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OCHOBHaH 1.J:aCTh JKHJIHI.nHOI"O c:poH,n;a B I"opo,n;ax HaxO)l;KlIaCL B 6 l"ocy,n;apCTBeHHoH co6CTBeHHoCTH , H MeCTHbIe phIHKH yc.nyr no 06CJIY1KHBaHHIO JKHJIhH ObIJIH MOHOnOJIH3HpoBaHhI O)l;HHM HJIH HeCKOJIhKHMH KpynHhIMH npe.nnPHHTHHMH (XepPJIHHf' (Herding, 1996)). 6 BOJIrapmI H BeHrpmI ObUIH CTpaHaMH C HaHOom.mHM npoueHTOM ::lKHJIbH B 'I.IaCTHOH coOCTBeHHOCTH (COOTBeTCTBeHHO, 84 H 71 npoueHT BCero :3C.HJIHllUforo cpoH,na), B TOM 'l.lHCJJe B Ce.JThCKOH MeCTHOCTH (C'rpaiiK, 1996, CTp. 8). -6- HeCMOTpH Ha TO qTQ K HacrOHrneM}' BpeMeHH B pa3HbIX crPaHax pemOHa npoQecc pecpOpM npIfHeC BeCbMa HeO,[tHHaKOBble pe3YJIbTaru, no BceH BH,ItHMOCTH, ~IDKe B rex crPaHax, KOTopble npHJJ:ep>KIfBarrnCb HaH50nee pa,r(HKaJIbHOrO no~o~a K npe05paaoBaHIDIM B >KHJIHrnHOH ccpepe (HanpHMep, B qemCKoH Pecny6JIHKe, 3crOHIfIf, CnoBeHHH), npoQecc erne ~aneKO He 3asepmeH. B "tfaCTHOCTH, ~IDKe B 3THX crPaHax, KOTOPbIM y,nanOCb cyrneCTBeHHO 7 npO~IfHyTbCH B npoQecce pecpoPM, >KHJIHInHble cy6c~If erne He nOJIHOCfbIO IfC"tfe3.l1H . HeCMOTpH Ha TO qTQ B 3THX crPaHax 5blJ10 npeKparneHO cy6C~pOBaHIfe >KHJThH If3 5IO~eTa QeHTpaJIbHOrO npaBIfTeJThCTBa, npO~OJI}KaIOT Bblnna"tfHBaTbCH cy6CH,ll;HH If3 5IO~eTOB MeCfHbIX opraHOB rocy,napCTBeHHoro ynpasneHHH, oc05eHHO B nop~e nepeKpeCTHoro cy6c~pOBaHHH ~OMamHHX X03HHCTB (<1>POHHJl: If BaJIJIHX (Freund and Wallich, 1995); JIHnnMaa (Lippmaa, 1996); IllH~ep (Schneider, 1997)). I1epe~a"tfa nOJIHOMO"tfHH no npose~eHHIO pecpopM >KHJIHrnHOH CcpePbI MeCTHbIM opraHaM rocy,napCTBeHHoro ynpaBJIeHHH npIfBena K TOM}', "tfTO pa3JIlNHbIe MYHHQIfnaJIbHbIe OpraHbI npOBO~If pecpoPMbI Pa3.J1HqHbIMH TeMnaMH If Pa3JIHqHblMIf cnOC05aMIf, a TaK>Ke K TOM}', 'ITO npO~OJI>KanOCb CKpblToe cy6cHJJ;HpOBaHIfe KOMM}'HaJIbHbIX ycnyr Ha Mecrax. 