHHH 3Toro lIepHO,IJ.a. O,IJ.HaKO TaKasJ
                                                     - 24-

HeCTa6HJlbHOCTb xapaKTepHa WIJI 3KOHOMHKH cTpaHbI BCHJIY Y3KOH CnelUlaJIH3aIJ;HH pemoHoB Ha
npoH3BO)J;cTBe KOHKpeTHbIX BH)J;OB npO)J;YKlUlH (HanpHMep, 3epHa, Heq,TH, n;BeTHbIX MeTaJIJlOB),
nOCKOJlbKY n;eHbI Ha 3TH TOBapbI H 06'beM HX npOH3BO)J;CTBa TalOKe xapaKTepH3y:IOTC.sI
HeCTa6HJlbHOCTblO, JlH60 no npHqHHe nOCTO.slHHOrO H3MeHeHH.sI MHPOBbIX n;eH Ha 3TH TOBapbI
(HanpHMep, Ha n;BeTHbIe MeTaJIJlbI), JlH60 nOTOMY, 'ITO YCJIOBH.sI npOH3BO)J;CTBa (HanpHMep,
3epHa) BO MHorOM onpe)J;eJl.sllOTC.sI nOrO)J;HbIMH YCJlOBH.sIMH.


58.        COqeTaHHe HaJIOrOBIJX IIOCT}'ILlleHHii C POTaLCHHMH MO:>KeT n03BOJlHTb C6aJIaHcHpoBaTb
3a,IJ;a'lH BblpaBHHBaHH.sI nOTpe6HocTeH C orpaHHqeHHbIMH B03MO:>KHOCT.sIMH )J;JI.sI nonyqeHH.sI
nocTynneHHH. B fJlaBe      VII   BTOPOH qaCTH pa60TbI 06cY:>K)J;alOTC.sI pa3JIH'lHble BapHaHTbI
HaJIoro06J10:>KeHH.sI H BblCKa3bIBaeTC.sI MHeHHe 0 TOM, 'ITO B3HMaeMbIe B HaCTO.slIIJ,ee BpeM.sl
«MeCTHblelt HaJIOm, a TalOKe 3Ha'lHTeJlbHa.sl qaCTb HaJIOrOB Ha )J;OXO)J; q,H3HqeCKHX JlHn; )J;OJl:>KHbI
6bITb B nepBYlO Oqepe,lJ;b nepe,lJ;aHbI MeCTHbIM OpraHaM. B qaCTHOCTH, npOBO,lJ;HMa.sI peq,opMa
HaJIOra Ha ,lJ;OXO,lJ;bI q,H3HqeCKHX JlHn; ,lJ;OJl:>KHa n03BOJlHTb YCTaHOBHTb TaKOH nOpjl,lJ;OK, npH
KOTOPOM nOCTYllJIeHH.sl OT HaJIOra 6yAYT npe,lJ;Ha3HaqaTbC.sI TeM opraHaM, KOTopble B3HMalOT
3TOT HaJIOr. BYAYIIJ,HM opraHaM MeCTHoro caMoynpaBJIeHH.sI )J;OJl:>KHO 6bITb n03BOJleHO
YCTaHaBJIHBaTb CTaBKH BbIllleynOM.sIHYTbIX HaJIOrOB (B cnyqae C HaJIOrOM Ha ,lJ;OXO)J;bI q,H3HqeCKHX
JlHn; - B nOpjl,lJ;Ke )J;onOJlHHTeJlbHOH CTaBKH) B npe,lJ;eJlax, ,lJ;eHCTBYlOIIJ,HX no BceH CTpaHe.


59.       3TH HaJIOrOBble nOCTYnJIeHH.sI )J;OJl:>KHbI )J;onOJlH.slTbC.sI POT8./.UfHMH Ha BblpaBHHBaHHe
pacxopoB. ECJlH npaBHTeJlbCTBO CTpaHbI HaMepeHO nOJlHOCTblO JlHKBH)J;HpOBaTb pa3J1H'lH.sI B
HaJIH'lHH pecypcOB H nOTPe6HOCT.sIX, He06xo,lJ;HMO pa3pa60TaTb COOTBeTCTBy:IOIIJ,y:IO q,OPMYJIY, no
KOTOPOH 6Y,lJ;eT paCC'lHTbIBaTbC.sI pa3Mep ,lJ;OTan;HH. TaK, B BeJlHK06pHTaHHH H illBelUlH
HCnOJlb3YlOTC.sI MeXaHH3MbI ,lJ;OTan;HH, 06eCneqHBalOIIJ,He HaJIH'lHe Y Bcex MeCTHbIX opraHOB
rocY)J;apCTBeHHOrO ynpaBJIeHH.sI B03MO:>KHOCTeH )J;JI.sI q,HHaHCHpOBaHH.sI CTaH)J;apTHOro 06'beMa
YCJlyr, eCJlH 3TH MeCTHbIe OpraHbI B3HMaroT MeCTHble HaJIOm no CTaH,IJ;apTHbIM CTaBKaM.
O)J;HaKO B 06eHX CTpaHax YCTaHOBJleHHe CTaBOK HaJIOrOB (B onpe,lJ;eJleHHblX npe,lJ;eJlax) H
onpe,lJ;eJleHHe 06'beMa yCJlyr OCTaBJIeHO Ha YCMOTPeHHeMeCTHbIX opraHOB. Bo BTOPOH qaCTH
pa60Thl TalOKe 06CY:>K)J;alOTC.sI )J;PyrHe BapHaHTbI. BJlaro)J;ap.sl COqeTaHHlO HaJIOrOB H )J;OTan;HH,
OpraHbl MeCTHOrO CaMoynpaBJIeHH.sI B Ka3aXCTaHe npaKTHqeCKH He 6y,lJ;yT OTJlHqanC.sI OT
MeCTHbIX opraHOB B CTpaHax 03CP, KOTopble nOJlyqalOT B cpe)J;HeM OKOJlO                43   npOn;eHTa
nOCTYnneHHH, He CB.sI3aHHbIX C Kpe)J;HTaMH, OT HaJIOrOB H          39   npOn;eHTOB B BH)J;e )J;oTan;HH.



                           D. CHCTeMbI rOCY.llapCTBeHHoro ynpaBJIeHHJI

YnpasneHHe 61O.ll)keTOM

60.       BJlaCTH Bce 60Jlee OneTJlHBO OC03HalOT He06xo)J;HMOCTb KopeHHoro H3MeHeHH.sI
CTapbIX rocY)J;apCTBeHHbIX CTPYKTYP H MeTO,lJ;OB pa60TbI. O)J;HaKO B3aHMOCB.SI3b Me:>K)J;Y 3TOH
n;eJlblO H peq,opMoH MeXaHH3MOB ynpaBJIeHHg rocY)J;apCTBeHHblMH pecypcaMH rOpa3,lJ;0 MeHee
OqeBH)J;Ha. O,lJ;HaKO Me}K)J;YHapO)J;Hbm onbIT nOKa3b1BaeT, tITO 3q,q,eKTHBHble 61O)J;:>KeTHble
npOn;eAYPbl MOryr 6bITb pewaroIIJ,HM YCJlOBHeM H HHCTpYMeHTOM peq,opM rOCY,lJ;apCTBeHHhlX
CJIyx6.


61.       .0;0 HaCTO.slIIJ,erO BpeMeHH BeCb 61O)J;)keTHbIH npon;ecc Ha Bcex CTa,IJ;H.sIX onpe,lJ;eJl.SIJlc.sI
npHHIUlIIOM lIaccHBHoro paClIpepeJIeHHH HMelOIIJ,HXC.sI pecypCOB Me:>K)J;Y )J;eHcTBYlOIIJ,HMH
CTPYKTYpaMH H CJIY:>K6aMH, PYKOBO,lJ;CTBY.SICb KOTOPblM )J;eHcTBOBaJI cOBeTcKHH rOCoIOlOKeT               ()J;JI.SI
CIIpaBKH CM. pa60TY «HaCJIe)J;He COBeTCKoro BpeMeHH B CHCTeMe rOCY)J;apCTBeHHbIX q,HHaHCOB
                                                 - 25-

Ka3aXCTaHa-, nO.IJ.roTOBJIeHH}'IO O,IJ.HOBpeMeHHO C HaCTOMIIJ;eH pa6oToH).      B   paMKaX cTapoH
CHCTeMbI nOPMOK q,HH3.HCHpOBaHHM onpe.IJ.emmCM peaJIbHO HMeIOIIJ,HMCM pecypcaMH.
Heo6xo,IJ.HMO OTKa3aTbCM OT TaKoH JIOrHKH H PYKOBO.IJ.CTBOBaTbCM COBepIIIeHHO HHLIM
npHHIJ;HnOM - IIpHHI{HIIOM oT6oP8, HJIH BbI60pa MeJK,IJ.Y KOHKYPHPYIOIIJ,HMH MeJK,IJ.Y C060H
crry:>K6aMH H CTPYKTYPaMH - B pe3YJIbTaTe lIero .u;eMTeJIbHOCTb 3THX CTPYKTYP 6Y.IJ.eT
onpe.IJ.eJIjlTbCM npHOpHTeTaMH nOJIHTHKH H 6IO,lJ.)KeTHLIMH OrpaHHlIeHHMMH, npHlIeM Te
e,IJ.HHHIU>I, KOTopbIe OKaJKYTCM HaHMeHee 3q,q,eKmBHbIMH B nponecce oT60pa, MOryT 6bITb
JIHKBH,lJ.HpOBaHLI.   B COOTBeTCTBHH   C 3THM HOBbIM npHHnHnoM, nopMoK q,HHaHcHpoBaHHM
onpe.IJ.eJIjleT peaJIbHhIH 06'beM pecypcoB. 3q,q,eKTHBHoe q,YHKUHoHHpoBaHHe TaKoH CHCTeMhI
B03MO:>KHO B TOM cJIY'lae, Kor.u;a npone.u;ypbI 6IO,lJ.)KeTHOH .IJ.eMTeJIbHOCTH Ha BCeX YPOBIDIX
Opr3.HOB rocy.u;apCTBeHHOrO ynpaBJIeHHM Onpe.IJ.eJIjlIOT npOnecc BbI60pa MeJK,IJ.Y HaH60JIee
npHopHTeTHbIMH HanpaBJIeHHMMH .IJ.eXTeJIbHOCTH.


          nO.IJ.rOTOBKa 61O.ll)l(eTa


62.       CHTYauHSI B HacroSlIUee BpeMSI.      IIpone.u;ypaM nOWOTOBKH 6IO,lJ.)KeTa He XBaTaeT
H36HpaTeJIhHOCTH. Ha nepBOH CTa,nHH nOWOTOBKH COCTaBJIjIeTCM CMeTa pacxo.u;OB nyTeM
II8CCHBHoro arpempOBaHHJI 6IO,lPKCTHIJX 3aJIBOK, COCT8BJIJICMbIX B COOTBCTCTBHH C
YCTaHOBJICHHbIMH HOPM8MH, KOTopble HCnOJIb3YIOTCM ,IJ.JIjI paClIeTa «noTpe6HOCTeH B cpe.u;CTBax»
Ha q,HH3.HCHpOBaHHe onpe.IJ.eJIeHHOrO 06'beMa rOCY.IJ.apCTBeHHbIX ycrryr.      B   paMKax CHCTeMbI
nrraHOBOH 3KOHOMHKe 3TOT 06'beM onpe.u;eJIjlJICM q,YH,lJ.aMeHTaJIbHLIMH peIIIeHHMMH,
npHHHMaeMbIMH B nponecce neHTpaJIH30BaHHOro nJIaHHpoBaHHM.               B   HaCTOMIIJ;ee BpeMM OH
onpe.IJ.eJUleTCM JIHIIIb HHepnHeH. HeCMOTpM Ha KPH3HC H pacTym;yIO nponaCTb Me.IK,IJY
HopMaTHBHLIMH nOTpe6HOCTMMH B pecypcax H HX HaJIHq}{eM, nOMep:>KaHHe (no KpaHHeH Mepe
Oq,HUHIUIbHO) CHCTeMbI HOpM YKpefiJIj{eT YBepeHHOCTb rocy.u;apCTBeHHbIX yqpeJK)J,eHHH Bcex
YPOBHeli B TOM, l.JT0 OHH «HMeIOT npaBO- Ha nOJIY'leHHe onpe.u;eJIeHHOrO 06'beMa pecypCOB, l.JTO
3aTPY,lUureT CTPYKTYPHble npeo6pa30BaHHM.


63.       TOT q,aKT, liTO MHO:>KeCTBO 6IO,lJ.)KeTHbIX yqpeJK)J,eHHH yqaCTBYIOT B nponecce
no.u;roToBKH 6IO,lJ.)KeTa, ycyry6JIMeT np06JIeMbI, CBM3aHHble C He.u;OCTaTOtIHOH rH6KOCTbIO
CTPYKTYPhI. OCHOBHbIM KOMnOHeHTOM COBeTCKOH CHCTeMbI roCY.IJ.apCTBeHHbIX q,HHaHCOB
MBJUleTCM CMCT8, HJIH .u;OKyMeHT 0 pacnpe.u;eJIeHHH pacxo.u;OB. KaJK)J,ax CMCT8 COCTaBJIjleTCM
6IO,lJ.)KeTHbIM yqpeJK)J,eHHeM. TaKHX yqpe:>K)l;eHHH MO:JKeT 6LITb BeJIHKOe MHO:JKeCTBO.
PecnyMHKaHcKHH YPOBeHb opraHOB roCY.IJ.apCTBeHHoro ynpaBJIeHHX HaC-qlfTLIBaeT 60JIee
2 200 6IO,lJ.)KeTHLIX yqpeJK)J,eHHH, a Ha MeCTHOM YPoBHe MOryT .IJ.eHCTBOBaTb .IJ.O
40000 6IO,lJ.)KeTHbIX yqpeJK)J,eHHH. Ha nepBoH CTa,nHH nponecca no.u;rOTOBKH 6IO,lJ.)KeTa       KaJK)J,Oe
6IO,lJ.)KeTHOe yqpeJK)J,eHHe COCTaBJIMeT CBOIO 6IO,lJ.)KeTHYIO 3axBKY (ocHOBaHHyIO Ha
YCTaHOBJIeHHLIX HopMax). TaKHe 3aMBKH nO.IJ.P06HO He npoBepMIOTCM, a nonpocTY CKJIa,IJ.bIBaIOTCM
npH COCTaBJIeHHH nepBoro npoeKTa 6IO,lJ.)KeTa. Ha 3TOM YPOBHe arpernpOBaHHM MHHHCTepCTBO
q,HH3.HCOB rrpaKTHlIeCKH He HMeeT B03MO:>KHOCTH caMOCTOMTeJIbHO YCTaHOBHTb
q,YHKUH:OHaJIbHble rrpHOpHTeTbI cpe,IJ.H MaCChI 6IO,lJ.)KeTHbIX 3axBOK. OTpaCJIeBble MHHHCTepCTBa
rr:paKTHlIeCKH He rrpHHHMaIOT yqacTHM B 3TOM rrponecce. OHH MOryT nbITaThCM OTCTOMTb CBOIO
CMCTY, o.u;HaKO OHH, KaK rrpaBHJIO, He peIIIaIOTCM B3MTb Ha ce6M Be.u;ym;yIO pOJIb B rrponecce
06cY:>K)l;eHHM 6IO,lJ.)KeTOB .u;pyrnx yqpeJK)J,eHHH ceKTopa, HaXO)l;j{IIJ;HXCM B HX Be.u;eHHH. HanpHMep,
MHHHCTepCTBO 06pa30BaHHM COCTaBJIMeT 6IO,lJ.)KeTH}'IO 3axBKY Ha CBOH ynpaBJIeHHM H OT.IJ.eJIhI,
HO, KaK rrpaBHJIO, He OTBellaeT 3a COCTaBJIeHHe CMeT     126   6IO,lJ.)KeTHLIX yqpeJK)J,eHHH,
HaxO)l;j{IIJ,HXCM B ero Be.u;eHHH Ha pecny6JIHKaHCKoM ypOBHe, a TaM 60JIee - CMeT TbICMlI .u;PyrHx
yqpeJK)J,eHHH, HaXO)l;j{IIJ;HXCM B Be.IJ.eHHH MeCTHhlX opraHOB rocy.u;apCTBeHHoro ynpaBJIeHHM.
                                                     - 26-

64.        B 3TOM npou;ecce npaKTHl.{eCKH He yqHTbIBaeTClI o6m;alI M8KP03KOHOMHr[eCK8.J1
CHTyaIUIJI, Ha q,oHe KOTOPOH ,IJ,OJDKeH HCnOJIHlIThClI 6JO,lJ.}KeT, H npaKTHl.{eCKH He
npe.n.npHHHMaeTClI C03HaTeJIhHhIX nOIThITOK cnrraHHpOBaTh paCXO,lJ,hI B COOTBeTCTBHH C l.JeTKO
YCTaHOBJIeHHhIMH npHopHTeTaMH SKOHOMHl.JeCKOH nOJIHTHKH. JIHIIIh Ha BTOPOH CTa,IJ,HH pa3Mep
6JO,lJ.}KeTHhIX 3al1BOK COKpam;aeTClI H npHBO,IJ,HTClI B COOTBeTCTBHe C np0rH03HPyeMhIM 06'heMOM
pecypCOB. O,IJ,HaKO ,IJ,aJKe Ha STOH CTIlJUIH 6JO,lJ.}KeT He nporpaMMHpyeTclI B COOTBeTCTBHH C
npHopHTeTaMH nOJIHTHKH. Heo6xo,IJ,HMOe COKpam;eHHe paCXO,IJ,OB, B OCHOBHOM, npOH3BO,IJ,HTClI
He no q,YHKIJ;HOHaJIhHOMY npH3HaKY, a B 3aBHCHMOCTH OT xapaKTepa paCXO,IJ,OB (HanpHMep,
paCXO,IJ,hI Ha 3apa6oTHYJO nrraTY, npOH3BO,IJ,CTBeHHhle pecypCbI, TpaHcq,epTbI). ECTeCTBemlO,
HCnOJIh3yeMalI CHCTeMa KJI8CCHQJHK8;qHH 6IO,lPKeT8 He cnoco6cTByeT ynpom;eHHJO npou;ecca
q,YHK.IJ;HOHaJIhHOrO oT6opa: Ha 3aKJIJOl.{HTeJIhHhIX CTa,IJ,HlIX npe,IJ,JIaraeMhle 6JO,lJ.}KeTHhle
aCCHrHOBaHHlI pacnpe,IJ,eJIllJOTClI no "'KOMnJIeKCaMlO ceKTopOB H no 3KOHOMHl.JeCKOMY npH3HaKY,
HO He B COOTBeTCTBHH C q,YHKlUfeH, l.{TO cym;eCTBeHHO 3aTPY,IJ,HlIeT npou;ecc npHHlITHlI
pemeHHH.


65.        YcoBepweHCTBOBaHUe 6IO.lVlCeTHOrO npouecca.                  TIepBhIM marOM Ha nyTH
npe06pa30BaHHlI 6IO,lPKeTHOrO IIpo;qecca B npou;ecc nporpaMMHpOBaHHlI rOCY,IJ,apCTBeHHhIX
paCXO,IJ,OB lIBJ1l1eTClI o6eCnel.{eHHe OTKPhITOCTH nO,IJ,rOTOBKH 6JO,lJ.}KeTa, Kor,IJ,a npe,IJ,BapHTeJIhHhle
8CCHrHOB8HHJI, BbI,J{eJIeHHble CeKTOpaM, 6y,IJ,YT OCHOBaHhI Ha Oq,Hu;HaJIhHhIX nporH03ax
MaKpo3KOHOMHl.JeCKOH CHTYaU;HH Ha npOTlI)I{eHHH npe,IJ,CTOgm;erO q,HHaHcoBoro rO,IJ,a. TIocJIe
YTBep:>K,IJ,eHHlI Ka6HHeToM, aCCHrHOBaHHlI nepe,IJ,aJOTClI OTpaCJIeBhIM MHHHCTepCTBaM, KOTOPhlM
TaK)I{e paCChIJIaJOTCg HHCTPYKIJ;HH OTHOCHTeJIhHO nO,IJ,rOTOBKH 6JO,lJ.}KeTa B CBOHX ceKTopax B
paMKax YCTaHOBJIeHHhIX napaMeTpOB. B CBOJO Ol.{epe,IJ,h, OTpaCJIeBhle MHHHCTepCTBa
pacnpe,IJ,eJIllJOT 3TH aCCHrHOBaHHg Me:>K,IJ,Y HaxO,IJ.jfm;HMHCg B HX Be,IJ,eHHH yqpe:>K,IJ,eHHgMH,
paCChIJIalI HM COOTBeTCTBYJOIIUie HHCTPYKIJ;HH. TIpe,IJ,BapHTeJIhHbIe aCCHrHOBaHHg, BhI,IJ,eJIlIeMhle B
XO,IJ,e 6JO,lJ.}KeTHoro npou;ecca, ,IJ,OJI)l{Hh1 BhI,IJ,eJIlIThCg Ha KOHKYPCHOH OCHOBe B npou;ecce
onpe,IJ,eJIeHHg npHopHTeTOB H HaH60JIee npe,IJ,nOl.JTHTeJIhHOH CTPYKTyphI, MacmTa60B H
OCHOBHhIX HanpaBJIeHHH ,IJ,ellTeJIhHOCTH rocY,IJ,apCTBeHHhlx CJIY)I{6. BbI60p HaH60JIee nO,IJ,XO,IJ.jfm;eH
CTpYKTypbI Hal.JHHaeTCg C 6JO,lJ.}KeTHbIX yqpe:>K,IJ,eHHH, 3a HHMH CJIe,IJ,YJOT COOTBeTCTBYJOm;He
ynpaBJIeHHH MHHHCTepCTBa q,HHaHCOB, 3aTeM 6JO,lJ.}KeT o6cY:>K,IJ,aeTCg PYKoBO,IJ,HTeJIllMH
pa3JIHl.IHhIX MHHHcTepcTB, H HaKoHeu;, TIpeMhep-MHHHCTP npOBO,IJ,HT 3aKJIJOl.JHTeJIhHOe
COBem;aHHe, B XO,IJ,e KOToporo npHHHMaeTclI OKOHl{aTeJIhHOe pemeHHe. 3TOT mar n03BOJIHT
OCJIa6HTh BJIHgHHe Toro oco6oro MeHTaJIHTeTa, 06YCJIOBJIeHHOrO cHcTeMoH HopMaTHBOB,
KOTOPhIH n03BOJIlIeT Ka:>K,IJ,OH rocY,IJ,apCTBeHHoMY yqpe:>K,IJ,eHHJO Cl.{HTaTh, l.JTO OHO HMeeT npaBO
Ha nOJIyqeHHe onpe,IJ,eJIeHHOH CYMMhI Cpe,IJ,CTB. B HOBhIX YCJIOBHlIX 6JO,lJ.}KeTHhIH npou;ecc He
6Y,IJ,eT OrpaHHl.{HBaThCg npe,IJ,OCTaBJIeHHeM HaJIoroBo-6JO,lJ.}KeTHbIM opraHaM 3al1BOK Ha
norryqeHHe cpe,IJ,CTB. Ka:>K,IJ,OMY rOCY,IJ,apCTBeHHOMY yqpe:>K,IJ,eHHJO Heo6xo,IJ,HMO 6Y,IJ,eT
nOCTapaThClI y6e,IJ,HTh CHal.JaJIa ,IJ,Pyrne yqpe:>K,IJ,eHHg B ,IJ,pyrnx ceKTopax H nO,IJ,CeKTOpax, a 3aTeM
H npaBHTeJIhCTBO B TOM, l.{TO ero ,IJ,ellTeJIhHOCTh 3aCJIY)l{HBaeT 60JIhmerO BHHMaHHlI H 60JIhmeH
,IJ,OJIH orpaHHl.{eHHbIX pecypcoB, l.{eM ,IJ,egTeJIhHOCTh ,IJ,PyrHx yqpe:>K,IJ,eHHH.