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YCKopeHIfe peCPOPM >KHJIHIWIOH CcpePbl, KaK npaBIfJIO, npOIfCXO~O Tor~a, Kor~a ~pyrne peCPOPMbI Y>Ke mJIH nOJIHbIM XO~OM If 3KOHOMH"tfeCKaH CIfTYaQIfH Ha"tfHHana cra5HJIH3IfpOBaTbCH (XeppIIHHr, 1996). • MymnumaJIbHbIe opraHbI rocyJ1apCTBeHHoH BJIaCTH 5bIJIH Ha,[{eneHbI ropa3~o 50nee mIfpOKHMH nOnHOMO"tfHHMIf B npoQecce cpaKTH"tfeCKOrO pecpopMIfpOBaHHH >KHJIHIWIOH ccpepbI. lleQeHTparrn3aI(HH nOJIHOMO"tfHH HaHOOnee O"tfeBH,ll;Ha B TaKHX 06nacrHX ~eHTeJThHOCTH KaK (0 ycraHOBJIeHHe nnaTbI 3a 06CJIY>KHBaHHe >KHJIHInHoro cpoHJl:a If CHa5>KeHIfe 3HeprOHOCHTeJIHMIf Ha ypOBHe, OOecne"tfHBaIOrneM B03MerneHHe 3aTpaT; (ii) npIfBaTH3aQIfH KBapTHp (onpe~eJIeHIfe QeH B paC"tfeTe Ha e~HIfQY nnorna,r(H If perIfcrpaI(HH); (iii) ynpasneHHe ocyrneCTBJIeHIfeM nporpaMM >KHJIHr.nHbIX noc06IfH; If (iv) peryIIHpOBaHIfe ~eHTeJThHOCTH HOBbIX "tfaCfHbIX npe~pHHTHH no 06CJIY>KHBaHHIO >KHJIHInHoro cpOHJl:a. • I10BblmeHHe YPOBHH B03MerneHHH 3aTpaT npoIfCXO~O nOCTeneHHO, B HeCKOJIbKO xopomo nOWOTOBJIeHHbIX If npOpa5OTaHHbIX 3TanOB If B COOTBeTCTBIfIf C npOMe}KfTO"tfHbIMH KOHTPOJIbHbIMH nOKa3aTeJIHMIf. Bo3MerneHHe 3aTpaT Ha 06CJIY>KHBaHIfe >KHJThH, r~e 50JIbme B03MO}KHOCTeH.rtrnI KOHKYpeHI(HIf If oblcrporo nOBbIilleHHH 3cpcpeKTHBHOCTH, 5blJ10 ~OcrHrHYTO 5b1crpee, "tfeM B03MerneHIfe 3aTpaT Ha KOMM}'HaJIbHble ycnyrIf, CBH3aHHble C 3HeprOCHa5>KeHHeM. 7 OIe,rweT OTMeTHTh, liTO, HanpHMep, B nom.me, KOTOpasI Cl.lHTaeTCH npHMepoM Pa,nHKam.HOro no,nxo,na K cra6HJIH3~HH H JlH6epaJDl3aQHH ueH, peIaCOH HaCeneHHH B npoUeCCeJI03TanHOH OTMeHbI cy6CJ:UlHpOBaHHH )l{HJTbH. Jlo Haqarra pecpOpM cq,epa OXBaTa :arn:JlliIQHblX cy6CH,WiH ObJJla OrpaH~eHHOH, H CeMbH, 8 Bna,AeIOIQHe 1KHJTbeM , KaK npaBHnO, nOKpbIBarrH BCe 3aTpaThI CaMOCTOHTeJTbHO. 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B HeMHorHX cnyqaHX (B BeHrpHH, ITOJIbIlle, CnoBeHHH) 3cpcpeKTHBHOCTh TaKHX nporpaMM nOCTpa,Aarra OT Toro, qTO CHCTeMa pacnpe,AeneHHH 6IO,A1KeTHblX TpaHccpeproB Me1K.AY OpraHaMH rOC}'J\apcrneHHoro ynpaBJIeHHH Pa3nHq}{bIX ypoBHeH ObJJla He,AOCTaTOq}{O npo,AyMaHHOH, KOr,Aa MeCTHble opraHbI C HH3KHMH ,AOXO,AaMH oOHsaHbI