66.        BHeApeHue HOBbIX MeXaHH3MOB nOWOTOBKH 6IO.lVlCeTa.                   TIPH CO,IJ,eHCTBHH co
CTOPOHhI Ka3Hal.JeHCTBa     CIlIA   H MB<I> MHHHcTepcTBo q,HHaHcoB pa3pa6oTaJIO 60JIee
nO,IJ,po6HYJO HOMeHKJIaTYPY, OCHOBaHHYJO Ha tPYHKllHOHaJIbHOii H HHCTHry;qHOHaJIbHOii
KJIaCcHq,HKaIJ;HH 6JO,lJ.}KeTHOro npou;ecca. MO,IJ,eJIh STOH HOBOH KJIaCcHq,HKaU;HH 6Y,IJ,eT
HCnOJIh30BaThClI npH nO,IJ,rOTOBKe 6JO,lJ.}KeTa Ha     1996 ro,IJ,. K   HaCToxm;eMY BpeMeHH BBe,IJ,eHa
HOBalI KOMIIJIeKCHalI KJIaCcHq,HKau;Hg pecny6JIHKaHCKOrO 6JO,lJ.}KeTa. TIOMHMO Y)I{e ynOMgHYThIX
npeHMym;eCTB, KOTOPhlMH 06JIa,IJ,aeT 3Ta KJIaCcHq,HKaIJ;HlI B IIJIaHe q,YHKu;HOHaJIhHOH
npe3eHTaU;HH rOCY,IJ,apCTBeHHhIX onepau;HH, 3Ta KJIaCcHq,HKau;H.R cnoco6cTByeT paU;HOHaJIH3aU;HH
                                                    - 27-
a,nMHHHCTpaTHBHhIX CTPYKTYp. AeHCTBHTeJIbHO, HHCTHTYIUiOHaJIbH8JI KJIaCcHcPHKaIUiJl
3HatIHTeJIbHO COKparuaeT KOJIHtIeCTBO 61O,IOKeTHbIX yqpe:>K,lJ;eHHH nepBoro ypOBHJI, JIH60 noTOMY.
~o OHH JIHKBH)J;HpOBaHbI, JIH60 nOTOMY, ~o OHH BKJIIOtIeHhI B 60JIee Kpymn.le «nopTcPeJIH»
paCXO));OB. CJIe)l;YlO~HMH maraMH JlBJIJlIOTCJI    (i)    HCnOJIL30BaHHe HCKJIIOtIHTeJILHO HOBOH
KJIaCcHcPHKaItHH npH nOWOTOBKe 61O,IOKeTa Ha              1997   ro));;   (ii)   cPaKTHtIeCK8JI nepe));atIa
OTpaCJIeBLIM MHHHCTepCTBaM 06J13aHHOCTeH no COCTaBJIeHHlO 6IO,IOKeTOB B COOTBeTCTBHH C
3THMH 60JIee Kpymn.IMH «nopTcPeJIJlMH»; H         (iii)   pacnpOCTpaHeHHe 3Toro npon;ecca Ha
HH:>KeCTOJlIUHe YPOBHH 6IO,IOKeTHbIX opraHH3an;HH.


67.        )J..rrJl P8:qHOHaJIH38:qHH 6IO,lVKeTHorO npo:qeCC8, KaK npaBHJIO, HCnOJIL3YIOTCJI n;eJILIH
PJl,J. MeTO));OJIOrnH.   B   pa3JIHtIHhIX CTpaHax Y:>Ke npoBepeHLI Ha npaKTHKe HeKOTopLIe
pa,n;HKaJILHhle MeTO));LI, BKJIIOtI8JI HCnOJIL30BaHHe CHCTeMLI llJIaHHpOBaHHJI, npOrpaMMHpOBaHHJI
H cPHHaHCHpOBaHHJI (PPBS). 3TH pa,n;HKaJILHLle nO));XO));LI tIa~e Bcero npHHOCJIT HeO));H03HatIHLIe
pe3YJILTaTLI, ~o 06'hJlCHJleTCJI, npe:>K,IJ;e Bcero, nOBLIWeHHOH CJIO:>KHOCTLIO HX BHe));peHHJI.
O));HaKO HeKOTopLIe HX acneKTLI MOryT 6LITL HCrrOJIL30BaHhI H B Ka3axcTaHe 6e3 JIHWHerO
YCJIO:>KHeHHJI. Bo MHornx CTpaHax Ha rrOCTOJlHHOH OCHOBe rrpOBO)l;JlTCJI pa3JIHtIHJI Me:>K,IJ;Y
TeK~MH       paCXO));aMH Ha ));eJlTeJILHOCTL B paMKaX Y:>Ke HatIaTLIX nporpaMM H paCXO));aMH Ha
pa3pa6oTKY HOBLIX rrporpaMM, tITO rrOMoraeT BJIaCTJlM rrpHHHMaTL orrpe));eJIeHHhle pemeHHJI B
paMKax npOBe));eHHJI HaJIOrOBO-6IO,IOKernOH nOJIHTHKH (HarrpHMep, MO:>KHO orrpe));eJIHTL
OC~eCTBJIJIeMLIe rrporpaMMLI, paCXO));LI Ha KOTopLle MOryT 6LITL COKparueHhI HJIH Boo6~e
rrpeKpaxn;eHhI, HJIH peWHTL, MO:>KeT JIH rrpaBHTeJILCTBO rr03BOJIHTL ce6e ocy~eCTBJIeHHe TOH HJIH
HHOH HOBOH nporpaMMLI). COCTaBJIeHHe 6IO,IOKeTa rro orrpe));eJIeHHOH nporpaMMe MO:>KeT 6LITL
ycnemH.o BHe));peHO B OT));eJILHLIX ceKTopax, TaKHX KaK 06pa30BaHHe, 3)l;paBooxpaHeHHe H CBJl3L,
r));e rrOIlJlTH.5I rrporpaMMHLIX l\eJIeH, 3KOHOMHH H KpHTepHeB 3cPcPeKTHBHOCTH JlBJIJIlOTCJI 60JIee
tIeTKHMH. fOBOPJl 60JIee rrpOCTLIM .5I3LIKOM, 60JILmHHCTBO OT));eJILHLIX KaTeropHH paCXO));OB
MOryT ]:( ));OJI:>KHhI Ol\eHHBaTLCJI B COOTBeTCTBHH C orrpe));eJIeHHLIMH l\eJIeBLIMH rrOKa3aTeJIJlMH
3cPcPeKTHBHOCTH, nOMaIO~HMHCJI KOJIHtIeCTBeHHOMY H3MepeHHIO. B Pa3));eJIe                          E OffilcaHO,   KaK
HeKOTopLle H3 3THX rrpHHI\HrrOB MOryT HCnOJIL30BaTLCJI CHatIaJIa B ccPepax 06pa30BaHHJI H
3));paBOOXpaHeHHJI B Xo));e IIJIaHHPyeMLIX pecPopM, r));e CJIe));yeT OTKa3aTLCJI OT pacnpe));eJIeHHJI
6IO,IOKeTHhIX pecypCOB B COOTBeTCTBHH C nOTpe6HOCTJlMH ceKTopOB H rrepeHTH Ha
HCrrOJIL30BaHHe CHCTeMLI, OCHOBaHHOH Ha 06'heMe OKa3LIBaeMLIX yCJIyr.


68.        PagHoHanH3agHH CHCTeMbI roCY.llapCTBeHHblX HHBeCTHUHii. Heo6xo));HMLI
Ha,nJIe:>KaIItHe rrpOl\e));YPLI paItHOHaJIH3aIJ;HH rrpOIJ;eCca yrrpaBJIeHHJI roCYA8pCTBeHHbIMH
HHBeCTHIUfJlMH. focy));apCTBeHHLle HHBeCTHIJ;HH B Ka3axcTaHe rrpaKTHtIeCKH npeKpaTHJIHCL.
I1cTopHJI rrOKa He 3HaeT rrpHMepOB CTpaH, KOTOPLIM y));aBaJIOCL 6LI BOCCTaHOBHTL 06'heM
rrpOH3BO));CTBa H 3KOHOMHtIeCKHH POCT 6e3 HHBeCTHIJ;HH B KaIIHTaJI, BJIO:>KeHHLIH B
HHcPpaCTPYKTYPY, ~O JlBJIJleTCJI npHopHTeTHOH 3a,n;atIeH B Ka3axcTaHe, nOCKOJILKY Heo6xo));HMO
YCOBepmeHCTBOBaTL CHCTeMY KOMMYHaJILHLIX yCJIyr H 06'heKTLI HHcPpaCTPYKTYPLI. BOJIee TOro,
3a rrOCJle));HHe ro));LI 06.513aHHOCTH no ocy~eCTBJIeHHIO rocY)J.apCTBeHHLIX HHBeCTHIJ;HH
nepeXO));HJIH OT O));HOro yqpe:>K,lJ;eHH.5I K ));pyrOMY (MHHHCTepCTBO 3KOHOMHKH, <l>OH)J.
3KOHOMHtIeCKHX rrpeo6pa30BaHHH, focy));apCTBeHHLIH 6aHK pa3BHTHJI, 3KCHM6aHK), rrOCKOJILKY
nOKa He Y));aJIOCL orrpe));eJIHTL POJIL, xapaKTep H CTPYKTYPY yrrpaBJIeHHJI npOIJ;eCCOM
rocy));apCTBeHHLIX HHBeCTHIJ;HH. Ha npaKTHKe 3Ta cPYHKIJ;H.5I npaKTHtIeCKH nepeCTa,JIa
cy~ecTBoBaTL H ee Heo6xo)J.HMO BOCCTaHOBHTL.


69.        YnpaBJIeHHe rocy));apCTBeHHLIMH HHBeCTHI\HJlMH, KaK npaBHJIO, ocy~eCTBJIJleTCJI Ha
tIeTLIpex OT)J.eJILHhIX CTa,n;HJlX: IIJIaHHpOBaHHe, rrporpaMMHpOBaHHe, nO));rOTOBKa 61O,IOKeTa Hero
HCrrOJIHeHHe. Ha CTa,IJ.HH nJIaHHpOB8HHJl pemaeTC.5I 3a,IJ.atIa pa3pa6oTKH cpe)J.HeCpOtIHOH
                                                      - 28-

nporpaMMbI COl(HaJIbHO-3KOHOMHtIeCKOrO pa3BHTHJI H cTpaTerHH pa3BHTHJI KaK Ha
MaKP03KOHOMHtIeCKOM ypoBHe, TaK H B OTHomeHHH KaJK.II;OrO H3 ceKTopOB. Ha 3TOH CTa,IJ;HH
OCHOBHoe BHHMaHHe y,neJUleTCJI OTOOPY H npe,nBapHTeJIbHOH Ol(eHKe npe,nJIOXeHHH no
ocymeCTBJIeHHIO HHBeCTHl(HH. B 3TOM KOHTeKCTe OTpaCJIeBbIM MHHHCTepCTBaM ,nOJIXHO ObITb
peKOMeH,nOBaHO no,nrOTOBHTb npe,IVIO)KeHHJI no HHBeCTHl(HJlM Ha OJIHXaHlDHe HeCKOJIbKO JIeT, B
co,nepxaIl(He OImcaHHe H Ol(eHKY npe,nJIaraeMbIX npoeKTOB Ha OCHOBe OOmenpHHJlTOH
MeTo,nOJlOrHH Q:>HHaHCOBO-3KOHOMHtIeCKOH Ol(eHKH npOeKTOB, B TOM tIHCJIe nOTpeOHOCTH B
cpe,nCTBax Ha nOKpbITHe nepHo,nHtIeCKHX H3,nepxeK, CBJl3aHHbIX C ocymeCTBJIeHHeM 9THX
npoeKTOB. Ha CTa,n;HH IlpOrpaMMHpOB8HHJI pemaeTCJI 3a,IJ;atIa npeoopa30BaHHJI l(eJIeH,
YCTaHOBJIeHHbIX B nJIaHe, B rocy,napCTBeHHbIe nporpaMMhl ,neJlTeJIbHOCTH. KOHCOJIH,Ilal(HJI
npe,nJIO)KeHHH no HHBeCTHl(HJlM B npOrpaMMY rocy,napCTBeHHbIX HHBeCTHl(HH (IIrH) ,nOJIXHa
ObITh OCHOBaHa Ha Tex )Ke npHHl(HnaX KOHKypeHl(HH/OToopa, KOTophle npe,IVIaraIOTCJI ,nJIJI
OIO)];)KeTHOrO npOl(ecca. OKOHtIaTeJIhHble pemeHHJI OTHOCHTeJIhHO no,nroTOBKH, pacnpe,neJIeHHJI
no CPOKaM H KoppeKTHpOBKH HHBeCrnl(HOHHhIX npoeKTOB ,nOJIXHhI npHHHMaTbCJI B KOHTeKCTe
npOl(eCca Ilo,arOTOBKH H HCIlOJIHeHHJI DIO,IVKeT8. PemeHHJI 0 Bhl)];eJIeHHH cpe,nCTB ,nOJDKHDI
npHHHMaThCJI C yqeToM TaKHX Q:>aKTopOB KaK            (i)   MaKp03KOHOMHtIeCKU CHTYal(HJI, B KOTOPOH
oy,neT HCnOJIHJlThCJI OIO)];)KeT; H   (ii)   KOHKpeTHble acneKThl npe,nJIoXeHHH no HHBeCTHUHJlM, B
TOM tIHCJIe 3KOHOMHtIeCKHe aCneKThl, OomaJi CYMMa 3aTpaT, xapaKTep 3aKynaeMbIX TOBapOB H
OnJIatIHBaeMbIX OOmeCTBeHHbIX paOOT, Q:>HHaHCOBU CTpYKTYpa H nOTpeOHOCTH B cpe,nCTBax Ha
nOKpbITHe nepHO.n;HtIeCKHX H3,nepxeK. H HaKOHel(, eCJIH OC}7I!eCTBJIeHHe HHBeCTHl(HOHHbIX
npoeKTOB (T.e. aHaJIH3, KOHCYJIhTal(HH H 3aKynKH) JlBJIJleTCJI OOJl3aHHOCTbIO OIO,nJKeTHbIX
yqpe)K,neHHH, HeOOXO,lUlMO npHHJlTh ,nonOJIHHTeJIhHhle Mephl npe,nOCTopOXHOCTH, C TeM \{TOOhI
H30eXaTl. npOOJIeM, KOTophIe tIaCTO CTaBJIT no,n yrpo3y HHBeCTHl(HOHHbIe npoeKThl, ocooeHHO
nepepacxo,na cpe,nCTB.


70.       qTOObI no,nrOTOBHTbCJI K Heooxo,nHMOMY B0300HOBJIeHHIO rocy,napCTBeHHbIX
KallHTaJIOBJIOXeHHH, Ka3axcTaHY Heooxo,nHMO npe)K,ne Bcero C03,naTh Ha,nJIeXaIl(YIO
HHCTHTYl(HOHaJIhHYIO CHCTeMY ynpaBJIeHHJI rocy,napcTBeHHhIMH HHBeCTHUHJlMH H oOeCnetIHTh
opraHH30BaHHoe H 3Q:>Q:>eKTHBHoe BhIllOJIHeHHe BhlmeHa3BaHHbiX tIeTblpeX Q:>YHKl(HH:
nJIaHHPOBaHHH, nporpaMMHpOBaHHH, nO)J.rOTOBKH H HCnOJIHeHHJI OIO)];)KeTa H KOHTPOJIJI 3a
HCnOJIHeHHeM OIO)];)KeTa. IIpH BhIoope HaHOOJlee no,nxO)J.JImeH CHCTeMhl BJIaCTJlM CJIe.nyeT
PYKOBO,nCTBOBaTbCJI ,nBYMJI KpHTepHJlMH. Bo-nepBbIX, He3aBHCHMO OT H30paHHoro MexaHH3Ma
npoBe,neHHJI Q:>HHaHcoBhIX Onepal(HH, CBJl3aHHbiX C rocy,napcTBeHHbIMH KallHTaJIOBJIOXeHHJlMH,
<pHHaHcHpyeMhIMH H3 BHyTpeHHHx H BHemHHX HCTOtIHHKOB (Ka3HatIeHCTBOM HJIH
3KcHMoaHKoM), OTBeTCTBeHHOCTb 3a onpe,neJIeHHe npHopHTeTOB pa3BHTHJI H OTOOP Tex
npoeKToB, KOTophle B HaBOOJIbmeH CTeneHH COOTBeTCTByIOT 3THM npHOpHTeTaM, JIeXHT Ha
npaBHTeJIhCTBe: 3TO He MoxeT ocymeCTBJIJlThCJI ,npyrHM yqpe)K)J.eHHeM. Bo-BTOPbIX,
Heooxo,nHMa TeCHU HHTerpanHJI nporpaMMHpOBaHHJI KallHTaJIOBJIO)KeHHH B OOmHH npOl(eCC
cpe,nHeCpOtIHoro ynpaBJIeHHJI HaJIOrOBO-OIO)];)KeTHOH cQ:>epoH. IIo3TOMY, MHHHCTepCTBO
Q:>HHaHCOB HrpaeT Be,nYmyIO POJIh B ,naHHOM npouecce, HatIHHU CO CTa,lUIH nJIaHHpOBaHHJI
(pa3paOOTKH MaKp03KOHOMHtIeCKOH H HaJIoroBo-OIO)];)KeTHOH nOJIHTHKH) H 3aKaHtIHBU
CTa,lUIJlMH ocymeCTBJIeHHJI npoeKTOB (KOHTPOJIb 3a HCnOJlb30BaHHeM Bhl)];eJIeHHbIX cpe,nCTB).
IJ,eJIeCOOOpalHOCTb nepe,natIH HeKOTophIX Q:>YHKl(HH, CBJl3aHHhIX C ynpaBJIeHHeM
rocy,napCTBeHHhlMH KanHTaJIOBJIOXeHHJlMH, .npyrHM rocy,napCTBeHHhIM yqpe)K)J.eHHJlM, TaKHM
KaK MHHHCTepCTBO 3KOHOMHKH, BhI3hIBaeT COMHeHHJI. BepOJITHOCTh ,nOCTH)KeHHJI BhICOKHX
pe3YJIhTaTOB OOJIee BepOJITHa Tor,na, Kor,na Q:>YHKl(HH nporpaMMHpOBaHHJI OIO)];)KeTa oy,nYT
BhIllOJIHJlThCJI He HeCKOJIhKHMH, a O)J.HHM yqpe)K)J.eHHeM - MHHHCTepCTBOM Q:>HHaHCOB.
                                                                      - 29-

               MaCWTa6b1 61OJVI(eTa

71.            CaMa no ce6e paIUlOHaJIH3aIlH5I 6IO,lPKeTa He npHHeceT pe3YJIhTaTOB, eCJIH B npOilecce
no.n;rOTOBKH H HCnOJIHeHH5I 6IO,lPKeTa He ocymeCTBJI5IeTC5I nOJIHLm KOHTPOJIh 3a
rocy.n;apCTBeHHhIMH £pHHaHCaMH. Y)Ke .n;OCTHfHYThI 3Ha't{HTeJIhHhle ycneXH B npOilecce
BOCCTaHOBJIeHH5I e,IJ;HHCTBa 6IO,lPKeTa!.Y IIyTeM nOCTeneHHOH JIHKBH.n;aIUlH 60JIhWHHCTBa
BHC6IO,lPKCTHhIX 4:JOHPOB, KOTophle .n;eHCTBOBaJIH B nepHO.n;, nOCJIe.n;OBaBWHH 3a
rrpOB03r.n:ameHHeM CTPaHOH He3aBHCHMOCTH. 3TOT rrpOilecc n03BOJIHJI, B't{aCTHOCTH, 06JIeNHTh
6peM51 BHe6IO,lPKeTHLIX £pOH,IJ;OB C                 12   npOIleHTOB BBn B            1993    ro.n;y npH6JIH3HTeJIhHO .n;o
7   rrpoIleHTOB BBn B            1995   ro.n;y. neHcHoHHhm £pOH,IJ; H <I>oH,IJ; COIUlaJIhHOrO cTpaxoBaHH5I
06ocHoBaHHo npo.n;OJI)KaIOT .n;eHcTBoBaTh B Ka't{eCTBe BHe61O,IJ;)KeTHhIX £pOH,IJ;OBJlI. O.n;HaKo no
CBOeMY xapaKTepy 3TH £pOH,IJ;hI OTJIH't{aIOTC5I OT 06hI't{HhIX BH.n;OB HaJIOrOBO-61O,IJ;)KeTHOH
.n;e5lTeJIhHOCTH. COilHaJIhHhle £pOH,Il;hI 5IBJI5IlOTC5I £pOH,IJ;aMH COilHaJIhHOrO CTPaxOBaHH5I,
yrrpaBJI5leMhIMH caMOCT05lTeJIhHhIMH yqpe)K,Il;eHH5IMH; OHH £pHHaHCHPYIOTC5I He 3a C't{eT HaJIOrOB,
a 3a C't{eT 06513aTeJIhHhIX CTpaXOBhIX B3HOCOB. nOKa BJIaCTH npH.n;epJKHBaIOTC5I IIPHHIUfII8
CTpaxOBaHHJl B 06JIaCTH COilHaJIhHOH 3amHThI, B HX HHTepeCax pa3rpaHH'tlHTh £pHHaHCOBhle
onepaIUlH CHCTeMhI COIUlaJIhHOH 3aIIJ;HThI H OpraHOB rocy.n;apCTBeHHoro yrrpaBJIeHH5I.


72.            ECJIH He C't{HTaTh npHBe.n;eHHoro BhIIIIe HCKJIIO't{eHH5I, BJIaCT5IM CJIe.n;yeT npOTHBOCT05lTh
.n;aBJIeHHlO, OKa3hIBaeMOMY Ha HHX C IleJIhlO C03.n;aHH5I HOBhIX BHe61O,IJ;)KeTHhIX £pOH,IJ;OB. B TO )Ke
BpeM51, BOCC03.n;aHHe He.n;aBHO JIHKBH.n;HpOBaHHoro ~opOlKHoro 4:JOHP8 C03.n;aeT He)KeJIaTeJIhHhIH
npeIle.n;eHT. Eme 60JIhmee 6ecnOKOHCTBO BhI3hIBaeT pemeHHe 0 £pHHaHCHpOBaHHH
CTPOHTfNlbCTB8 HOBOH CTOJIHIQJ, r. ARMoJIa, He TOJIhKO nOTOMY, 't{TO 3TO .n;eJIaeTC5I 3a C't{eT
BHe61O.n;)I{eTHhIX cpe.n;CTB, HO H nOTOMY, 't{TO CB5I3aHHhle C 3THM onepaIlHH npOBo.n;gTC5I no
C't{eTaM B 3apy6eJKHOM 6aHKe. HeB03MOJKHO TaKJKe onpaB,IJ;aTh cymeCTByIOmee nOJIO)KeHHe
BemeH, Kor.n;a 60JIhWHHCTBO pacxo.n;OB, £pHHaHcHpyeMhle 3a C't{eT HHOCTpaHHoro
3aHMCTBOBaHH5I, He YKa3hIBalOTC5I B 61O,IJ;)KeTe H He y'tlHThIBalOTC5I B COOTBeTCTBHH C
.n;eHCTBYlOmHMH B CTpaHe HOpMaMH 6yxraJITepCKOro yqeTa H OT't{eTHOCTH. ACCHrHOBaHHe
cpe.n;CTB Ha TaKHe paCXO,IJ;hI, HX YTBep)K,Il;eHHe, ocymeCTBJIeHHe, COCTaBJIeHHe no HHM
OT't{eTHOCTH H KOHTPOJIh 3a HHMH .n;OJI)KeH OcymeCTBJI5IThC5I B TOM )Ke nopg.n;Ke, 't{TO H B
OTHomeHHH JI106hIX .n;pyrHX rocy.n;apCTBeHHhIX pacxo.n;OB.


73.           ECTh eme o.n;Ha rrpH't{HHa, no KOTOpoii B HaCT05lmee BpeM5I npe.n;CTaBJIeHHe 6IO,IJ;)KeTa H
yqeT 6IO,IJ;)KeTHLIX onepaIlHH 5IBJI5IeTC5I HenO.JIHhIM, - HaMeTHBma51C5I B nOCJIe.n;Hee BpeM5I
TeH,IJ;eHIlH5I paCIIpOCTpaHeHHJl pa3Hoo6pa3HbIX «BHC6IO,lPKeTHhIX HCTOq]fJfKOB IIOCTyn;JICHHH» B
BHl1e HaJIOrOB H C60POB, caMOCT05lTeJIhHO B3HMaeMhIX 6IO,IJ;)KeTHLIMH yqpe)K,Il;eHH5IMH. B
YCJIOBH5IX o6mero .n;e£PHIlHTa cpe.n;CTB MHorHe 6IO,IJ;)KeTHhle yqpe)K,Il;eHH5I CTapaIOTC5I YBeJIH'tlHTh
CBOH .n;OXO.n;hI JII06hIMH cnoco6aMH, npH't{eM nonyqaeMhle cpe.n;CTBa HCnOJIh3yIOTC5I HMH no
co6CTBeHHOMY YCMOTpeHHIO, BHe CHCTeMhI 6IO,IJ;)KeTHhIX aCCHrHOBaHHH. I'bBecTHO, 't{TO TaKHM
06pa30M 6IO,IJ;)KeTHhlM yqpe)K,Il;eHH5IM y.n;aeTC.Il nOJIyqaTh 3Ha't{HTeJIhHhle CyMMhI cpe.n;CTB, XOT.Il
TO't{HOH IlH£PPhI HeT. qTO KacaeTC.Il 3THX nOCTYIIJIeHHH, Heo6xo.n;HMO PYKOBO.n;CTBOBaThC.Il




,::'IIpmllum C,Il,HHCTBa olOlUKeTa 3aK1lIO'IaeTCll B TOM, 'frO BCC CpC,llCTBa H paCXo,llhl. roCY.ll8pCTBa YKtl3L1Ba1OTCll B C,Il,HHOM ,lloK}'Mcmc.
3TOT KOMnncKcHhIit no,llXO,ll HaxO,llHT CBOC OTP8JKCHHC B q,OPMC npC,llCTaBJICHHl! OlOlUKeTa. 3TOT np~Hl1 ,llOJDKCH ,llQTb
OIO,lllI:eTHLIM opraHaM (OT BlOlUKCTHOro ynpaBJICHHl! ,llO napnaMcma) nonHOC npe,llCTaB1lCHHC 0 IICCX q,HHaHCOBhlX acnCKTax, 'frOObl
OHH nOJI}"lHJ1H B03MO:llCHOCTb KaK MO:llCHO JI}"lmc nOHllTb nOTpCOHOCTH H pe3ym.TaTLI nOnHTHKH roCY,llQPCTBa, KaK
MaKpO!lKOHOMH'lCCKHX acneKTOB (TaKHX KaK oomcc opeMJI HaJIOrOB, ,llOJ1ll roCY,llQpCTBeUHLIX paCXO,llOB B COBOKynHOM cnpoce), TaK H
aCnC/ITOB MHKPO!lKOROMHKH (TaKHX KaK nOKa3aTCJIH 3CP¢leKTHBHOCTH nporpaMM roCY,llapCTBeHHLIX paCXO,llOB).


~' Ooa q,1lH,lla q,HHaHCHpyJOTCli OT'lKCJlCHHlIMH Ha COUHlllIbHOC o6ecnC'ICHHC B P&3MCPC 30 npOUCHTOB 3apa60THoH nnaTLI.
                                                   - 30-

npOCTbIM npaBHJIOM: Bce nOCTYIIJIeHHJI JII060ro rocy.n;apCTBeHHOrO yqpe)K,lleHH.lI .n;OJUKHbI 6bITb
npe.n;ycMoTpeHbI B rocy.n;apcTBeHHoM 6IO,IOKeTe H Ha,n;JIeJKaIUHM 06pa30M OTpaJKeHbI B yqeTHoH
.n;OKyMeHTa~HH 3Toro yqpe}K,IleHH.lI. ECJIH BHe6IO,IOKeTHble cpe.n;cTBa nonyqeHbI B pe3YJIbTaTe
npoH3Bo.n;cTBeHHoH HJIH KOMMep"lleCKOH .n;e.llTeJIbHOCTH, npe.n;rrO"llTHTeJIbHbIM BapHaHTOM 6bIJI 6bl
yqeT onep~H 3THX yqpe)K,lleHHH OT.n;eJIbHO OT onep~H rocy.n;apcTBa H HX rrpHBaTH3~.lI BO
Bcex CJIyqaJIX, Kor.n;a 3TO B03MOJKHO. ECJIH JKe .n;e.llTeJIbHOCTb Tamx yqpe}K,IleHHH He MO:>KeT
6bITb nOCTaBJIeHa Ha KOMMep"lleCKYIO OCHOBY, BJIaCT.lIM Heo6xo,IlHMO pa3pa60TaTb HopMaTHBHO-
npasoBYIO OCHOBY, n03BOJl.llIOW;YIO yqpe)K,lleHH.lIM, nOJIyqaIOW;HM Tame .n;OXO,IlbI, 3aHHMaTbC.lI
IIJIaTHbIM OKa3aHHeM yCJIyr, npH"IIeM HX 6IO,IOKeTbI .n;OJIJKHbI OCTaBaTbC.lI "IIaCTbIO
rocy.n;apCTBeHHoro 6IO,IOKeTa H OHH .n;OJI:>KHbI yqHTbIBaTbC.lI KaK Be.n;OMCTBeHHble npe.n;rrpH.lITH.lI
(eCJIH OHH He aKIJ,HOHHpOBaHbI) HJIH KaK C03.n;aHHble B 3aKOHo.n;aTeJIbHOM nop.ll.IlKe yqpe)K,lleHH.lI
(eCJIH OHH ~HOHHPOBaHbI).


          KOHCOJDIJlaua" roCYJlapCTBeHHoro 61OJl)I(eTa


74.       Ii   HaKOHe~, pe3YJIbTaTOM nOJIHTHm nepe.n;a"IIH nOJIHOMO"IIHH no no,n;roTOBKe H
HCnOJIHeHHIO 6IO,IOKeTa MeCTHbIM OpraHaM rocy.n;apCTBeHHoro ynpaBJIeHH.lI (naparpatPbI             42-59)
6y.n;eT .lIBJI.lITbC.lI flCTKOC pS3rpsHHflcHHC MCJK,l1Y ,!{BYMJI BH,!{aMH 6IO,JVKCTS: rocy,!{spCTBCHHhIM
6IO,JVKCTOM H 6IO,JVKCTaMH opraHOB MCCTHoro CaMoynP8.BJICHHJI. rocy.n;apCTBeHHbIH 6IO,IOKeT
.n;OJI:>KeH OXBaTbIBaTb Bce BH.n;bI HaJIOrOBO-6IO,IOKeTHOH .n;e.llTeJIbHOCTH rocy.n;apCTBa, HMeIOlIl;He
06w;erocy.n;apCTBeHHoe 3Ha"lleHHe, a H3 6IO,IOKeTOB opraHOB MeCTHoro caMoyrrpaBJIeHH.lI 6y.n;eT
tPHHaHCHpOBaTbC.lI HaJIOrOBO-6IO,IOKeTHaJI .n;e.llTeJIbHOCTb Ha MecTax B npe.n;eJIax IOpHC.n;H~HH
MeCTHbIX OpraHOB. KaK TOJIbKO CHCTeMa HaJIoroo6JIo:>KeHH.lI CTaHeT .n;OCTaTO"IIHO 3tPtPeKTHBHoH
H Ha,n;eJKHOH, BJIaCT.lIM HMeeT CMbICJI OTKa3aTbC.lI OT pe3epBHpOBaHH.lI .n;OJIH nOCTYIIJIeHHH B
rocy.n;apcTBeHHbIH 6IO,IOKeT   .IlJI.lI opraHOB rocy.n;apCTBeHHoro yrrpaBJIeHH.lI Pa3JIH"IIHbIX YPoBHeH H
tPHHaHcHpoBaTb CBOIO .n;e.llTeJIbHOCTb B xo.n;e HOPMaJIbHOro npo~ecca 6IO,Il:>KeTHbIX accHfHoBaHHH.
O,IlHaKO MeCTHbIM OpraHaM rocy.n;apCTBeHHOrO ynpaBJIeHH.lI He06xo,IlHMO rrpe.n;OCTaBHTb
onpe.n;eJIeHHyIO aBTOHOMHIO B BH.n;e CHCTeMbI ncpc,!{af[lf nOJIHOMOflHH no OC}'11fCCTBJICHHIO
PSCXO,!{OB, B paMKax KOTOPOH cpe.n;CTBa, aCCHrHOBaHHble H3 rocy.n;apCTBeHHoro 6IO,IOKeTa,
HCnOJIb3yeMbIe MeCTHbIMH opraHaMH rocy.n;apCTBeHHoro yrrpaBJIeHH.lI, .n;OJI:>KHbI 6blTb
neperpYIIIIHpOBaHbI B MeCTHble 6IO,IOKeTbl, KOTopble 6y.IlYT HCnOJIWITbC.lI no.n; ynpaBJIeHHeM
PYKoBo.n;HTeJIeH MeCTHblX OpraHOB. TaKaJI CHCTeMa He 6y.n;eT .lIBJI.lITbC.lI 3Ha"IIHTeJIbHbIM
OTKJIOHeHHeM OT HcnOJIb3yeMhlx B HaCTO.llw;ee BpeM.ll npOIJ,e.n;yp, O,IlHaKO n03BOJIHT npHBeCTH
HaJIOrOBO-6IO,IOKeTHYIO .n;e.llTeJIbHOCTb B COOTBeTCTBHe C cyw;ecTByIOW;HMH a,n;MHHHCTpaTHBHbIMH
npOIJ,e.n;ypaMH .n;e.llTeJIbHOCTH rocy.n;apCTBeHHbIX OpraHOB. TaKa.ll CHCTeMa n03BOJIHT 3Ha"llHTeJIbHO
rrOBhlCHTb 3tPtPeKTHBHOCTb H 06eCrre"llHTb OTKPbITOCTb npOIJ,eCca pacnpe.n;eJIeHH.lI 6IO,IOKeTHblX
pecypCOB B COOTBeTCTBHH C npHOpHTeTaMH CTpaHbI.


          HCDOJIHeHHe 61OJl)I(eTa


75.       YcoBeprneHcTBoBaHHe npOIJ,e.n;yp 6IO,IOKeTHOH .n;e.llTeJIbHOCTH He npHHeceT :>KeJIaeMbIX
pe3YJIbTaTOB, eCJIH HeT COOTBeTCTBYIOw;eH HopMaTHBHo-npaBOBOH OCHOBbI HcnOJIb30BaHH.lI
rocy.n;apCTBeHHblX cpe.n;CTB, KOTOPaJI npH3BaHa 06eCne"llHTb HCnOJIHeHHe 6IO,Il:>KeTa B
COOTBeTCTBHH C IIJIaHOM. HeCMOTp.ll Ha TO "liTO B Ka3aXCTaHe YJKe npHWIT            P1l,lJ; Mep,
HarrpaBJIeHHhlX Ha C03.n;aHHe HOBOH CHCTeMbI Ka3Ha"lleHCTBa, TaKoH opraHH3aIJ,HOHHO-npaBOBOH
CHCTeMbI nOKa HeT.


76.       liCDOJIHeHHe 61OJl)I(eTa B COOTBeTCTBHH C YCTaHOBJIeHHblMH B HeM HOPMaMH.                   B
HaCTO.llw;ee BpeM.lI CHCTeMa HCnOJIHeHH.lI 6IO,IOKeTa B Ka3aXCTaHe He 06eCne"IIHBaeT
                                                      - 31 -

,ll;OCTaTOqHOrO COOTBeTCTBHJI paCXO,ll;OB HOpMaM, YCTaHOBJIeHHJ>IM B 61O,ll;JKeTe, Ha ,ll;BYX ypOBIDlX.
Ha YPOBHe CeKTOpOB HCnOJIHeHHe 61O,ll;JKeTa ,ll;OJIJKHO B TOqHOCTH OTpa>KaTh npe,ll;nOJIOXHTeJIhHO
OIITHMaJIhHOe paCnpe,ll;eJIeHHe Cpe,ll;CTB Me2K)l;y pa3JIHqHhIMH rocY,ll;apCTBeHHhIMH <pymru;HJlMH,
<pHHaHcHPyeMhIMH H3 61O,ll;JKeTa, npHqeM aCCHrHOBaHHJI yqHThIBalOTCJI B 61O,ll;JKeTe B TOM BH,ll;e, B
KOTOPOM OHH 6hIJIH YTBepx,n;eHhI H KOTOphIe, KaK C'lHTaeTCJI, Onpe,ll;eJlJlIOTCJI
rocY,ll;apCTBeHHhIMH npHOpHTeTaMH. Ha MaKp03KOHOMHqeCKOM YPOBHe HCnOJIHeHHe 61O,IUKeTa
,ll;OJIJKHO TaJOKe n03BOJIJITh C,ll;epXHBaTh POCT 61O,IUKeTHoro ,ll;e<pH~HTa, C TeM 'lT06hI HaJIOrOBO-
61O,IUKeTHaJI nOJIHTHKa npHHOCHJIa :>KeJIaeMhIe pe3YJIbTaTbI.


77.          C03,ll;aeTCJI TaKOe BneqaTJIeHHe, 'ITO 61O,IUKeT HCnOJIIDleTCJI nO'ITH npOH3BOJIbHO.
HaapHMep, ,ll;aHHhIe 06 HCnOJIHeHHH 61O,ll;JKeTa 3a        1994     ro,ll; CBH,ll;eTeJIbCTBYIOT 0 TOM, 'ITO
paC:XO)l;bI MOrJIH JIH60 B ,ll;Ba pa3a npeBhImaTb 06'heM aCCHrHOBaHHhIX Cpe,ll;CTB, JIH60 B
HeKoTophIX cnyqaJIX aCCHrHOBaHHJI Boo6me He HCnOJIh30BaJIHCh (CM. Ta6JIH~Y                        9).   KaK HenOJIHOe
HCnOJIh30BaHHe, TaK H nepepaCXO,ll; aCCHrHOBaBHhlX 61O,ll;JKeTHhlX Cpe,ll;CTB JlBJIJlIOTCJI npHqHHOH
Hecnoco6HocTH ,ll;eHcTBOBaTh B PaMKax YTBepx,n;eHHoro 61O,ll;JKeTa. B HaCTOJImee BpeMJI
pacxox,n;eHHJI Me}K,ll;y YTBepx,n;eHHJ>IMH H <paKTHqeCKHMH paCXO,ll;aMH CTOJIh 3Ba'IHTeJIbBhI, 'ITO
3TO no CYTH 03BaqaeT 6eCnOJIe3HOCTb YTBepx,n;eHHJI 61O,ll;JKeTa napJIaMeHTOM. 8TH pacxox,n;eHHJI
B03HHKalOT no TpeM npHqHHaM, pa3JIH'lHhIX no CBoeMY xapaKTepy H Tpe6YlOmHX pa3JIHqHbIX
pemeHHH.


78.          .no   1994   rO,ll;a OCBOBHOH npHqHHOH pacxox,n;eBHH 6bIJI cHCTeMaTHqeCKHH tfpe3MepHbIii
OIITHMH3M npH nporH03HpOBaHHH 06'beM8 nOCTynJIeHHH B rocy,a8pcTBeHHhlii 6IO.IPKeT.
HarrpHMep, B       1994 ro,ll;Y   <paKTHqeCKHe nOCTYIIJIeBH$I COCTaBHJIH JIHmh           75   npO~eHTOB
np0rHO:JHpyeMhIX. B BaCTOJImee BpeM.II HaMeTHJIOCh HeKOTopoe YJIyqmeBHe CHTYa~H. BnepBbIe
B   1995   ro,ll;Y 06'heM nOCTYIIJIeHHH B rocY,ll;apCTBeBHhIH 61O,IUKeT <paKTHqeCKH npeBhICHJI
nporHo:mpyeMbIH npH nO,ll;rOTOBKe 61O,IUKeTa. O,ll;HaKO 3TO eme He nOBO,ll; ,IVIJI
caMOY,ll;OBJIeTBOpeHHOCTH. no Mepe Toro KaK CTpaBa CTaBOBHTCJI Bce 60JIee OTKPhITOH H
pa3BHBaeT BH,ll;bI ,ll;e$lTeJIhBOCTH, CB$l3aHHbIe C pa3pa60TKoH npHpO,ll;HhIX pecypCOB,
MaKp03KOlfOMHqeCKaJI CHTY~H.II B CTpaHe 6Y,ll;eT B 60JIhmeH CTeneHH 3aBHceTb OT
HeCTa6HJIhHOCTH, xapaKTepHoH ,ll;JI$I Mex,n;YHapO,ll;HhlX TOBapHhIX PbIHKOB. BJIaCT.IIM CJIe,ll;yeT
nO,ll;rOTOBHTbC$I K pemeHHIO np06JIeM, CBJl3aHBbIX C HenOCTOJlHCTBOM 61O,IUKeTHhIX YCJIOBHH,
BbI,ll;eJIJIJI onpe,ll;eJIeHHbIe CYMMbI Cpe,ll;CTB Ba Benpe,ll;BH,ll;eHHhIe paCXO)l;bI B CJIyqae H3MeHeHH.II
MaKp03KOHOMH'IeCKOH cHTyaI\HH (I.{HKJIHtfeCKHe ,pOH,[fbl).


79.          Eme O,ll;BOH npH'lHHOH pacxox,n;eHHH Mex,n;y YKa3aHHhIMH B 61O,ll;JKeTe H
<paKTHqeCKHMH pacXO,ll;aMH $lBJI.IIeTCJI He,aOCT8TOtfHaJI 3cPcPeKTHBHOCTb 38KOH8 0 6IO.IPKeTe. B
Ka3axcTaHe rocY,ll;apCTBeHBhIH 61O,IUKeT B TOM onpe,ll;eJIeHHH, B KOTOPOM OH npe,ll;CTaBJIeB B
COOTBeTCTBYlOmeM 3aKOHe 0 CTPYKType 61O,IUKeTa OT              17   ,ll;eKa6pJl   1991   rO,ll;a, HJIH no cpaBHeHHIO
C 06menpHIDlThIMH CTaB,ll;apTaMH, 60JIhme nOXO:>K Ha nporB03 OTBOCHTeJIbHO ,ll;BH:>KeHHJI
,ll;eHeJKHbIX Cpe,ll;CTB, qeM Ha 3aKOH, npeJ(J'cM8TpHB8IOIL'(HH H YTBepJKJCaIOII.{HH 8CCHrHOBaHHJI. B
pe3YJIbTaTe He npe,ll;YCMOTPeHO KaKHX-JIH60 CTpornx ca~HH B OTHomeHHH Tex, KTO
npHHHMaeT 06$13aTeJIbCTBa no paCXO,ll;aM Be HMe$l He06xo,ll;HMhlX aCCHrHOBaHHH. BOJIee Toro,
,ll;eHCTBYlOmaJI CHCTeMa npe,ll;YCMaTpHBaeT HCKJIlOqeHHe H3 3Toro OCHOBHoro npaBHJIa BeKOTopbIX
KaTeropHH paCXO,ll;OB (BanpHMep, Kpe,ll;HTbI, npe,ll;OCTaBJIjleMbIe npe,ll;npHJlTHJlM HJIH OT'lHCJIeBH.II
B pe3epB Ha CJIyqaH y6bITKOB). 8TH HCKJIlOqeBH.II cnOC06CTBYlOT TOMY, 'ITO CHCTeMaTHqeCKH
npHHHMaIOTC$I qpe3MepBbIe 06J13aTeJIbCTBa no paCXO,ll;aM.


80.          HOBbIH 3aKOH 0 61O,IUKeTe, pa3pa6aTbIBaeMbIH MHHHcTepcTBoM <pHHaHcoB, ,ll;OJI:>KeH
3aKpenHTb 06$13aTeJIhHbIH xapaKTep 61O,ll;JKeTHbIx aCCHrHOBaBHH H CO,ll;ep:>KaTb nOJIO:>KeHHe, B
                                                                 - 32 -

COOTBeTCTBHH C KOTOPl>1M B OTHOIIIeHHH JlIo6oro JIHI(a, npH3HaHHOrO BHHOBHl>1M B COBepIIIeHHH
HJIH CO~eHCTBHH COBepIIIeHHIO ~eHCTBHH. CB.H:3aHH1>IX C nOJIyqeHHeM rocy~apCTBeHHl>IX ~OXO~OB
HJIH ocymeCTBJIeHHH             rocy~apcTBeHHl>IX paCXO~OB             He HMe.H: Ha TO COOTBeTCTBYIOmerO
pa3peIIIeHH.H:, ~OJDKHO B036YJK.naTl>C.H: yrOJIOBHOe ~eJIo.




      Ta6JlHua 9: HCnOJlHeHHe nepecMoTpeHHoro rocYJlapCTBeHHoro 61OJl)KeTa Ha 1994 r.
                                                          (B npoI(eHTax)


                                                            Pecny6nHKlIHcKHH               MeCTHWe                rOCy~pCTBeH~



  06I.1U1e ycnyrn: HaCeneHHIO                                              53.6                      75.5                       55.7
  06opoHa                                                                  41.8                        n.B.                     42.0
  Oxpaua npaBOnOplI;,lUCB H 6e30nacHocn.                                   84.1                      126.6                      90.4
  06pB30B8.HHe                                                             79.1                      107.1                     101.0
  31ij>aBOoxpaueHHe                                                        44.0                      95.1                       82.0
  COllHaJIbHOe ooeCne'leHHe                                                17.3                      30.0                      23.5
  >KH./I1IIIlHO-KOMM}'HaJIbBOe X03J1liCTBo                                  2.4                    1860.6                      165.0
  KYnbTypa.nocyr. penHrKS                                                  50.6                      139.2                      76.2
  3HepreTHKa                                                              117.5                        n.B.                   3320.0
  CenbCKoe XO:JJIliCTBO                                                    56.9                     239.8                       62.1
  npOMhIIWleHHOCT&                                                        51.6                         n.B.                     52.8
  TpaHCnOpT H CBlI3l>                                                      31.8                       n.B.                    3320.0
  ~yrHe BH,II,hI 3KOHOMH'leCKOH nellTenbHOCTH                             185.1                    2393.8                     222.5
  npottee                                                                 72.7                      143.2                      73.2


  HTOro                                                                   57.5                       97.4                      70.2




81.          Eme O~HOH H, B03MO>KHO, HaH60JIee Ba>KHOH npH"tJ:HHOH B03HHKHOBeHH.H:
paCXOJK.neHHlf .H:BJI.H:eTC.H: IIIHpOKoe HCnOJIl>30BaHHe MexaHH3Ma, "tJ:aCTO H He Bcer~a npaBHJIhHO
Ha3hIBaeMoro CCKBCCTPaJQfCW.Ji, M.H: Toro, qT06hI OrpaHH"tJ:HTh ~eHe>KHl>Ie paCXO~I
cpe~CTBaMH Ha c"tJ:eTY Ka3Ha"tJ:eHCTBa. CeKBeCTpaI(H.H:, HCnOJIh30BaHHe KOTOPOH 6hIJIO Ha"tJ:aTO B
1992   ro~ B Ka"tJ:eCTBe nOnhITKH C~ep>KaTh POCT 6IO~eTHoro ~e<pHI(HTa eCJIH He Ha OCHOBe
06.H:3aTeJIhCTB, TO XOT.H: 61>1 Ha KaCCOBOH OCHOBe, K                   1995      ro~ 6hIJIa KO~<PHI(HpOBaHa B
nOJIHOCThIO HPPaI(HOHaJIhHhIH MexaHH3M. Pe3YJIhTaThI HCnOJIh30BaHH.H: TaKoro MexaHH3Ma
HenpHeMJIeMhI, nOCKOJIhKY rocy~apcTBo C03HaTeJIhHO H CHCTeMaTH"tJ:eCKH CTaBHT ce6.H: B




~/TepMHH CeKBeCTpIWHJl. pacnpOCTpaHeHH&IH B paMKaX cnpOH COBeTeKoii: CHCTeMbI. BHOCWI HeKOTOpYlO nyfaHHIIY B OnHCaHHe
xapaKTepa HCnOnb3yeMhIX HHCTpYMeHTOB OIO,lI2KeTHOro KOHTPOJIll. Ha npaKTHKe. :!ITO 03HattaeT nonpocry HeBblIIOReHIle
06Jl38reJ1.6CTB. TepMHHOM «ceKBeCTPIWHJl" aa3&IBa1OT aHHYnHpOBaHHe WIH H3'bllTHe aCCIlI'BOBaHHif. CeKBeCTpHpOBaHHl>Ie cpenCTBa
YJKe He MOm HCnOnb30BaTbCR,ll.IIlI BhlIIOnHeHHR OOll3aTenbCTB no MaTelltaM. OTCYTCTBHe KOHTpOJlll 3a BhlIIonHeHHeM OOll3aTenbCTB
B paMKaX COBecTcKoii: CHCTeMh! n03BOJIllnO 61O,lI2KeTHbIM )"IpelltJl.eHIDIM npaKTH'leCKH 6eCnpeDllTCTBeHHO 6paTl> Ha ceOll
06R3aTenbCTBa no pacXO;o,aM. n03TOMY B OOnbWHHCTBe Cn)"IaeB eJUlHcTBeHHhIM HHCTpYMeHTOM. KOTOP&IH MOm HCnOnb30BaTb
HanoroBo-OIO,lI2KeTW>Ie opraHW. lIaHlleTeR KOHTPOnb 3a BhIJleneHHeM cpe.I\CTB Ha OMary paCXO.I\OB. HMeHHo Ha :!IToif CTBJUfH. a He Ha
CTBJUfH npHHllTHR oOll3aTenbCTB. npOHCXO.I\HT CeKBeCTp8llH1l. EcnH OO1l3aTenbCTBa no paCXo;o,aM YJKe npHHllTh!. UK 06bI'iHO
npOHcxo.I\HT npH BhIlllIaTe 3apaoOTBoif nnaTh!, nocooHH no COIlHaJIbHOMY CTpa:x:OBaHHIO. ODRaThi KOMM}'HaJIbHblX ycnyr H
06cnYJKHBaHHH 3MOnllteHHOCTH, npaBHTenbCTBO He BblIIORHJler 06X38reJ1.6CTBIl no pacXO;o,aM. nOnOOHall CHTYBIlHlI He,ll.onyCTBMa npH
PIlI.lHOHaJIbHOif CHCTeMe ynpaaneHHR OIOJUKeTOM.
                                                    - 33 -

cHTYaIUIIO, KOr.n;a OHO OKa3LIBaeTCJI Hecnoc06HLIM BLmOJIHHTL 06J13aTeJILCTBa no OIIJIaTe
pacxo.n;OB. 1i0JIee TOro, cPHHaHCOBLle pemeHHJI, npHHHMaeMLIe no.n; .n;aBJIeHHeM 3THX
06CTOJlTeJILCTB, KaK npaBHJIO, 3aCTaBJIJllOT npHHOCHTL B JKepTBY Te KaTeropHH pacxo.n;OB,
KOTopLIe Han.eJIeHLI Ha 6y.n;ymee Ka3axcTaHa, TaKHe KaK rocy.n;apCTBeHHLIe HHBeCTHIUlH H
COIUlaJILHLIe nporpaMMLI, npH3BaHHLle 06JIeI"lHTL nOJIOJKeHHe HaCeJIeHHJI B Tpy.n;m.rH nepHO.n;
3KOHOMHqeCKHX npe06pa30BaHHH.           B   TO JKe BpeMJI, B paMKaX .n;eiiCTBYlOmeH CHCTeMLI
npe.n;nOqTeHHe OT.n;aeTCJI pacxo.n;aM Ha 3apa60THYIO IIJIaTY, cy6CH,D;HpOBaHHe npe.n;npHJlTHH, H,
Bo06me rOBopJl, nOMepJKaHHe CYlUeCTBYlOmHX CTpYKTYP.


82.          «CeKBeCTpaUHJllII JlBJIJleTCJI O.n;HOH H3 6IO,D;JKeTHLIX npoue.n;yp, OT KOTOPOH He06xo.n;HMO
OTKa3aTbCJI, 3aMeHHB ee 60JIee ueJIeC006pa3HLIMH npoue.n;ypaMH HCnOJIHeHHJI 6IO,D;JKeTa.
He06xo.n;HMO pa3pa60TaTL Ha,D;JIeJKalIUle MexaHH3MLI nporpaMMHpOBaHHJI .n;BHJKeHHJI .n;eHeJKHOH
HaJIHllHOCTH H orpaHHqeHHJl pacxo.n;OB nporH03HpyeMoH CYMMOH .n;eHeJKHLIX cpe.n;CTB Ha caMOH
paHHeH CTa,D;HH (T.e. eme.n;o npHHJlTHJI COOTBeTCTBYIOmHX 06J13aTeJILCTB). IIepBLrH mar B 3TOM
HanpaBJIeHHH 6LID npe.n;npHHJlT He.n;aBHO B KOHTeKCTe C03.n;aHHJI HOBOH CHCTeMLI Ka3HaqeHCTBa.
B paMKax      3TOH HOBOH CHCTeMLI eXe,D;HeBHOe npOH3Bo.n;CTBO IIJIaTeJKeH He 6y.n;eT
OCYlUeCTBJIJITLCJI HCXO,Il;Jl H3 HaJIHqHJI cpe.n;CTB, HO Ha pecny6JIHKaHCKOM ypOBHe 6y.n;eT BBe.n;eHa
CHCTeMa nepHO,D;HqeCKOrO BLI,IJ.eJIeHHJI cpe.n;CTB (HJIH npeJUIHCaHHH) Ka3HaqeHCKHM ynpaBJIeHHeM
6IO,D;JKeTHLIM yqpeJK.n;eHHJlM Ha OCHOBaHHH nporH03HpyeMoro npHTOKa .n;eHe}KHLIX cpe.n;CTB. 3TO
BIDKHoe HOBOBBe.n;eHHe n03BOJIHT 6IO,D;JKeTHLIM yqpeJK.n;eHHJlM IIJIaHHpOBaTb H KoppeKTHpOBaTL
CBOH 06J13aTeJILCTBa no pacxo.n;aM B paMKax YCTaHOBJIeHHOrO naKeTa aCCHrHOBaHHH H B TeqeHHe
onpe.n;eJIeHHoro nepHo.n;a BpeMeHH, XOTJI 3TOT nepHO.n;, CJIe.n;yeT 3aMeTHTL, JlBJIJleTCJI .n;OBOJIbHO
KOpOTKHM. IIoKa HeT rapaHTHH, lITO 6IO,D;JKeTHbIe yqpeJK.n;eHHJI 6y.n;YT nOCTYnaTb HMeHHO UK.            B
KaqeCTBe CJIe.n;yIOmero mara CHCTeMa npe.n;nHCaHHH 6y.n;eT .n;onOJIHeHa MexaHH3MOM
rJI06aJIhHOrO KOHTPOJIJI 3a npHHJITHeM 06JI3aTeJIhCTB, 06eCneqHBaIOIIUIM TaKOH nOPMOK, npH
KOTOPOM 6IO,D;JKeTHbIe yqpe}K,Il;eHHJI He 6y.n;YT npHHHMaTb 06J13aTeJIbCTBa no pacxo.n;OBaHHIO
cpe.n;CTB B pa3Mepe, npeBLImaIOmeM YKa3aHHLIH B npe.n;llHcaHHH. 3TOMY 6y.n;eT BO MHorOM
cnoc06CTBOBaTb IIJIaHHpyeMM KOMnbIOTepH3aUHJI Ka3HaQeHCKHX onepaUHH.


83.          ~eKTHBHOCTh H Halle)I(HOCTb 61O,Il:llCeTHOB ,IleSlTeJIbHOCTH. KpoMe Toro,
He06xo.n;HMO npHHJlTb Mepbl, HanpaBJIeHHble Ha npe.n;ynpe}K,Il;eHHe CJIyqaeB MOmeHHHQeCTBa,
He3aKOHHoro npHCBOeHHJI H paCTpaTLI cpe.n;CTB.        B 3TOH   CBJl3H He06xo.n;HMO B nepBYIO OQepe.n;b
(i) YCTaHOBHTb MexaHH3MLI BHYTpeHHero KOHTPOJIjJ: 3a paCXO.ll.aMH B paMKax yqpeJK.n;eHHH;
(ii) YCTaHOBHTb Ha,D;JIeXalIUle npaBHJIa ocymeCTBJIeHHJI 3aKyrroK; H (iii) rrOBhICHTb
3cPcPeKTHBHoCTb KOHTpOJIJI Ha CTa,n;HH, npe.n;mecTBYIOmeii ocymeCTBJIeHHIO IIJIaTeJKeii.


84.          QTo6LI o6ecnellHTb nOJIHYIO 3cPcPeKTHBHoCTL o6mero KOHTPOJIJI, ocymeCTBJIJleMOrO
Ka3HaQeHCTBOM, 3TOT KOHTPOJIL .n;OJIJKeH OCHOBbIBaTbCJI Ha 60JIee COBepmeHHbIX MexaHH3Max
IIpOBepKH KaJK,l{oif CTaThH paCXO/fOB, ocymecTBJIJleMbIX Ka}K,Il;bIM 6IO,D;JKeTHLIM yqpe}K,Il;eHHeM   (8
r.naBe   V   BTOPOH QaCTH HaCTOJImerO .n;Olma,n;a o6CYJK.n;aIOTCJI B03MO}KHLIe BapHaHThI TaKoro
KOHTPOJIJI, pa3pa60TaHHhle Ha OCHOBe MeJK.n;YHapO,D;Horo OnbITa). TaKOH BHYTpeHHHH KOHTPOJIh
He .n;OJIJKeH orpaHHllHBaTbCJI 061IU1MH cPHHaHCOBbIMH C006paJKeHHJlMH, 06eCneQHBM
HCnOJIb30BaHHe aCCHrHOBaHHbIX cpe.n;CTB cTporo no Ha3HaQeHHIO H C06JIIO.n;eHHe .n;pyrnx npaBHJI,
onpe.n;eJIJlIOmHX nOPMOK OCYlUeCTBJIeHHJI rocy.n;apCTBeHHbIx pacxo.n;OB (HanpHMep, npaBHJI
ocymeCTBJIeHHJI 3aKynoK HJIH 3aKOHo.n;aTeJILHbIX aKTOB 0 rpa}K,Il;aHCKOH cJIYJK6e).


85.          He06xo.n;HMO TaKJKe npHHJlTb MepbI, HanpaBJIeHHbIe Ha nOBbImeHHe 3cPcPeKTHBHOCTH
3aKynOK rocy.n;apCTBOM TOBapOB H YCJIyr, nOCKOJILKY pacxo.n;bI Ha 3TH 3aKynKH nOllTH B QeTbIpe
pa3a npeBbImaIOT cPOH.n; 3apa60THOH IIJIaThI 6IO,IUKeTHbIX yqpeJK.n;eHHii. K COJKaJIeHHIO, eCJIH He
                                                - 34-

ClIHTaTh paCXO~OB, $HHaHCHpyeMhIX Me:>K..nYHapO~HhIMH ~OHOPaMH, B 'IaCTHOCTH BceMHpHhlM
BaHKOM, npaKTH'IeCKH He npO~HHYJIaCh ~ejlTeJIhHOCTh, CBjl3aHH~ C YCTaHOBJIeHHeM npaBHJI H
npon;e~p 38xyrrOK. 3aKynKH HeKOTophIX TOBapoB H YCJIyr HHor~a ocyrn;eCTBJIjlIOTCjI Ha
KOHKYPCHOH OCHOBe, O~HaKO TaKHX npHMepOB HeMHoro. BOJIhWHHCTBO 3aKynoK
ocyru;eCTBJIjlIOTCjI BHe CHCTeMaTH'IeCKOrO HCnOJIh30BaHHjI npon;e~p KOHKYPCHhIX ToprOB. Eru;e
66JIhwyIO 06ecnOKoeHHOCTh BhI3hlBaeT TOT $aKT, 'ITO npH 3aKJIIO'IeHHH rocy~apcTBOM
KOHTpaKTOB Ha 3aKynKH 'IaCTO B03HHKaIOT KOH$JIHKThl HHTepeCOB, 'ITO OTKphIBaeT WHpOKHe
B03MOXHOCTH ).:(lliI $aBopHTH3Ma H Koppynn;HH.


86.       KpoMe TOro, Heo6xo~MO YCHJIHTh KOHTPOJIh 38 P8CXOj{BMH H8 CTMHH,
IIpe){II1eCTB)'IOIQeii ocymeCTBJIeHHIO IIJI8TeJKeii. B HaCTOjlru;ee BpeMjI npOn;e~yphI KOHTPOJljl 3a
paCXO~aMH He onpe~eJIeHhl ~OCTaTO'IHO 'IeTKO H n03TOMY npaKTH'IeCKH He C06JIIO~aIOTCjI.
BOJIee roro, BBH~ MHOrO'IHCJIeHHhIX CJIyqaeB HeBhInOJIHeHHjI rocy~apcTBOM CBOHX
06j13aTeJIhCTB no nJIaTeXaM, nOCTaBru;HKH, KaK npaBHJIO, Tpe6yroT OnJIaThI TOBapOB H yCJIyr
eru;e ~o HX nOCTaBKH. TaKoe nOJIOXeHHe Beru;eH CTaBHT no~ Bonpoc OCHOBHoe coo6paxeHHe
OTliOCHTeJIhHO ocyrn;eCTBJIeHHjI KOHTPOJIjI 3a pacxo~aMH: OnJIa'IeHHhIe YCJIYrH ~OJIXHhl 6hITh
$aKTH'IeCKH OKa3aHhl. HeCMOTpjl Ha B03MOXHOCTh peTpOaKTHBHOH npOBepKH, 3TO BP~ JIH
npHHeceT XeJIaeMhle pe3YJIhTaThI H C 60JIhlllHM TPy~OM CMoxeT npe~OTBpaTHTh
3JloynoTpe6JIeHHjI.


87.       3a nOCJIe~ee BpeMjI 6hm npOBe~eH p~ pe$opM. Ha'IaT npon;ecc C03~aHHjI ceTH
OT~eJIeHHH Ka3Ha'IeHCTBa, KOTophle npHCTynHJIH K ocyrn;eCTBJIeHHIO YCHJIeHHOrO
npe~BapHTeJIhHOrO KOHTPOJIjI 3a npOH3BO~CTBOM nJIaTexeH. Ha'IHH~ C           1 ceHTjl6pjl 1995   ro~a,
Bce nJIaTe.>KHhIe pacnOpjlXeHHjI B paMKax pecny6JIHKaHCKoro 6IO~eTa ~OJIXHhl npOBepjlThCjI
3THMH OT~eJIeHHjlMH Ka3Ha'IeHCTBa. CJIe~IOru;HM warOM 6y~eT pa3pa6oTKa 60JIee
3$$eKTHBHhIX HHCTpYMeHTOB 06j13aTeJIhHOrO KOHTPOJljl, ocyru;eCTBJIjleMoro ~OJIXHOCTHhIMH
JIHn;aMH, OTBe'IaIOru;HMH 3a nepe'IHCJIeHHe   cpe~CTB.   nyTeM YCTaHOBJIeHHjI npaBHJIa, B
COOTBeTCTBHH C KOTOPhIM ~jI KaJIOlOH KaTeropHH paCXO~OB ~OJIXHa COCTaBJIjlThCjI
COOTBeTCTByroru;~ ~OKYMeHTan;HjI     B Ka'IeCTBe OCHOBhl )J,IDI npOBepKH COOTBeTCTBHjI
YCTaHOBJIeHHhIM   npou.e~ypaM   BH)'TPeHHero KOHTPOJIjI, a COOTBeTCTByIOID;He   ~OJIXHOCTHhle    JIHn;a
~OJIXHhl OTKa3h1BaThCjI nepe'IHCJIjITh cpe~CTBa, eCJIH He C06JIIO~eHhI Bce npaBHJIa.


Ay.llHT 6IO.ll>KeTHOIt .lleSlTeJlhHOCTH


88.       H~exaru;HM o6pa30M opraHH30BaHHhlH 6IO~eTHhIH aY~HT MoxeT ChlrpaTh BaXHYIO
POJIh B npon;ecce pan;HOHaJIH3an;HH rocy~apcTBeHHhlX paCXO~OB. Moryr HCnOJIh30BaThCjI CaMhIe
pa3Hoo6pa3Hhle MeTO~1 aY~Ta - OT BHYTpeHHero aY~Ta rocy~apcTBeHHhIX yqpe)K,lJ;eHHH,
OCHOBHOH n;eJIhIO KOTOPhIX jlBJIjleTClI BhI1lBJIeHHe CJIyqaeB HapyweHHjI YCTaHOBJIeHHhIX npaBHJI,
~o BHeWHHX aY~HTopCKHX npOBepOK, Heo6xo~MhIX ~jI On;eHKH o6ru;eH 3$$eKTHBHoCTH
rocy~apcTBeHHhIX paCXO~OB H pa3pa6oTKH BapHaHTOB Heo6xo~HMhIX pe$opM. Pa3BHTHe 3THX
$yHKn;HH HMeeT oco6eHHo BaXHoe 3Ha'IeHHe ~jI Ka3axcTaHa no CJIe~yroID;HM ~YM npH'IHHaM.
Bo-nepBhIx, B paMKax cOBeTcKoH HHCTHTyn;HOHaJIhHOH CHCTeMhI KOHTPOJIh 3a ~ejlTeJIhHOCThIO
Pa3JIH'IHhIX rocy~apCTBeHHhIX yqpe)K,lJ;eHHH ocyru;eCTBJIjlJICjI B OCHOBHOM KOMMYHHCTH'IeCKOH
napTHeH. BHe3anHOe HC'Ie3HOBeHHe BHeInHerO KOHTPOJIjI 3a ~ejlTeJIhHOCThIO rocy~apcTBeHHhlX
opraHOB OTKphlBaeT WHpOKHe B03MOXHOCTH ~jI 3JIoynoTpe6JIeHHH H HCnOJIh30BaHHjI cpe~CTB
He no Ha3Ha'IeHHIO. BO-BTOPhIX, n;eJIh 6IO~eTHoro aY~HTa He orpaHH'IHBaeTCjI BhI1lBJIeHHeM H
yCTpaHeHHeM OT~eJIhHhIX He~OCTaTKOB. AY~HT ~OJI.>KeH TaK.>Ke n03BOJIlITh On;eHHBaTh
3$$eKTHBHOCTh rocy~apCTBeHHhIX nporpaMM, BhI1lBJI1ITh pacxo~hI HJIH npaBHJIa HX
ocyru;eCTBJIeHHjI, KOTophle yxe YCTapeJIH HJIH C06JIIO~eHHe KOTOPhIX CBjl3aHO C onpe~eJIeHHhlMH
                                                        - 35 -

TpY,llHOCTHMH HJIH TpeoyeT 3HaquTeJIbHbIX 3aTpaT, H BHOCHTb H3MeHeHHH B He.n;OCTaTOqHO
np0.n;yMaHH1lIe HJIH CJIHlIIKOM aMOHUH03HbIe pe<pOpMbI nyTeM BHe.n;peHHH ycnelIl1IbIX
HOBOBBe.n;eHHH H 3KCnepHMeHTOB.


89.       ,Il;eHCTByIOm;He B HaCTOHm;ee BpeMH CHCTeMbI aY,IlHTa He OTBeqaIOT 3THM 3a,rt;aqaM.
HCnOJIl.3yeMaH CHCTeMa           BH)'TpeHHerO aY,aHTa   B OCHOBHOM opHeHTHpOBaHa Ha KOHTpOJIb 3a
.n;eHTeJIbHOCTbIO KOMMepqeCKHX CTPYKTYp. 3TH <PYHKUHH BbInOJIHHIOTCH focy.n;apCTBeHHbIM
KOMHTeTOM <pHHaHCOBOrO KOHTPOJIH (fK<1>K), C03.n;aHHbIM B OKTJlOpe           1992   ro.n;a nyTeM
OO'be.n;HHeHHH OT.n;eJIOB BHYTpeHHero ay.n;HTa (peBH3HoHHbIX oT.n;eJIOB) Bcex rocy.n;apCTBeHHbIX
yqpe:>K,lleHHH (3a HCKJIIOqeHHeM OT.n;eJIOB, BXO,rt;Hm;HX B COCTaB HeCKOJIbKHX yqpe:>K,lleHHH, TaKHX
Kax MHHHCTepcTBo OOOPOHLI, MHHHcTepcTBo HHOCTpaHHLIX .n;eJI H MHHHcTepcTBo BHYTpeHHHX
.n;eJI), a npH MHHHcTepcTBe <pHHaHcoB obm opraHH30BaH oT.n;eJIbHbIH KPO (KOHTPOJIbHo-
peBH3HoHHbIH oT.n;eJI). focy.n;apCTBeHHbIH KOMHTeT <pHHaHcoBoro KOHTPOJIH obm Ha,rt;eJIeH
rrmpOKHMH nOJIHOMOqHHMH no ocym;eCTBJIeHHIO ay.n;HTa <pHHaHcoBoH H KOMMepqeCKOH
.n;eHTeJIbHOCTH MHHHCTepCTB, rocy.n;apCTBeHHbIX KOMHTeTOB, yqpe:>K,lleHHH, MeCTHbIX opraHOB
HCnOJIHHTeJIbHOH BJIaCTH, yqpe)K,rt;eHHH, .n;eHCTByIOm;HX Ha OCHOBe caMo<pHHaHcHpoBaHHH H
OpraHH3aUHH, <pHHaHcHpyeMbIX H3 oIO,l1)KeTa. Kpyr nOJIHOMOqHH noro rocy.n;apCTBeHHOrO
opraHa BKJIIOqaeT TaIOKe TaKHe <PYHKUHH KaK OKa3aHHe co.n;eHCTBHe npaBOOXpaHHTeJIbHbIM
OpraHaM H OpraHaM oe30nacHocTH OOPOTbCJI C KOppYJIl\HeH H npeCTYnHOCTbIO, HJIH ay.n;HT
3K.CnOpTHO-HMnOPTHbIX H BaJIIOTHbIX onepaUHH. O.n;HaKo Ha npaKTHKe OOJIbIlIHHCTBO
COTPY.n;HHKOB fK<1>K, KOTOPbIX B HaCTOHm;ee BpeMJI HacquTbIBaeTCJI         2,975   qeJIOBeK,
.n;eHCTBYIOIIlHX Ha Bcex ypOBHHX opraHOB rocy.n;apCTBeHHOI'O ynpaBJIeHHH, 3aHHMaIOTCH ay.n;HTOM
KOMMepqeCKHX CTPYKTYP, B qaCTHOCTH npoBepKoH COOJIIO.n;eHHH HMH HaJIOrOBOro
3aKOHo.o;aTeJIbCTBa.


90.       Il,eHTp BHHMaHHH opraHOB BHYTpeHHero ay.o;HTa .n;OJI)KeH nepeKJIIOqHTbCH Ha
rocy.n;apCTBeHHhle yqpe:>K,lleHHH. Ynpom;eHHIO 3Toro npouecca oy.n;eT cnoCOOCTBOBaTb
peHHTerpaUHH <pHHaHcoBoro ay,llHTa B paMKax MHHHCTepCTBa <pHHaHcoB. 3TO nOBbICHT
3<p<peKTHBHoCTb npOBepOK H oy,neT cnoCOOCTBOBaTb pacIIIHpeHHIO nOJIHOMOqHH MHHHCTepCTB<1
<pHHaHcOB, qTO BalKHO B YCJIOBHHX nepexo.n;Horo nepHo.n;a, Kor.n;a OOJIbmee BHHMaHHe .n;OJDKHO
y.n;eJIHTbCH ynpaBJIeHHIO oIO,l1)KeTHbIM npoueCCOM. TaxaH ueHTpaJIH3aUHH nOJIHOMOqHH n03BOJIHT
TaIOKe COKpaTHTb nepCOHaJI fK<1>K nyTeM ynpa3,rt;HeHHH ero oT.n;eJIeHHH Ha paHoHHoM YPOBHe.
H HaKOHeu,      ObIJIO   Obi   ueJIeCOOOpa3HblM nepeCMOTpeTb pe<poPMY, npOBe,neHHYIO B oKTHope
1992 ro.n;a H   n03BOJIHTb OTpaCJIeBblM MHHHCTepCTBaM BBecrn CaMOCTOHTeJIbHble CHCTeMbl
BHYTpeHHero ay.n;HTa.


91.       B     Ka3axcTaHe HHKor.n;a He BbInOJIHHJIHCb <PYHKUHH He3aBHCHMoro         BHenmero aY,!.CHTa
OlO,l1)KeTHOH .n;eHTeJIbHOCTH. HOBaH KOHCTHTYUHJI, npHHHTaH B asrycTe         1995   ro.n;a,
npe.n;ycMaTpHBaeT C03.n;aHHe CqeTHoro KOMHTeTa, KOTOPbIH, Kax npe.n;nOJIaraeTCH, B03bMeT Ha
ceoH BbInOJIHeHHe 3THX <PYHKUHH. O,llHaxo ,no CHX nop MepbI, npHHHTbIe BJIaCTHMH B
COOTBeTCTBHH C 3THM nOJIO)KeHHeM KOHCTHTYUHH, HanpaBJIeHbI CKopee Ha C03.n;aHHe
HHcneKTHpYIOm;ero opraHa, no.n;qHHHIOm;erOCH IIpe3H.n;eHTY, KOTOPblH BO MHorHX OTHomeHHHX
oy.n;eT .n;yOJIHpOBaTb <PYHKUHH fK<1>K, a He Ha C03.n;aHHe yqpe)K,rt;eHHH, OTBeqaIOm;erO 3a
BHemHHH ay.n;HT. C O,nHOH CTOPOHbI, aBTOHOMHH KOMHTeTa He rapaHTHpOBaHa. C .n;pyroH
CroPOHbI, KOMHTeT MO)KeT ObITb Ha,rt;eJIeH CTOJIb mHpOKHMH nOJIHOMOqHHMH, qTO OHH MOryT
nOMeIIIaTb eMy BbInOJIHHTb npOBepOqHbIe <PYHKUHH, nOCKOJIbKY OH oy,neT BMemHBaTbCH B
npHHHTHe peIIIeHHH PYXOBO,nCTBOM yqpe:>K,lleHHH HJIH B ,neHTeJIbHOCTb qaCTHOro ceKTopa. qToobl
CqeTHhlH KOMHTeT .n;eHCTBHTeJIbHO BbInOJIHHJI <PYHKUHH BHemHero ay,nHTopa rocy,napCTBeHHbIx
yqpe}l(..D;eHHH, HeOOXO,llHMO nepeCMoTpeTb oCHOBOnOJIaraIOm;He npHHUHnbI ero ,neHTeJIbHOcTH.
                                                              - 36-

Bo-nepBbIX, Heo6xo,lUlMO tIeTKO YCTaHOBHTb ueJIH ,ue.sITeJIbHOCTH 3TOro HOBOro oprma, KOTOPasI
,uOJIJKHa 6bITb orpaHHt..mBaTbC.sI KOHTpOJIeM 3a cPHHaHCOBbIMH onepawt.sIMH rocy,uapcTBeHHbIX
yqpe}K,Il;eHHit BO-BTOPbIX, 3TOMY opraHY ,uOJIJKHa 6blTb npe,uOCTaBJIeHa MaKCHMaJIbHO
B03MOJKHasI aBTOHOMH.sI: cBo6o,ua BbI60pa yqpe}K,Il;eHHH, nO.IUIeJKaII.{HX npoBepKe, np.sIMOe
B3aHMo,ueHcTBHe C o6II.{eCTBeHHOCTblO rryTeM rry6JIHKaUHH H8.H6oJIee BaJKHbIX pe3YJIbTaTOB
pa60Tbi H Ha3HatIeHHe tIJIeHOB KOMHTeTa Ha 60JIee .IUIHTeJIbHble CPOKH (II.sITb JIeT
npe,uCTaBJI.sIeTC.sI MHHHMaJIbHblM peKOMeH,Il;yeMblM CpOKOM).                    Ii   HaKOHeu, 3TOMY yqpe}K,Il;eHHlO
Heo6xo,uHMO orpaHHt..mTb CBOlO ,ue.sITeJIbHOCTb Ha HatIaJIbHOH CTa,Il;HeH OCHOBHOH 3a,Il;atIeH
npoBepKH npaBHJIbHOCTH 6lO,Il;JKeTHb1X CtIeTOB. BCJIH 3Ta cPYHKIJ.H.sI 6y,ueT tIeTKO oTpa6oTaHa,
yqpe}K,Il;eHHe MOJKeT nOCTeneHHO paCIlIHpHTb MacIIITa6bI cBoeH ,ue.sITeJIbHOCTH, B3.sIB Ha ce6.sI
yrrpaBJIeHHe npoBe,ueHHeM ay,uHTa, a 3aTeM H oueHKY nOJIHTHKH.


PeclJopMa CHCTeMbl rOCY.llapCTBeHHblX Y'lpe)l(.lleHHii


92.           BJIaCTH OT,ualOT ce6e OTtIeT B TOM, tITO tIHCJIeHHOCTb pa60THHKOB, 3aH.sITbIX B
HaCTO.sIII.{ee BpeM.sI B rocy,uapCTBeHHOM ceKTope HeCOH3MepHMa C 6lO,Il;JKeTHbIMH
B03MOJKHOCT.sIMH H lITO ee Heo6xo,uHMO COKpaTHTb. O,uHaKO npe}K,Il;e Bcero Heo6xo,uHMO
3aH.sITbC.sI He CHMIITOMaMH np06JIeMbI H36bITOtIHOrO nepCOHaJIa, a ee npHt..mHaMH, KOTopbIe
3aKJIlOtIalOTC.sI B He3cPcPeKTHBHOCTH opraHH3aUHOHHOH CTPYKTYPbI rocy,uapCTBeHHoro ceKTopa.
JIlO6oe COKpaII.{eHHe nepCOHaJIa rocy,uapCTBeHHbIX yqpe}K,Il;eHHH 6y,n;eT .sIBJI.sITbC.sI JIHilib
n060t{HbIM 3cPcPeKTOM 3HatIHTeJIbHOH peopraHH3aUHH rocy,uapCTBeHHbIX CTPYKTYP H nporpaMM.


93.           B HaCTO.sIII.{ee BpeM.sI ,n;OJI.sI   t:jJoHJ{a 3apa6oTHoii IIJIaTbI B 6lO,Il;JKeTe, COCTaBJI.sIlOII.{asI
OKOJIO   15   npoueHToB 06II.{eH CYMMbI pacxo,uOB H3 rocy,uapcTBeHHoro 6lO,Il;JKeTa, BnOJIHe
cooTBeTcTByeT aHaJIOrHtIHbIM nOKa3aTeJI.sIM no cTpaHaM co cpe,uHHM H BbiCOKHM ,uOXO,uOM.
O,n;HaKo B YCJIOBH.sIX o6II.{ero 6lO,Il;JKeTHOrO ,uecPHUHTa, OTHOCHTeJIbHasI ,uOM 3THX pacxo,uoB B
BBll cOKpaTHJIaCb C         4,8   npoueHTa B       1993   ro,uy ,uo   2,8   npOueHTa B   1994 ro,uy.     3TOT nOKa3aTeJIb
Heo6bNaHHO HH30K no JIlO6bIM Me}K,Il;YHapO,Il;HbIM CTaH,Il;aPTaM (CM. Ta6JIHUY                           10).   DOJIee Toro,
cpe,uCTBa, BbI,II;eJI.sIeMble Ha 3apa6oTHYlO IIJIaTY, 06'heM KOTOPbIX COKpaTHJIC.sI, npHXO,lUlTC.sI
pacnpe,n;eJI.sITb MeJK,Il;Y nOCTO.sIHHO pacTYII.{HM KOJIHtIeCTBOM pa6oTHHKOB.


94.           B pe3YJIbTaTe     pa3Mep 3apa6oTHoii IIJIaTbI Bcex KaTeropHH pa60THHKOB pe3KO
COKpaTHJIC.sI: 3apIIJIaTa HaH60JIee HH3KOOIIJIat..mBaeMbIX pa6oTHHKOB ropa3,uo HHJKe
npOJKHTOtIHOrO MHHHMYMa, a HaH60JIee BbICOKOOIIJIatIHBaeMble pa60THHKH nOJIyqalOT JIHIIIb
He3HatIHTeJIbHYlO tIaCTb Toro, tITO OHH MOrJIH 6b1 nOJIyqaTb B tIaCTHOM ceKTope. B KatIeCTBe
o6II.{ero npaBHJIa, HatIaJIbHa.sI 3apa6oTHa.sI IIJIaTa npocPeccHOHaJIbHOrO rocy,uapCTBeHHOrO
CJIYJKaII.{ero ,uOJIJKHa no KpaHHeH Mepe paBH.sITbC.sI 3HatIeHHlO BBll B paCtIeTe Ha ,uYIIIY
HaCeJIeHH.sI. BCJIH HCnOJIb30BaTb 3TY HOPMY, 3apa6oTHa.sI IIJIaTa «cneUHaJIHCTa,. ,uOJIJKHa 6bITb no
KpaHHeH Mepe B ,D;Ba pa3a BbIIlIe, tIeM B HaCTO.sIII.{ee BpeM.sI. K03cPcPHI.{HeHT                     PHt:jJt:jJepeHlQfa.L(HH
3apa6oTHoH IIJIaTbI, KOTOPblH B HaCTO.sIII.{ee BpeM.sI COCTaBJI.sIeT OT                  1 ,uo S,   TaKJKe .sIBJI.sIeTC.sI
HeonpaB,uaHHo CJKaTbIM. l103TOMY B CJIOJKHBIlIeHC.sI CHTYaUHH Heo6xo,nHMO nOBbIIlIeHHe
3apa6oTHOH IIJIaTbI Bcex, a He TOJIbKO HeKOTopbIX KaTeropHH pa60THHKOB. O,uHaKO TaKoe
nOBbIIIIeHHe B03MOJKHO JIHilib B COtIeTaHHH C COKpaII.{eHHeM IlITaTOB H nOBbIIlIeHHeM
3cPcPeKTHBHOCTH ynpaBJIeHH.sI Ka,Il;paMH.
                                                              - 37 -

           Ta6JIuua 10: (J)oHJl aapa6oTHoA nJlaTbl ceKTopa rOCYJlapCTBeHHoro ynpaBJIeHHlI
                                    B OTJleJIbHhlX CTpauax B 1994 r.


 CTpaHa                               06~1UI   cyMMa pacxo,n;OB        <IlOH.n; 3apa6oTHOH MaThI      <IloH.n; 3apa6oTHOH !DIaTI>I
                                               (% BBll)                     (% pacxo,n;OB)                    (% BBll)



 CTl!aHI>I 6l>IBmero cCCP
 Ka:JaxCTaH                                      18.2                            15.3                             2.8
 POCCHJl                                         46.3                            13.5                             6.3

 C:!l!aHI>I co cl!e,!!,!!HM gOXOgOM
 'IemcKBJI Pecny6JIHKa II                       51.9                              8.3                             4.3
 Bearpllll 41                                   64.7                             11.7                             7.6
 PyMJ.nm.g 21                                   44.3                             13.6                             6.0

 rpeUIIlI II                                     43.1                            22.5                             9.7
 llopT}'I'a..'UI.II 41                           48.5                            24.7                            12.0

 CTl!aHI>I C Bl>ICOKHM ,gOXOgOM
 Bem.I'IIlI 21                                  56.7                             17.8                            10.1
 $paHUIDl 21                                    54.4                             14.8                             8.1
 repMIlHHJI 21                                  62.3                             18.2                            11.4
 HpJIaJf.R}UI 31                                54.2                             18.1                             9.8
 HH.n;epJIIIH.n;bI II                           70.9                             13.3                             9.4
 HcnaBHJl 31                                    50.5                             19.6                             9.9
 BeJIHK06pHTaHIIlI 21                           56.2                             18.6                            10.4

 llpHMe"laHHe: C }"'IeTOM ueHTpaJn.Hoe npaBHTem.cTBO H MeCTHble OpraHbl rocy,n;apCTBeHHoro ynpaBJIeHHJl, HO oel Y"IeTa CPOH.n;OIl
 couaaJn.Horo ooecne"leHllll.
 II 3a 1993 r.
 21 3a 1992 r.
 31 3a 1991 r.
 41 3a 1990 r.
 HCTO"lHHKH: MB<Il: GFS H IFS; oala 3KOHOMB'leCKHX H COUHam.HbIX AaHHbIX (BESD) BceMHpHoro BaBKa.




95.              K CO}KaJIeHHIO, B HaCTOiuuee BpeMJI TPy,n;HO C ,n;ocTaTOt{HOH CTerreHbIO TOt{HOCTH
orrpe,lleJIHTb MBCIIITB6bI H CTPYKTYPY ceKTopa rocy,n;apCTBeHHbIX yqpe}K,f(eHHH.                          B   Ta6JIHII,e    5
rrpe,llCTaBJIeHO OII,eHOtIHOe 3Ha'IeHHe 'IHcneHHocTH rOCY,llapCTBeHHbIX cnY}KaIII,HX, COCTaBJIJlIOIII,ee
OKOJIO MHJIJIHOHa 'IeJIOBeK, O,llHaKO TaM YKa3aHO CKopee KOJIH'IeCTBO pa60'IHX MeCT B
COOTBeTCTBHH co llITaTHbIM paCllHcaHHeM, a He <i>aKTH'IeCKOe KOJIH'IeCTBO pa60THHKOB. 3TO
OTpa}KaeT rropJl,llOK HaHMa rocY,llapCTBeHHbIX CJIY}KaIII,HX. Ka3aXCTaH YHaCJIe,llOBaJI OT
COBeTCKoro COI03a OTKPbITYIO CHCTeMY rp8.)J(,aBHCKOii CJIjT)K6bI, B paMKax KOTOPOH Ka}K.f(Oe
6:K>,ll}KeTHoe yqpe}K,f(eHHe caMOCTOJlTeJIbHO HaHHMaeT H YllpaBJIJleT CBOHMH Ka,llpaMH, 3aKJIIO'IaJl
C HHMH KOHTpaKTbI, C TeM t{To6b1 3anOJIHHTb yTBep}K,f(eHHbIe ueHTpOM n03HII,HH. IIPH TaKOH
CHCTeMe He ,n;eJIaeTCJI pa3JIH'IHH Me}K,f(y 3aHSlTOCTbIO B rocy,n;apCTBeHHbIX yqpe}K,f(eHHJlX H
KOMMep'IeCKHX rrpe,llrrpHJlTHJlX.


96.              B Ka'IeCTBe    rrepBoro mara B npouecce pa3pa6oTKH KOMIlJIeKCHOH nOJIHTHKH B
OTHomeHHH 3aHSITOCTH B rOCY,llapCTBeHHOM ceKTope Heo6xo,llHMO IIpOBeCTH IIepeIIHCb
pa6oTlIHKOB, 3aHSlThiX B ceKTope C YKa3aHHeM HX xapaKTepHCTHK (T.e. o6pa30BaHHe,
                                                  - 38 -

KaTeropHro). B TeX CJIYliaJIX, KOr.n;a B npo~ecce COKpam;eHHX Ka.n;pOB He y,n:aeTCX H36eJKaTb
onpe,n:eJIeHHOH CTeneHH ,n:e~eHTPaJIH3a~HH, npH npHHXTHH COOTBeTcTByroIIJ;HX pemeHHH
Heo6xo,n:HMO PYKOBo,n:CTBOBaTbCX KpHTepHXMH H npH~naMH, yCTaHOBJIeHHbIMH ,n:JIX Bcero
ceKTopa rocy,n:apCTBeHHoro ynpaBJIeHHX. TaKaJI nepenHCb n03BOJIHT palpa60TaTb
,aHej)(j)(f:pcHIQfPOBaHHbIil no,llXo,a K pa3JIH'IHbIM KaTeropHXM rocy.n;apCTBeHHbIX CJIYJKaIIJ;HX,
npe.n:yCMaTpHBaIOIIJ;HH CJIe.n;yroIIJ;He Mepbl:


  (i)     He yqHTbIBaTb CJIYJKam;HX yqpeJK.n;eHHH, He XBJIXroIIJ;HXCX rocy,n:apCTBeHHhIMH, B tIHCJIe
          rocy,n:apCTBeHHbIX CJIyJKaIIJ;HX.


  (ii)    YCTaHOBHTb Cne~HaJIbHble npaBHJIa B OTHomeHHH yqHTeJIeH H Me.n;nepCOHaJIa,
          nepCOHaJIa MeCTHbIX opraHOB rocy.n;apCTBeHHoro ynpaBJIeHHX, cy,n:e6HbIX H
          3aKOHo,n:aTeJIbHbIX opraHOB,


  (iii)   npe.n:yCMOTpeTb paHHHH BbIXO,n: Ha neHcHro HeKOTopbIX KaTeropHH CJIYJKaIIJ;HX H


  (iv)    nepeBeCTH Ha ,n:pyryro pa6oTY, nepeKBaJIH¢lH~HpoBaTb HJIH YBOJIHTb pa6OTHHKOB
          ,n:pyrnx KaTeropHH. Kor.n;a 6y,n:YT nOJIyqeHbI ,n:aHHbIe 0 tIHCJIeHHOCTH H COCTaBe
          nepCOHaJIa, MOJKHO 6y,n:eT pa3pa6oTaTb BbIXo,n:Hble noco6HX ,n:JIX pa3JIHtIH1>IX KaTeropHH
          pa60THHKOB, He OrpaHHtIHBaroIIJ;HeCX 3apa6oTHOH MaTOH 3a ,n:Ba Mecx~a.


97.       COKpam;eHHe Ka.n;pOB ,n:OJDKHO COnpOBOJK.n;aTbCX MepaMH, HanpaBJIeHHhIMH Ha
yJIYt{meHHe YCJIOBHH pa60TbI H cPHHaHcoBoro nOJIOJKeHHX OCTaBnIHXCX rocy,n:apCTBeHH1>lX
CJIYJKaIIJ;HX. llPH BceH ee KaJKym;eHcx rH6KocTH .n;eHcTByrom;aJI B HaCTOXm;ee BpeM.sI CHCTCM8
rp8.JK,IfaHCKOH CJIy;K6bI06JIa.n;aeT MHorHMH He,n:OCTaTKaMH. Bo-nepBbIx, OHa HaCaJK.n;aeT
yrO,n:HHtIeCTBO H ,n:HC~llJIHHY B ym;ep6 HHH~aTHBe H OTBeTCTBeHHOCTH. BO-BTOPbIX, TaKaJI
CHCTeMa C03,n:aeT np06JIeMbI, CBX3aHHbIe C H3JIHmHeH JIOXJIbHOCTbro, nOCKOJIbKY nepCOHaJIY
BbIro,n:Hee CJIYJKHTb HHTepeCaM CBoero yqpeJK.n;eHHX, a He Bcero rocy,n:apCTBa. B-TpeTbHX, TaKaJI
CHCTeMa CTaBHT rpaJK.n;aHCKYro CJIYJK6y B 3aBHCHMOCTb OT npeBpaTHOCTeH nOJIHTHtIeCKOro
npoIJ,ecca (rOCY,Il;apCTBeHHbIe ,Il;OJDKHOCTH MoryT pacnpe,n:eJIXThCX cpe,n:H CTOPOHHHKOB napTHH
HJIH nOJIHTHtIeCKOH rpynnupoBKH, n06e,n:HBmeH Ha BbI6opax). 3TO oco6eHHO onaCHO ,n:JIX
Ka3aXCTaHa. r.n;e TeKyqecTb Ka.n;pOB Ha OTBeTCTBeHHbIX nOJIHTHtIeCKHX .n;OJIJKHOCTXX XBJIXeTCX
,n:OBOJIbHO 3HatIHTeJIbHoH. B·tIeTBepThIX, 3Ta CHCTeMa npOTHBOpetIHT O,n:HOMY H3 OCHOBHbIX
npHH~nOB ,n:eMOKpaTHH: paBHbIH ,n:OCTYn Bcex rpaJK.n;aH K rocy,n:apCTBeHHbIM .n;OJDKHOCTXM.          Ii
HaKOHe~, B COtIeTaHHH C JIHHeifHOH CHCTeMOH 3apa6oTHOH MaTbI, OCHOBaHHOH Ha pacnucaHHH
,Il;OJIJKHOCTeH, cnOC06CTByeT pa3pacTaHHro a.n;MHHHCTpamBH1>IX CTPYKTYP.


98.       B npo~ecce pa3pa6oTKH HOBoro 3aKOHo,n:aTeJIbCTBa 0 rpaJK.n;aHCKOH CJIYJK6e BJIaCTXM
CJIe.n:yeT paCCMOTpeTb B03MOJKHOCTb OTKa3a OT ,n:eHCTByrom;ero B HaCTOXm;ee BpeMX peJKHMa H
nepeXO,Il;a Ha peJKHM, B 60JIbmeH CTeneHH cnoco6cTByrom;HH He3aBHCHMOCTH H
npocPeccHOHaJIH3MY. 3TO MOJKHO 6y,n:eT c.n;eJIaTb nOCJIe .n;eHcTBHTeJIbHOrO COKpam;eHHX Ka.n;POB.
llepBbIM H3 BaJKHeHmHX marOB XBJIXeTCX no.n;6op Ka.n;pOB H PYKOBO.n;CTBO HMH rocy,n:apCTBOM B
~eJIOM. 3TO ,n:OJIJKHO ,n:eJIaThCX B nopx,n:Ke, YCTaHaBJIHBaeMOM 3aKOHOM (a He Ha KOHTpaKTHOH
OCHOBe). B ::lTOH CBX3H MOJKHO c.n;eJIaTb BbI60p MeJK.D:Y ,n:OJIJKHOCTHOH CHCTeMOH, CHCTeMOH
paHrOB H CMemaHHOH CHCTeMoH. HHJKe npe,n:CTaBJIeHbI OCHOBHble npeHMym;eCTBa H He.n;OCTaTKH
KaJK.n;OH H3 3THX CHCTeM, npe,n:JIaraeMblX ,Il;JIX KalaXCTaHa:


          B PaMKax ,aOJDKHOCTHOH CHCTCMbI (KOTOPaJI HCnOJIb3yeTCX. HanpHMep, B
          HH,n:epJIaH,n:ax) pa3Mep OKJIa.n;a €pHKcHpyeTcx B COOTBeTCTBHH C ,n:OJIJKHOCTHOH
                                                          - 39 -

          KBaJIH<pHKan;HeH; paur (H, COOTBeTCTBeHIIO, ypOBeHb 3apaOOTHOH IIJIaTbl)
          Onpe,IJ;e.llJleTC5I ypOBHeM 3aHHMaeMOH ,IJ;OmKHOCTH, He3aBHCHMO OT TOrO, KTO 3aHHMaeT
          3TY ,IJ;OJDKHOCTb. OObl'IHO C'lHTaeTC5I, tUO ,IJ;OJDKHOCTHa5I CHCTeMa 5IB.llJIeTC5I rOpa3,IJ;0
          OOJIee COBepmeHHOH no cpaBHeHHIO C CHCTeMOH Kapbepld HJIH pauroB, nOCKOJIbKY
          3apaOOTHa5I IIJIaTa MO)KeT YCTaHaBJIHBaTbC5I B 3aBHCHMOCTH OT xapaKTepa
          BblIIOJIH5IeMOH paOOThI. O,IJ;HaKO Ha npaKTHKe KpaHHe CJIO)KHO yqHTblBaTb 3TH
          ocooeHHOCTH npH KJIaCCH<pHKaIJ;HH ,IJ;OJI)KHOCTeH, a ynpaBJIeHHe Ka.D;PaMH B PaMKax
          TaKOH CHCTeMbI TPeoyeT nOCT05lHHOro yqeTa ocooeHHOCTeH nepCOHaJIa H
          BblIIOJIH5IeMOH paOOThI. BOJIee TOro, TaKa5I CHCTeMa MO)KeT 3aTPY.D;HHTb MOOHJIbHOCTb
          nepCOHaJIa, nOCKOJIbKY nepeBO,IJ; paOOTHHKa Ha ,IJ;PyryIO ,IJ;OJDKHOCTb MO)KeT
          nOTPeOOBaTb C03,IJ;aHH1l COOTBeTCTBYIOru;eH ,IJ;OJI)KHOCTH.


          B paMKax CHCTeMbl KapbepbI HJIH paHrOB (HanpHMep, BO cI>paHn;HH) KaTerOpH5I
          3apaOOTHOH IIJIaTbI HJIH paHr npHHa,IJ;JIe)KHT IIITaTHOMY cny)Karu;eMY, a He CTPYKTYpe
          HJIH KJIaccy ,IJ;OJDKHOCTH.   ,I:I..JuI   cpaBHeHH5I, CHCTeMY paurOB 3Ha'l{HTeJIbHO nporu;e
          HCnOJIb30BaTh, nOCKOJIbKY HeOOXO,IJ;HMO yqHTbIBaTb JIHlllb xapaKTep BbmOJIH5IeMOH
          paOOTbI. ITOCKOJIbKY KaTerOpH5I 3apaOOTHOH IIJIaTbI He 3aBHCHT OT 3aHHMaeMOH
          ,IJ;OJDKHOCTH, ropa3,IJ;0 npoID;e nepeBO,IJ;HTb paOOTHHKa C O,IJ;HOH ,IJ;OJI)KHOCTH Ha ,IJ;PyryIO.
          K CO)KaJIeHHIO, TaKa5I CHCTeMa rOpa3,IJ;O MeHee 3<p<peKTHBHa B IIJIaHe CTHMYJIHpOBaHH5I
          OOJIee 3<p<peKTHBHOH ,IJ;e5ITeJIbHOCTH nepCOHaJIa.


          B HeKOTopbIX    CTPaHax (HanpHMep, B HH.D;OHe3HH) ycnelIIHo HCnOJIb3yeTC5I CMeIIIaHH8.JI
          CHCTeMa. TaK, .D;JI5I HepapXH'I{eCKHX <PYHKIJ;HH HCnOJIb3yeTC5I ,IJ;OJDKHOCTHa5I CHCTeMa,
          ,IJ;JI1l ,IJ;PyrHX npO<peCCHOHaJIbHbIX H/HJIH ceKpeTapCKHX <PYHKIJ;HH HCnOJIb3yeTC5I CHCTeMa
          palITOB, a.D;JI1l paoo'IHx H BpeMeHHO 3aH51TblX HCnOJIblyeTC1l OTKPbITa5I CHCTeMa.
          CJIe,IJ;YeT paCCMOTpeTb B03MO)KHOCTb HCnOJIb30BaHH5I TaKoro BapHaHTa B Ka3aXCTaHe.


99.       llpOBe,IJ;eHHe nOJIHTHKH ,IJ;OJI)KHO conpOBO)K.IJ:aTbC5I 3Ha'IHTeJIbHbIM nOBldllleHHeM
ypOBH5I H ycoBepllleHCTBOBaHHeM CTPYKTYPbI 3apaooTHoH IIJIaTId rocY,IJ;apCTBeHHblX cny)Karu;HX H
paIJ;HOHaJIH3aIJ;HeH CHCTeMbl ynpaBJIeHH5I Ka.D;paMH, C TeM tUoold BOCnpelI1lTCTBOBaTb He
npe,IJ;YCMOTPeHHOH 3aKOHOM OIIJIaTe TPY,IJ;a H YKa3aHHIO B ,IJ;OJI)KHOCTHOM paCIIHcaHHH
Hecyru;eCTBYIOID;HX paOOTHHKOB, 'l{TO B03MO)KH0 npH cyru;eCTBYIOru;eH CHCTeMe.




                                        E.    OCHOBHbIe nporpaMMbI


100.      ,[(JI5I Toro, tUOObl COKpameHHe 'l{HCJIeHHOCTH COTPY,IJ;HHKOB rocY,IJ;apCTBeHHbIX
yqpe)K.IJ:eHHH npHHeCJIO O)KH,IJ;aeMble pe3YJIbTaThI, HeOOXO,IJ;HMO TaK)Ke nepeCMOTpeTh
,IJ;eHcTBYIOru;yro CHCTeMY npHH1lTH5I 005l3aTeJIbCTB no pacxo,IJ;aM Ha OCHOBHble nporpaMMId, 'l{eMJ'
BO MHoroM OY,IJ;YT cnocoocTBoBaTb OIIHcaHHlde Bblllle HHCTPYMeHTbI. ITPO,IJ;OJI)KaIOID;HHC5I
OIO.IJ:)KeTHblH KpH3HC OKa3bIBaeT orpOMHoe ,IJ;aBJIeHHe Ha rOCY,IJ;apCTBeHHble paCXO,IJ;1d B
KalaXCTaHe.   O.D;HaKO, 3TO B03,IJ;eHCTBHe rrp05lBJI5IeTC5I no pa3HoMY KaK Ha pa3JIH'I{Hlde ceKTopa,
TaK H BayTPH ceKTOpOB.      JlBJI5I5ICb ceKTopaMH C npeOOJIa.D;aIOID;HM <pHHaHcHpoBaHHeM H3
roCY,IJ;apCTBeHHbIX HCTO'l{HHKOB, HMeHHO oopa30BaHHe H 3,IJ;paBOOxpaHeHHe              B HaHOOJIee
3Ha'l{HTeJIbHOH CTeneHH nOCTPa.D;aJIH OT OIO.IJ:)Kernoro "lIIoKa". PeanbHoe <pHHaHCHpOBaHHe
COCTaBJI1leT nO'l{TH TpeTb OT YPOBH5I      1990 ro,IJ;a.    TaK)Ke YBeJIH'I{HBaeTC5I HepaBeHcTBo B
<pHHaHcHpoBaHHH pemoHoB.         B YCJIOBH5IX         OTCYTCTBH5I KaKHX-JIHOO 3Ha'l{HTeJIbHbIX H3MeHeHHH, B
HaCT05lID;ee BpeM5I HaXO.D;5lTC5I no,IJ; BonpOCOM 3KOHOMH'I{eCKa5I 3<p<peKTHBHoCTb yCJIyr H
B03MO)KHOCTb ,IJ;aJIbHeHmero coxpaHeHH5I ,IJ;OCTH)KeHHH B OOJIaCTH 3,IJ;paBOOXpaHeHH5I H
                                                               - 40-

OOpa30BaIDlH, ,nOCTHrHyTblX B npoIWIoM.                    IJPHHHMaH BO BHHMaHHe ,nOJIIO 3THX ,nBYX ceKTopoB B
rocy,napCTBeHHbIX pacxo,ll;ax           (25   npO~eHTOB) H C03,ll;aBaeMble HMH paooqJie MeCTa
(70 npOueHTOB),            OHH OCTaIOTCH npHOpHTeTHbIMH cQ>epaMH .lUIH pa~HOHaJIH3~HH paCXO,ll;OB.
PeaJIbHbIH npHTOK cpe,nCTB B 3TH ceKTopa nO~H B TPH pa3a HH}Ke YPOBHH                              1990 rO,ll;a.   IJPH
OTCYTCTBHH CKOJIbKO-HHOY,Il;b 3HaquTeJIbHblX H3MeHeHHH B MeTO,ll;ax OKa3aID1H YCJIyr,
3aKpeIIJIeHHe ycnexoB, ,nOCTHrnyTbIX B cQ>epax oopa30BaHH.SI H 3,1l;paBOOXpaHeHHH B npOIWIbIe
ro,ll;bI, OKa3aJIOCb no,n BonpOCOM. IJoCKOJIbKY pa3Mep aCCHrHOBaIDlH Ha 3TH ceKTopa BPM JIH
oy,neT YBeJIHqJiBaTbC.SI OblCTPbIMH TeMnaMH, OCHOBHOH 3a,1l;aqeH nOJIHTHKH ,Il;OJI}KHO CTaTb OOJIee
p~HOHaJIbHOe             HCnOJIb30BaIDle HMelOmHXCH pecypCOB.


06paaOBaHHe


101.              B   c<i>epe 06P830B8HHJJ HMeeT CMbICJI Y,Il;eJI.SITb OCHOBHoe BHHMaIDle YCJIYraM oomero
xapaKTepa (CM. TaOJIH~             11).   O,ll;HaKO nOKa3aTeJIb KOJIHqeCTBa yqamHXCH B paCqeTe Ha O,ll;HOrO
npenO,ll;aBaTeJI.SI HBJIHeTCH KpaHHe HH3KHM no CpaBHeHHIO C Me}K,ll;YHapO,ll;HbIMH CTaH,ll;apTaMH
(TaOJIH~a         12).   CTOJIb HH3KHe K03Q>Q>H~eHTbI oOYCJlOBJIeHbI CJIe.nyromHMH npHqJiHaMH:
(i)   qpe3MepHoH CneUHaJIH3aUHeH nporpaMM ooyqeHH.SI, ocooeHHo B npoQ>eccHOHaJIbHO-
TeXHHqeCKHX H BblCIIIHX yqeoHblx 3aBe,ll;eHHHX; H                     (ii)   MeXaIDl3MOM Q>HHaHCHpOBaHH.SI, KOTOPbIH
He n03BOJI.SIeT 3aKpblBaTb ~eJIbIe KJlaCCbI, KaKHM Obi He3HaqHTeJIbHbIM He Obmo KOJIHqeCTBO
yqamHXC.SI.


                       Ta6J1Hua   11.   06lUa.SI CYMMa pacxo,noB Ha 06paaoBaHHe Ha ypoBHe
                                                    yqpe)l(JleHHit,   1992·94 IT.

                                              199                            1                 1
                                              %                              %                 %
        OIIIKOJIbHbI e
      lliKOJIbI                            52.3                          48.2                  46.8
      HHTepHaTbI                           5.8                           5.1                   6.6
      ,Il,onOJIHHTeJIbHble IllKOJIbI       4.4                           3.8                   3.7
      ,Il,ocyr H Tex. IIIKOJIbI
      BY3                                     2.7                            13.1              4.3
      ,Il,pyrHe
                                           13.4                              13.3              11.9
                                           4.8                               3.4               3.2

       'Ie HHKH
      focy,napcTBeHHble
      KanHTaJIbHble paCXO,ll;bI
      BCEro
                                                  - 41 -

                    Ta6JIHua 12: OTHomeHHe 'IHena CTYJleHTOB K COTpYJlHHKaM

   OrnOIIIeHHe                  Ka3aXCTaH         BeJIHK06pHTaHH       fepMaHHg        TYPUHg
   CTY.n;eHTbI/nepCOHaJI                          g

   HaqaJILHbIelcpe)J;HHe
   IIIKOJIbI
                                8.8 : 1
   yqeHHK:yqHTeJIb                                20: 1                17 : 1          29: 1
                                6.1 : 1
   yqeHHK:BeCb nepCOHaJI
   BY3


   cTY.n;eHT:Bech nepCOHaJI                       10 : 1               17 : 1
                                9.5 : 1
   CTY.n;eHT:npeno.n;aBaTeJIh




102. B cq,epe     06PS30BaHHH OCHOBHM npHqHHa B03HHKHOBeHHg np06JIeMhI qpe3MepHO
pa3.n;yTLlX IIITaTOB CBg3aHa C MeTo.n;aMH pacnpe.n;eJIeHHg pecYPcoB Ha OCHOBe T.H. HOPMhI
«KJIaCCOB-KOMnJIeKCOB» (T.e. Kor.n;a 3a OCHOBY npHHHMaeTCg HOMHHaJIbHbIH, a He q,aKTHqeCKHH
pa3Mep KJIacca), npHMeIDIeMhIMH no BceH CTpaHe C nepBoro H .n;o nOCJIe)J;Hero KJIacca.
HeH3BeCTHO, qeM 060CHOBaHhI TaKHe paCqeThI, o.n;HaKO 3TO C03.n;aeT 3aHHTepeCOBaHHOCTh B
COXpaHeHHH «JIHIIIHHX» KJIaCCOB H KypCOB, KOTophIe nocelUaeT He60JIhmOe KOJIHqeCTBO
yqalIJ;Hxcg, npHqeM 3TO npOHcxo.n;HT Ha Bcex YPOBIDIX CHCTeMbI 06pa30BaHHg: B mKOJIaX, B
npoq,eCCHOHaJIbHQ-TeXHHqeCKHX yqHJIHlUaX H TeXHHKYMax H B BhICIIIHX yqe6HbIx 3aBe.n;eHHgx.


103.   .D;.rrg 3Toro He06xo.n;HMO npHHgTb .n;Be nepBOOqepe.n;HblX MepbI:


               BHeceHHe H3MeHeHHg B nporpaMMY 06yqeHHg, C TeM qT06bI 60JILIIIee BHHMaHHe B
               IIIKOJIax y.n;eJIgJIOCb 06lUHM .n;HCUHllJIHHaM, H YBeJIHqeHHe npeno.n;aBaTeJIbCKOH
               HarpY3KH, T.e. BHe.n;peHHe MHoronpe.n;MeTHoro H MHoroypOBHeBoro MeTo.n;OB
               06yqeHHg B paHoHax C He60JIbmOH llJIOTHOCTblO HaCeJIeHHg, H


               COKpalUeHHe KOJIHqeCTBa IIIKOJI H yqe6Hhlx nporpaMM.


104.   QT06hI cnoc06cTBoBaTb KOHCOJIH.n;aIJ;HH mKOJI, peKOMeH,IJ;yeTCg nepeHTH Ha MeXaHH3M
IIOllf1IlHoro q,HHaHCHPOBaHHH (B paCqeTe Ha O)J;Horo yqam,erocg), HJIH, no KpaHHeH Mepe,
OrpaHHqHTh HCnOJIb30BaHHe HopMaTHBa KJIaCC-KOMllJIeKT TOJIbKO KJIaCCaMH, pa3Mep KOTOPhIX
MeHbme onpe.n;eJIeHHOrO MHHHMaJIbHOrO YPOBIDI. Kn:accbI HJIH ueJIhIe mKOJIbI, r.n;e KOJIHqeCTBO
yqalUHXCg HHxe 3THX MHHHMaJIhHbIX HopMaTHBOB, .n;OJIXHhI 6bITb 3aKphIThI HJIH 06'he.n;HHeHbI C
.n;PyrHMH 60JIee KpynHbIMH yqe6HhIMH 3aBe.n;eHHgMH.


3,npauooxpaueHHe

105.   B cq,epe 3lfPaBOOXpaHeHHH TaKXe Ha6mo.n;aeTCg He6JIaronpHgTHM TeH,IJ;eHUHg Bhl)J;eJIeHHg
pecypCOB B OCHOBHOM Ha 60JIhHHqHOe H CTaUHOHapHoe JIeqeHHe, Ha KOTopoe pacxo.n;yeTCg
nOqTH .n;Be TpeTH HMelOlIJ;HXCg pecypCOB (CM. Ta6JIHUY     13). B TO xe BpeMg, .n;OJIg pacxo.n;OB Ha
nOJIHK.'fJHHHKH H aM6YJIaTOpHH, a TaKXe Ha CHCTeMY       <DAII, KOTophIe gBJIglOTCg OCHOBHbIMH
yqpeJK,!J.eHHgMH. npe.n;OCTaBJIglOlUHMH YCJIyrH   aM6YJIaTOpHO COCTaBJIglOT OT 6 .n;o 8 npoueHTOB
                                                     - 42-

OT 061UHX pacxo.n;OB Ha 3.n;paBOOXpaHeHHe. HHcPpaCTPYKTYpa rrOJIHKJIHHHK H aM6YJIaTOpHbIX
3aBepeHHH Ha ceJIe HCIIhlTbIBaeT oc06eHHble cPHHaHcoBble Tpy.n;HOCTH, lITO CTaBHT rro.n; yrp03y
CrrpaBe.D;JIHBOCTb H 3cPcPeKTHBHOCTb pacxo.n;OB Ha 3.n;paBooxpaHeHHe.


106.   3TO ):taJIee BH.D;HO H3 cpaBHeHHlI OCHOBHbIX rrOKa3aTeJIeH MOII:(HOCTeH CTaIJ;HOHapOB B
Ka3axcTaHe, 03CP H .n;pyrHX CTPaHax (Ta6JIHIJ,a          14).   no .n;OJIe rrpHeMa B 60JIbHHIJ,bI, Cpe):UIeH
rrpo.n;OJDKHTeJlbHOCTH rrpe6bIBaHHlI (cnn) B 60JIbHHIJ,aX H qenOBeKO-KOHKH, OKa3bIBaeTClI, TO
ceKTOp 3.n;paBOOXpaHeHHlI Ka3axCTaHa .n;eJlaeT OC06bIH yrrop Ha CTaIJ,HOHapbI. MHome 60Jle3HH,
H3J1e'IHBaeMbIe aM6YJlaTopHO B .n;pyrHX CTPaHax JIeqaTClI B CTaIJ,HOHapax B Ka3aXCTaHe, KpoMe
Toro rraIJ,HeHTbI rrpe6bIBaIOT B 60JlbHHIJ,aX .n;OJlblIIe, qeM 3a rrpe.n;eJlaMH 6bIBlIIero COBeTCKoro
COI03a.


107.   npO.n;OJlJKeHHe HCrrOJlb30BaHHlI OCHOBaHHblX Ha HopMax MexaHH3MOB cPHHaHcHpOBaHH1l
rro.n;qepKHBaeT 3TH .n;HcrrpOrrOpIJ,HH.   B HaCTOllII.J.ee   BpeMlI yqpeJK.D;eHHlI ceKTopa rrpo.n;OJlJKaIOT
rrpe.n;CTaBJIjITb 6IO.D;JKeTHble 3MBKH Ha OCHOBaHHH HOPM, paCCqHTblBaeMbIX C HCrrOJIb30BaHHeM
rrpHpOCTHbIX K03cPcPHIJ,HeHTOB, 3HM rrpH 3TOM, lITO rronyqeHo HMH 6y.n;eT 3Ha'IHTeJlbHO
MeHblIIe, qeM 3arrpalIIHBaJIOCb. HeCMOTpll Ha HeXBaTKY cpe.n;CTB, yqpeJK.D;eHHlI ceKTopa BP1l.D; JIH
6y.n;YT COKpaII.J.aTb 06'beM .n;ellTeJlbHOCTH H yCJIyrH, ,Il.IUI OllJlaTbI KOTOPbIX HCrrOJlb30BaJIHCb 6bl
3arrpalIIHBaeMbIe cpe.n;CTBa. 3.n;paBbrH CMbICJI rro.n;CKa3bIBaeT, lITO JlI06b1e YCHJlHlI, HarrpaBJIeHHble
Ha paIJ,HOHaJIH3aIJ,HIO .n;ellTeJIbHOCTH, rrOH.n;YT BO Bpe.n; 3THM yqpeJK.D;eHHlIM, rrOCKOJlbKY BbI30BYT
.n;aJIbHeHlIIee COKpaII.J.eHHe pacxo.n;OB.


108.   npHOpHTeTHbIM HarrpaBJIeHHeM .n;eUeJlbHOCTH .n;OJIJKeH CTaTb rrepexo.n; Ha JleqeHHe B
3cPcPeKTHBHblX B llJIaHe 3aTpaT aM6YJlaTopHbIX 3aBe.n;eHHlIX • .IJ,n1l PaIJ;HOHaJIH3aIJ,HH CHCTeMbI
pacrrpe.n;eJleHHlI pecypCOB C IJ,eJlbIO rrOBbIlIIeHHlI 3cPcPeKTHBHoCTH 3aTpaT H 06eCrreqeHHlI
Ha.D;eJKHOCTH H 3cPcPeKTHBHoCTH yCJIyr CJle.n;yeT c.n;eJlaTb CJIe.n;yIOII.J.ee:


       (i)     BBeCTH Me.n;HIJ,HHCKHe rrpOTOKOJIbI, rrOBbIlIIaIOII.J.He 3cPcPeKTHBHoCTb aM6YJlaTopHoro
               JleqeHHlI, r.n;e 3TO B03MOJKHO;


       (ii)    paclIIHpHTb .n;HarHOCTHqeCKHe H Jleqe6HbIe B03MOJKHOCTH rrOJIHKJIHHHK H
               aM6YJlaTopHblx yqpeJK.D;eHHH H YBeJlHqHTb HX .n;OJlIO B 06II.J.eM 06'beMe pacxo.n;OB Ha
               3.n;pasooxpaHeHHe;


       (iii)   BHe.n;pHTb MexaHH3MbI cPHHaHCHpOBaHHlI, OCHOBaHHbIe Ha rro.n;YlIIHOM BbI,Il;eJIeHHH
               cpe.n;CTB (T.e. BbI,Il;eJleHHe cpe.n;CTB Ha JleqeHHe orrpe.n;eJleHHOrO KOJIHqeCTBa
               3apemCTpHpOBaHHbIX rraIJ,HeHToB).
                                                    - 43-

                   Ta6JIHua 14: 061U3JI C)'MMa paCXO.llOB Ha ypOBHe yqpe)l(JleHHil, 1992-95

                                  1992                  1993                   1994
  BOJIhHHIJ,hl                    73.6                  71.7                   73.1
  IIoJIHKJIHHHKH                  6.1                   6.8                    6.S
  <l>AIIbI                        1.1                   1.0                    0.8
  r ocy,n;apCTBeHHhIe             4.1                   5.1                    4.5                 -
  M e.n;yqpe1K,lleHHH
  ~yraH                           14.0                  14.9                   14.8
  Me,n;H:UHHCKaH
  ,n;eHTeJIhHOCTh
   [ocy,n;apcTBeHHhIe             1.0                   0.5                    0.2
   KarrHTaJIOBJIOXeHHH
  HTOrO                           100.0                 100.0                   100.0              -

                          Ta6JIHua 14: 3.llpasooxpaHeHHe B OT.lleJIbHbIX crpaHax




       PH eM B CTaIJ,HOHaphI
  (%     OT HaCeJIeHHH)
       pe,IIIDIH
  npo,n;OJIXUTeJIhHOCTh
  npe6hIBaHHH (.n;HH)
                     HaCeJIeHHH
       eCTaB
  CT~KOHapax/HaCeJIeHHe




108.     Oxu,n;aeMhIH 3q,q,eKT OT 3THX ,n;BYX HOBoBBe,n;eHHH 3aKJIlOqaeTCH B TOM, \{'fO OCHOBHoe
JIeqeHHe 6Y,lleT ocym;eCTBJIHThCH B 60JIee 3KOHOMHQHhIX aM6YJIaTOpHhlx 3aBe,n;eHHHX H Qepe3
aM6YJIaTOpHbIe rrpOTOKOJIbI. KOJIHQeCTBO cne:UHaJIHCTOB, QHCJIO rrpHeMOB B 60JIhHH:UhI H
cpe,llIDlH rrpO,llOJIXUTeJIhHOCTh rrpe6hIBaHHH nOCTeneHHO COKpaTHTCH, TaK KaK COKpaTHTCH
rroTpe6HocTb B ,n;oporOCTOHm;eM H ,llJIHTeJIbHOM CTa:UHOHapHOM JIeQeHHH. C6epexeHHH ,n;OJIXHl>I
6hlTb C,lleJIaHhl Ha OCHOBe COKpam;eHHH MOm;HOCTeH CTaIJ,HOHapOB.
                                                            - 44-

                  F.   UeJlH, npHOpHTeTHbIe HanpaBJIeHHSI pect.OPMbl H ee OCYlQeCTBJleHHe


109.      Pe<popMa rocY.IJ.apCTBeHHhIX opraHoB Heo6xo.IJ.HMa H HeOTJIOJKHa. Me)f{,lJ.yHapo,n;HbIH OrrbIT
CBH,IJ;eTeJIbCTByeT 0 TOM, lITO rrpH rrpOBe.IJ.eHHH TaKoH pe<popMbI Heo6xo,IJ.HMO yqHTbIBaTb
CJIe,n;yIOW;He .IJ.Ba acrreKTa. C O,n;HOH CTOPOHbI, rrocTerreHHbIH rro,n;xo.IJ., ueJIblO KOToporo HBJUleTCH
peweHHe rrp06JIeM B KOHKpernoH 06JIaCTH (HarrpHMep, rrpo6JIeMY t{pe3MepHoH 3aID1TOCTH B
rocY.IJ.apCTBeHHbIX yqpe)l{,IJ;eHHHX) 6e3 yqeTa B3aHMOCBH3H Me)l{,IJ;Y PalJIHt{HbIMH aCrreKTaMH
rOCY.IJ.apCTBeHHoro yrrpaBJIeHHH (HarrpHMep, Me)l{,IJ;Y 3aHHTOCTblO B rocy,n;apCTBeHHOM ceKTope,
a,IJ.MHHHCTpaTHBHoH CTPyKTYPOH H COUHaJIbHOH rrOJIHTHKOH); H, C ,n;PyroH CTOPOHbI, CJIHWKOM
KOMIIJIeKCHbIH rro,IJ.Xo,n; MoxeT He BbI,IJ;epXaTb 6peMeHH CBOHX co6CTBeHHbIX aM6HIJ;HH ew;e ,n;o
TOro, KaK OH CMoxeT rrpHHeCTH XeJIaeMble pe3YJIbTaTbl.                  B   HaCTOHw;eM ,n;OKJIa,ne peKOMeH,IJ.yeTCjI
y,n;eJIHTb rrepBOOt{epe.IJ.Hoe BHHMaHHe pe<popMaM, crroco6HblM OKa3aTb B03.IJ.eHCTBHe Ha CHCTeMY
rocy,n;apCTBeHHbIX yqpe)l{,IJ;eHHH B ueJIOM, T.e. pe<popMaM, crroco6HbIM peWHTb rrp06JIeMbl,
xapaKTepHble           .IJ.JIH Bcex rOCY.IJ.apCTBeHHbIX CTpYKTYP H CJIyx6, a TaIOKe HaMeTHTb MepbI B paMKaX
pe<pOPMbI, KOTopble rr03BOJIHT o6ecrret{HTb rrOCJIe,n;OBaTeJIbHOCTb H cTa6HJIbHOCTb 06w;eH
rrporpaMMbI 3KOHOMHt{eCKHX pe<popM.


110. ,I\mI        ycrreillHoro ocyw;eCTBJIeHHH pe<popMhI Heo6xo,n;HMO 06ecrret{HTb HaJIHt£He Tpex
pewalOIIJ;Hx YCJIOBHH:          (i)   t{eTKO YCTaHOBHTb ueJIH .IJ.ejlTeJIbHOCTH; H   (ii)   pa3pa6oTaTb
rrpHeMJIeMbIH B TeXHHt{eCKOM H rrOJIHTHt{eCKOM OTHoweHHH rpa<pHK rrpOBe.IJ.eHHH pe<popM H
(iii)   o6eCrret£HTb Heo6xo,IJ.HMYIO opraHH3aIJ;HOHHO-rrpaBOBYIO CHCTeMY,IJ.JIjI pa3pa6oTKH H
rrpOBe,n;eHHjI peaJIbHO BhmOJIHHMOH rrporpaMMbl pe<poPM H ocyw;eCTBJIeHHjI Ha6JIIO,n;eHHjI 3a
XO,n;OM ,n;eHTeJIhHOCTH B PaMKax 3TOH rrporpaMMbl.




111.      KOHet{HOH ueJIhlO pe<popMbI HBJIjleTCjI o6ecrret{eHHe Heo6xo,IJ.HMOro 06'beMa
3<p<peKTHBHhlX rocy,n;apCTBeHHbIX yCJIyr B Tex 06JIaCTHX, r,n;e Ha6JIIO,n;aeTCjI HaH60JIhWaH
rroTpe6HocTh HaCeJIeHHjI B 3THX YCJIyrax, 0 t{eM CBH,IJ;eTeJIbCTByeT BOJIeH3'bjlBJIeHHe HaCeJIeHHjI
HJIH CHTYaUHjI Ha pbIHKe, H TaM, r,n;e rocy,n;apCTBeHHoe BMeWaTeJIbCTBO 060CHOBaHO YCJIOBHjlMH
PbIHOt{HOH 3KOHOMHKH. COKpaw;eHHe rOCY.IJ.apCTBeHHbIX CTPYKTYP H CJIyx6 H peopraHH3aIJ;HH
CHCTeM yrrpaBJIeHHjI rocy,n;apCTBeHHhIMH yqpe)l{,IJ;eHHjlMH HBJIjllOTCH rrepBOOt{epe,n;HhIMH
3a,nat{aMH, KOTopble Heo6xo,n;HMO peWHTb ,IJ.JIH .IJ.OCTHXeHHH 3TOH KOHet{HOH ueJIH.


112. B rrpouecce           peopraHH3aUHH rocy,n;apCTBeHHhlX CTPYKTYP Ha rrpOTHxeHHH 6JIHXaHWHx
,n;Byx-Tpex JIeT BJIaCTH MOryT rrOIlbITaThCH peWHTb CJIe.IJ.YIOW;He 3a,nat£H:


         (i)       COKpaw;eHHe KOJIHt{eCTBa Ytlpe)l{,IJ;eHHH rrepBoro ypOBHH MeHee t{eM ,n;o CTa
                   a,nMHHHCTpaTHBHbIX e.IJ.HHHU, BhmOJIHHIOW;HX orrpe.IJ.eJIeHHhIe <PYHKIJ;HH Ha
                   o6w;erocy,n;apCTBeHHOM ypOBHe;


          (ii)     COKpaw;eHHe KOJIHt{eCTBa Ytlpe)l{,IJ;eHHH ypOBHH Ka6HHeTa MHHHCTPOB
                   rrpH6JIH3HTeJIhHO ,n;o     20   e,n;HHHU H rrpe,n;OCTaBJIeHHe HM rrOJIHOMot{HH, CBH3aHHbIX C
                   pa3pa6oTKoH rrOJIHTHKH, yrrpaBJIeHHeM, rro,llrOTOBKoH H HCrrOJIHeHHeM 61O.IJ..iKeTa B
                   rrpe.IJ.eJIax cBoeH IOPHC,n;HKIJ;HH;


          (iii)    C03,n;aHHe   287    rOp0.IJ.CKHX opraHOB MeCTHoro caMoyrrpaBJIeHHH H          200-400   opraHOB
                   MeCTHoro caMoyrrpaBJIeHHH B CeJIhCKOH MeCTHOCTH; H




                                                                                                          . I
                                                     - 45-
       (iv)    H3MeHeHHe nop.smxa nepe,IJ.a'IH nOJIHOM01{HH u;eHTpaJIbHOrO npaBHTeJIbCTBa
               MeCTHbIM opraHaM rOCY,lJ.apCTBeHHoro ynpaBJIeHHH.


113.   B TO   JKe BpeMH, BJIaCTHM He06xo,IJ.HMO pellIHTb CJIe,IJ.YIOIIJ;He 3a,1J;a'IH:


       (i)     B 3aKOHO,IJ.aTeJIbHOM nOpH,IJ.Ke OpraHH30BaTb 06IIJ;erocY,lJ.apcTBeHHYIO CHCTeMY
               rpaJK,IJ.aHCKOH CJIYJK6bI, B KOTOPOH 6Y,lJ.eT 3aHHTO OKOJIO      100 000   CneU;HaJIHCTOB Ha
               pecny6JIHKaHCKoM H TeppHTOpHaJIbHOM ypOBHHX (BKJIIO'lHB B 3aKOHO,IJ.aTeJIbCTBa
               CneU;HaJIbHble nOJIOJKeHHH OTHOCHTeJIbHO rOCY,lJ.apCTBeHHbIX cnyJKaIIJ;HX Ha MeCTax,
               a TaKJKe yqHTeJIeH H nepCOHaJIa Me,IJ.HU;HHCKHX yqpeJK,lJ.eHHH); H


       (iJ)    YCTaHOBHTb npOu;e,IJ.yPbI 61O,lJ.JKeTHOH ,lJ.eHTeJIbHOCTH, n03BOJIHIOIIJ;He 3$$eKTHBHo
              pacnpe,IJ.eJIHTb 61O,lJ.JKeTHble pecypCbI MeJK,IJ.Y OT,lJ.eJIbHbIMH npHOpHTeTHbIMH
              rOCY,lJ.apCTBeHHhIMH $YHKIJ;HHMH B 6JIHJKaHllIee BpeMH H B Cpe,IJ.HeCp01{HOH
              nepcneKTHBe.




114.   li3JIOJKeHHble BbIllIe 3a,1J;a1{H, HeCOMHeHHO, HBJIHIOTCH aM6HU;H03HhIMH. II03ToMY B
H8.cTOH]1l.eM ,lJ.OKJIa,IJ;e BJIaCTHM peKoMeHJJ;yeTcH npH,lJ.epJKHBaTbCH nOCTeneHHoro nO,IJ.xo,IJ.a, H
COCTaBHTb rpa$HK npHHHTHH OCHOBHbIX Mep B COOTBeTCTBHH C HX HeOTJIO)KHOCTblO H
nOTpe6HocTHMH B ,lJ.OCTHJKeHHH nOJIHTH1{eCKoro KOHceHcyca H/HJIH B npOBe,IJ.eHHH
nO,IJ.rOTOBHTeJIbHOH pa60TbI.


115.   l1epBooqepeJUIoii 3a,!{aqeii ,lJ.OJI)KHO   CTaTb nOBbIllIeHHe 3$$eKTHBHOCTH pacnpe,IJ.eJIeHHH
61O,lJ.)KeTHb1X pecypCOB H MexaHH3MOB KOHTPOJIH 3a 61O,lJ.JKeTHOH ,lJ.eHTeJIbHOCTblO, a TaKJKe
COKpan~eHHe a,lJ;MHHHCTpaTHBHbIX CTpYKTYP. 3TO 06'bHCHHeTCH He TOJIbKO TeM, 1{TO 3TH ,lJ.Be
06JIaCTlI ,lJ.eHTeJIbHOCTH B HaCTOHIIJ;ee BpeMH xapaKTepH3Y1QTCH HaH60JIee cepbe3HbIMH
He,IJ.OCTaTKaMH, HO H nOTOMY, 1{TO OHH HMelOT HaH60JIbllIee 3Ha1{eHHe ,lJ.JIH ycnellIHoro
npOBe,IJ.eHH5I pe$opMbI.    Ii   3TO He TOJIbKO nOTOMY, 1{TO, no KpaHHeH Mepe, B nJIaHe ynpaBJIeHH5I
61O,lJ.)Ke.THbIM npou;eCCOM YJKe pa3pa60TaHbI KOHKpeTHble npe,IJ.JIOJKeHHH. PellIalOIIWe ycnexH B
npou;ecce ynpaBJIeHHH 61O,lJ.JKeTHOH ,lJ.e5lTeJIbHOCTblO H peOpraHH3aU;HH a,lJ;MHHHCTpaTHBHOH
CTPYKTYPbI TaKJKe HBJIHIOTCH npe,IJ.nOCbIJIKaMH npHHHTH5I ,lJ.pyrHX He06xo,IJ.HMbIX Mep, TaKHX KaK
C03,IJ.aHHe rpaJK,IJ.aHCKoH cnyJK6bI B 3aKOHO,IJ.aTeJIbHOM nopH,IJ.Ke, nepeCMOTp COU;HaJIbHOH
nOJIHTHKH H pa3BHTHe opraHOB MeCTHoro caMoynpaBJIeHH5I. ;IJ.eHcTBHTeJIbHO, peopraHH3aU;H5I
61O,lJ.JKeTHoH CHCTeMbl H a,lJ;MHHHCTpaTHBHOH CTpyKTypbl n03BOJIHT BJIaCT5IM, B 1{aCTHOCTH,
Ha1{aTb ,lJ.e5lTeJIbHOCTb no O,IJ.HOMY H3 ,lJ.BYX HanpaBJIeHHH pe$opMbl, a HMeHHO, K pa3pa60TKe
Ha,IJ.JIeJKaIIJ;HX MeXaHH3MOB a,lJ;MHHHCTpaTHBHOH H 61O,lJ.)KeTHOH ,lJ.eu;eHTpaJIH3aU;HH nOJIHOM01{HH
neHTpaJIbHOrO npaBHTeJIbCTBa nyTeM HX nepe,IJ.a1{H (HJIH ,lJ.eJIerHpOBaHH5I) MeCTHbIM opraH aM
rOCY,lJ.8pCTBeHHOrO ynpaBJIeHH5I. AHaJIOrH1{HO, pe$opMY 61O,lJ.)KeTHOH CHCTeMbI CJIe,IJ.OBaJIO 6b1
Ha1{aTl. C ceKTopOB 06pa30BaHH5I H 3,IJ.paBOOXpaHeHH5I.


116.   ITo Mepe pa3BHTHH ,lJ.e5lTeJIbHOCTH no 3THM OCHOBHbIM HanpaBJIeHHHM, BJIaCTH MOryT
«nepe.r~OXHYTb- H 06,IJ.yMaTb IIOCJIe){YIOmHe CTa,!{HH peljJopMhI. HanpHMep, 1{TO KaCaeTC5I
,lJ.eu;eHTpaJIH3aU;HH, 3Ta «nepe,IJ.blIIIKa- MOJKeT 6b1Tb HCnOJIb30BaHa ,lJ.JI5I pa3pa60TKH MexaHH3MOB
pacnpe,IJ.eJIeHHH nOJIHOM01{HH Me)K,IJ.Y MeCTHbIMH OpraHaMH H HX nO,IJ.OT1{eTHOCTH, 6e3 KOTOPblX
MeCTHble opraHbI OCTaIOTC5I 3ara,IJ.KoH; ,IJ.JIH ,lJ.OCTHJKeHHH nOJIHTH1{eCKOrO KOHceHcyca
OTHOCHTeJIbHO COIJ;HaJIbHQ-9KOHOMH1{eCKOrO 3Ha1{eHH5I ,lJ.eu;eHTpaJIH3aU;HH; H ,lJ.JIH
COOTBeTCTBYIOIIJ;eH peOpraHH3aU;HH CTpYKTYPbI IOPHC,lJ.HKIJ;HH H opraHOB rOCY,lJ.apCTBeHHoro
                                                                - 46-

ynpaBJIeHHH, a T8JOKe ,IVIH pa3pa6oTKH 3<p<peKTHBHOH CHCTeMbI <pHHaHCHpOBaHHH MeCTHbIX
OpraHOB. AHaJIOrH'IHO, 3Ta «nepe,!(bI1IIKa,. ,lJ,OJDKHa 6bITb Hcnonb30BaHa JJ.JIH ,lJ,OCTH:>KeHHH
KOHceHcyca OTHOCHTeJIbHO HOBoro 3aKOHO,lJ,aTenbCTBa 0 rpa:>K,lJ.aHCKOH cJIY:>K6e, a TaK:>Ke ,IVIH
C03,lJ,aHHH Heo6xo,lJ;HMbIX CHCTeM ynpaBJIeHHH Ka,IlpaMH.                     H   HaKOHeIJ" OITbIT, HaKOlIJleHHhIH Ha
Ha'laJIbHbIX CTa,IlHHX npOIJ,eCca PaIJ,HOHaJIH3aIJ,HH CHCTeMbI paCXO,lJ;OB Ha COIJ,HaJIbJlyIO c<pepy,
MO:>KeT 6b1Tb Hcnonb30BaH npH pa3pa6oTKe H npOBe,lJ,eHHH 60JIee KOMlIJleKCHOH, npO,IJ;YMaHHOH
H IJ,eneHanpaBJIeHHOH pe<popMbI COIJ,HaJIbHOH nOJIHTHKH H nporpaMM rOCY,lJ,apCTBeHHbIX
paCXO,lJ,OB.


OpraHH3agHOHHo-npasoBasi oeHOBa

117.    AnH ycnemHoro npOBe,lJ;eHHH npe,lJ;JIaraeMblX pe<popM CHCTeMbI rOCY,lJ,apCTBeHHbIX
Y'lpe:>K,lJ;eHHH Heo6xo,lJ,HMa TBep,lJ,aH pemHMOCTb npaBHTeJIbCTBa, a TaK:>Ke COOTBeTCTByroIIJ,aH
HHCTHTYIJ,HOHaJIbHaH OCHOBa. 06a 3THX YCJIOBHH Heo6xo,lJ,HMbI JJ.JIH npO,lJ;OmKeHHH npOIJ,eCca
npeo6pa30BaHHH HeCMOTPH Ha COnpOTHBJIeHHe OKonaBIIIHXCH 6IOpOKpaTH'IeCKHX CTPYKTYP H
TpY,IUIOCTH nepeXO,lJ,HOrO nepHO,lJ,a, KOTopbIe MOryT OKa3aTb KpaiiHe He6JIarOnpHHTHoe
B03,lJ,eHCTBHe Ha HeKOTopble KaTeropHH rOCY,lJ,apCTBeHHblX cnY:>KaIIJ,HX H nOTpe6HTeneH
rocY,lJ,apCTBeHHbIX ycnyr.


118.    B c<pepe rocy){apCTBeHHMX ljJHHaHCOB PYKOBO,lJ,CTBO npOIJ,eCCOM pe<poPM ,lJ;OmKHO,
HeCOMHeHHO, B3HTb Ha ce6H MHHHcTepcTBo <pHHaHcoB. IIpH CO,lJ,eHCTBHH Ka3Ha'leHCTBa                                          CIlIA,
AreHTCTBa Me:>KJJ.YHapO,lJ,HOrO pa3BHTHH               CIlIA    H COBeTHHKOB MB<l> B paMKax MHHHCTepcTBa PKe
npOpa60TaH PH,lJ; npe,IVIO:>KeHHH, npe,lJ,CTaBJIeHHbIX B HaCTOHIIJ,eM ,lJ,OKJIa,Ile, B '1aCTHOCTH
OTHOCHTenbHO C03,lJ,aHHH HOBOH CHCTeMbI Ka3Ha'leHCTBa 1lI.


119.    BMeCTe C TeM, eIIJ,e npe,lJ,CTOHT opraHH30BaTb CHCTeMY YIIPaJJJ1eHHJI H ljJHHaHCHPOB8.HHJI
IIpOIl,eCca peOpraHH3aIJ,HH rpaJK,l{aHCKOii C.nyJKObI. IIocKonbKY 3TOT npOIJ,eCC OXBaTblBaeT BCIO
CHCTeMY rOCY,lJ,apCTBeHHbIX opraHOB, Bce MHHHCTepCTBa, rOCY,lJ,apCTBeHHble KOMHTeTbI H
HaXO,lJ;HIIJ,HeCH B HX Be,lJ,eHHH Y'lpe:>K,lJ;eHHH, a TaK:>Ke MeCTHble opraHbI rOCY,lJ;apCTBeHHoro
ynpaBJIeHHJI H opraHbI MeCTHoro caMoynpaBJIeHHJI, peKOMeH,IJ.yeTCJI nepe,lJ,aTb Bce nOnHOMO'lHH
no ynpaBJIeHHIO npOIJ,eCCOM pe<pOPM opraay, OCYIIJ,eCTBJIHIOIIJ,eMY o6IIJ,ee PYKOBO,lJ,CTBO pa6oToH
BceH CHCTeMbl rOCY,lJ,apCTBeHHbIX opraHOB H B03rJIaBJIJIeMOMY IIpeMbep-MHHHcTPoM. C TeM
'!T06bI B KPyr ero nOnHOMO'lHH BXOJJ.HnH Bce <PYHKIJ,HH, CBH3aHHhIe C o6eCne'leHHeM
HOpMaJIbHorO <PYHKIJ,HOHHpOBaHHH HHCTHTYIJ,HOHaJIbHOH CTPYKTYPbI. 3TOT opraH ,lJ,OJDKeH
OTBeqaTb 3a pa3pa6oTKY nporpaMMbI ,lJ,eHCTBHH, 3neMeHTOB CTpaTemH, onpe,lJ,eJIeHHe CTa,IlHH
npOIJ,eCca pe<popM H OCYIIJ,eCTBJIeHHe npeo6pa30BaHHH Ha Ka:>K,lJ.OH H3 CTa,IlHH 3Toro npOIJ,ecca.
3TOT opraH MO:>KeT BKJIIO'IaTb ,lJ,Ba cneIJ,HaJIH3HpOBaHHbIX OT,lJ,eJIa, O,lJ,HH H3 KOTOPbIX 6Y,lJ;eT
3aHHMaTbCH CTPYKTYPOH roCY,lJ,apCTBeHHbIX ycnyr, a ,lJ,pyrOH - I'Pa:>K,lJ.aHCKOH CJIy:>K60H, npH'leM B
COCTaB Ka:>K,lJ.OrO H3 3THX OT,lJ,enOB ,lJ,OJDKHbI BXO,lJ;HTb opraHH3aIJ,HOHHbIe e,lJ,HHHIJ,bI, OTBe'laIOIIJ,He
3a pa3pa6oTKY npaBHn H ynpaBJIeHHe. OT,lJ,en, 3aHHMaIOIIJ,HHcH rpaQaHcKoH Cny:>K60H, MO:>KeT
nocny:>KHTb OCHOBOH ,lJ,JIH C03,lJ,aHHH nOCTOHHHoro Y'lpe:>K,lJ;eHHH, B 3a,Ila'IH KOToporo 6Y,lJ,eT
BXO,lJ;HTb o6IIJ,ee PYKOBO,lJ,CTBO nIO,lJ;CKHMH pecypcaMH (B TOM '1HCne YCTaHOBJIeHHe 60nee
OTKPblTbIX H CnpaBe,IVIHBblX npOIJ,eJJ.Yp nO,lJ,6opa Ka,IlPOB).




~3TOT KOMllOHeHT pelj)opMbI nO,iUl.ep:lKHBaeTCli TaltlKe B paMKaX npoeKTa MO,1l.epHH3aIlHH Ka3Ha'leHCTBa, OC}1I{eCTBJIJleMoro
BCeMHplfbIM SMKOM.
120. H        HaKOHen:, B ycnoBH.IIX pa3,n;po6neHHocTH rocy,n;apCTBeHHbIX Y'lpe>K,IJ.eHHH, OTBeI:J:aIOIIl.HX
3a KOHKpeTHhIe ceKTopa HeB03MO:>KHO 6y,n;eT OCYIIl.eCTBJUlTh ynOMJIHYTbIe BbIllle CTpYKTYPHbIe
pe$opMbI B c$epax 06PS30BaHHJ1 H 3,IqJSBOOxpSHeHHJI: Heo6xo,n;HMa KOHCOJIH,n;aD;H.II ponH
rocy,n;apCTBeHHbIX Y'lpe>K,IJ.eHHH C n:enblO 3$$eKTHBHoro PYKOBo,n:CTBa 3THM npon:eCCOM. QTo6bI
CTaJIO B03MO:>KHbIM nnaHHpOBaHHe ,n;eJITeJIbHOCTH B paMKax pe$opM B ceKTopax H
npOrH03HpOBaHHe nOTpe6HOCTeH B pecypcax, Bce Y'lpe>K,IJ.eHH.II 3,n;paBOOXpaHeHHJI: H
06pa30BaHHJI: ,n:OJI:>KHbI 6bITh nepe,n:aHbI B Be,n;eHHe COOTBeTCTBYIDIIJ.HX MHHHCTepCTB H HX
TeppHTOpHaJIbHhIX OT,n;eneHHH (B paMKax nepe,n;al:J:H nOJIHOMOI:J:HH, npe,n:JIO)KeHHOH B
naparpa$e xix), BMecTe C TeM, MHHHCTepCTBa 3,n:paBOOXpaHeHHJI: H o6pa30BaHHJI: ,n;OJI:>KHbI
OTBeI:J:aTh 3a nporpaMMHpOBaHHe H ynpaBJIeHHe rocy,n;apCTBeHHhIMH pacxo,n;aMH B CBOHX
ceKTopax.



                                                  G.   3aKJIIOQeHHSI


121.   rocy,n;apcTBeHHbIM opraHaM, ynpaBJIJl:IOIIl.HM a,n:MHHHCTPaTHBHOH H $HHaHCOBOH
,n;eJl:TeJIbHOCTbIO, eIIl.e npe,n;CTOHT npHcnoco6HTbC.II K KOpeHHhIM nOJIHTHI:J:eCKHM H
3KOHOMRI:J:eCKHM H3MeHeHH.IIM, npOH30llle,n;mHM nocne pacna,n:a CCCP. O,n;HaKo B YCJIOBHJl:X
$HHaHCOBOrO KpH3Hca pecypcbI, Heo6xo,n:HMble ,n:JIJI: $HHaHCHpOBaHHJI: 06lllHPHOH ceTH
rocy,n;apCTBeHHbIX Y'lpe>K,IJ.eHHH, pe3KO COKpaTHJIHCb. BMecTo cocpe,n;OTOI:J:eHHJI: BMelllaTeJIbCTBa
Ha HaH60JIee npHopHTeTHbIX HanpaBJIeHHJl:X ,n;eJl:TeJIbHOCTH, 3TO COKpam.eHHe 6IO,ll;)KeTHhIX
pecypcoB npHBeJIO K CHH)KeHHIO 3$$eKTHBHOCTH rocy,n;apCTBeHHhIX yCJIyr no BceH CTPaHe.


122.   CraHOBHTC.II Bce 60JIee OI:J:eBH,n;HbIM, I:J:TO npon:ecc KOHCOJIH,n;an:HH H peOpraHH3an;HH
CHCTeMbI rocy,n;apCTBeHHhIX opraHOB 60JIee He MO)KeT OTKJIa,n;bIBaThCJI:. HOBaJl: KOHCTHTYD;HJI:
CTpaHhI, npHRjlTaJI:     30   aBryCTa   1995   ro,n;a, YCTaHaBJIHBaeT OCHOBOnOJIaraIOIIl.He npHHn;HIThI, B
COOTBeTCTBHH C KOTOPbIMH 6y,n:eT OCYIIl.eCTBJIJlTbCJI: npeo6pa30BaHHe rocy,n;apCTBa. HeT rOTOBOH
Mo,n;eJIH npon:ecca npeo6pa30BaHHH. O,n;HaKo 60JIb1llHHCTBY CTPaH npH1llJIOCb CTOJIKHYTbC.II C
np06JIeMaMH, CTOJl:IIJ.HMH B HaCTOJl:IIl.ee BpeMJI: nepe,n; Ka3axcTaHOM. OHH pelllaJIH 3TH npo6JIeMhI
C rI:J:eTOM Han;HOHaJIbHbIX oco6eHHOCTeil H KOHKpeTHbIX YCJIOBHH.             H   Tenepb Ka3axcTaH HMeeT
B03MO)KHOCTb BOCnOJIb30BaTbCJI: Me>K,IJ.YHapo,n;HbIM onbITOM.


123.   B     HaCTOJl:IIl.eM ,D,OKJIa,n;e, OCHOBaHHOM Ha MeX<:AYHapO,n;HOM OnbITe, npe,D,npHHHMaeTCJI:
nonbITKa H3nO)KHTh pa3JIHI:J:HbIe BapHaHTbI pe$opM, KOTopbIe CTpaHa MOrJIa 6hI Hcnonh30BaTh.
B ,n;OKJIa,n:e H3nO)KeHbI CJIe,n:yIOIIl.He TIJlTb OCHOBHhIX HanpaBJIeHHH pe$opM, KOTophIe MOryT
Jl:Bn.llThCJI: npHOpHTeTHhIMH B YCJIOBHJl:X Ka3axcTaHa:


       (i)       n:eneHanpaBJIeHHOe COKpaIIl.eHHe a,n:MHHHCTpaTHBHbIX CTPYKTYP, KOTopoe 6y,n;eT
                 COnpOBO>K,IJ.aThC.II (HecoMHeHHo 60JIe3HeHHbIM) YBOJIhHeHHeM H36b1TOI:J:HOrO
                 nepCOHana;


       (ii)      KOHCOnH,n;an;HJI: Y'lpe>K,IJ.eHHH COn:HaJIbHOro ceKTopa nyTeM 60JIee lllHpOKoro
                 HcnOnb30BaHH.II aM6ynaTopHoro JIeI:J:eHHJI: B c$epe 3,n:paBooxpaHeHHJI: H YBenHI:J:eHH.sI
                 KOnHI:J:eCTBa yqaIn;HXC.sI B paCI:J:eTe Ha o,n;Horo npeno,n:aBaTeJIJI: B c$epe o6pa30BaHHJI:;


       (iii)     pa3pa6oTKa H BHe,n:peHHe HHCTPYMeHTOB ynpaBJIeHHJI: 6IO,ll;)KeTHhIM npon:eCCOM,
                 n:enhIO KOToporo Jl:BJIJl:eTCJI: oT6op HaH60JIee npHopHTeTHhIX HanpaBJIeHHH
                 ,n;eJl:TeJIhHOCTH H OTKal OT pacnpe,n;eJIeHHJI: pecypCOB 6e3 Y'leTa peaJIhHhIX
                                           - 48-

       nOTpe6HOCTeH (KaK 3TO npOHCXO,nHJIO B paMKax KOMaH,IJ;HO-MMHHHcTpaTHBHoH
       CHCTeMhI);


(iv)   )l;HQ>Q>epeHIJ;HaIJ;H.SI rocY)l;apCTBeHHOrO BMeIIIaTeJIhCTBa B pa3JIHQHhIX pemoHax
       CTpaHhI B COOTBeTCTBHH C npHopHTeTaMH HnoTpe6HOCT.SIMH MeCTHoro HaCeJIeHH.SI
       nyTeM nocTeneHHoH nepe,naQH nOJIHOMOqlfH OpraHaM MeCTHoro caMoynpaBJIeHH.SI;


(v)    C03,IJ.aHHe CHCTeM ynpaBJIeHH.SI Ka,nPaMH, cnoco6cTBYIOIlJ,HX HenpepbIBHoCTH pa60ThI
       rpaJK,IJ;aHCKOH CJIyx<:6hI H nOBhIIIIeHHIO 3aHHTepeCOBaHHOCTH H npoQ>eccHOHaJIH3Ma
       rocY)l;apCTBeHHhIX CJIyx<:arn;HX.