ObInH opaTh Ha ceoH qaCTb OIO,A1KeTHbIX paCXO,AOB ueHTparrbHoro npaBHTenbcrna (Xere;:lYIll Ji TOIll~ (Hegedus and Tosics, 1996); CTpaHK, 1996)). • IillHBaTHS~ MYHHUHnaJIbHOrO 1KlUIbH npoxo,AHna OqeHb aKTHBHO H .AHH~O H, KaK npaBH.fIO, ,AonycKarracb npo,Aa1Ka )l{HJTbH no ueHaM, KOTopble OblnH ropa3,Ao HH1Ke PbIHOq}{blX. ITpHBaTHSaUHH nOMorna nOBblCHTh MOOHJTbHOCTb HaceneHHH, O,AHOBpeMeHHo YMeHbllIHB nOTpe6HoCTH B CTpOHTeJTbcrne HOBoro 1KHJTbH. O,AHaKO npHBaTHSaUHH HenOCpe,AcrneHHo He nOBnHHna Ha ypOBeHb BOSMeIQeHHH saTpaT H OOIQHH omeM 6IO,A1Kt.'TIIblX paCXO,AOB. 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O,AHaKO.wm Toro, qrOObI TaKHe HHCTHTYUHOHaJIbHble HOBOBBe,AeHHH npH1KHJIHCb, HeOOXO,WiMO BpeMH, H ,AHHaMHKa pa3BHTHH HOBOH HHCTHTYUHOHaJIbHOH CTPYK'ryPbI, HanpHMep, B TaKHX oonaCTHX ,AeHTeJTbHOCTH KaK C03,AaHHe KOH,AOMHHHYMOB H 06cnyiKHBaHHe Ha KOHKYPCHOH OCHOBe BO MHorOM 3aBHCHT OT uenoro pH,Aa HHCTH'ryuHOHarrbHblX H COUHaJIbHblX cpaKTopOB, XapaKTepHblX .wm TOH HnH HHOH CTpaHbI. • B OTmiqne OT CTpaH oblBillero CCCP, nepenaqa 1KHnHIQHOrO q,OH,Aa, HaxO,AHBillerOCH B Be,AeHHH npenrrpHHTHH, oblna saBepilleHa ,AOBOJIbHO OblCTpO H, no BceH BH,WiMOCTH, HHKor,JJ;a He oblna peaJIbHOH nonH~eCKOH IIpoOneMoH. 9TO OTnnqne 06ycnoBJIeHO HeCKOJIbKHMH Ba1KHblMH cpaKTOpaMH: (0 He60JIbiliaH ,AOnH Be,AOMCTBeHHoro 1KHnbH B 1KHnHIQHOM cpOH,Ae; (ii) ropa3,AO oonee HH3KHe OIO,A1KeTHble paCXO,AbI MyHHUHIIaJIbHblX 9 OpraHOB B cHJIY 60nee OrpaHHqeHHoro omeMa CyOCH.AHPOBaHHH ; H (iii) 60nee Pa,AHKaJIbHbIH XapaKTep pecpopMhI npenrrpHHTHH. 8 HanpHMep, B t.{emCKoH PeCnyOJIHKe 60JIee nOJIOBHHbI Bcex ):IOMaIllHHX X03HHCTB He HMeJ1H npaaa Ha nOJ'J)'tleHHe JKlL1H~HbIX CyOCHJ:IHH (lliHaH;nep, 1997). 9 ITpe):lCTaBJUIeTCH, 'ITO B OTJIH"ille OT POCCHH H ):IPyrnx CTpaH CHr, 06~HH KO;)qxpHUHeHT B03Me~eHHH 3aTpaT B CTpaHax UeHTpaJIbHOH H BocrolJHOH EBponbI He onycKanCH HHxe 30-35 npo[(eHTOB. O[(eHOlJHbIe 3HaqeHHH ):IaHHbIX no KOHKPeTHbIM CTpaHaM CBH):\eTeJ1bCTB}'IOT 0 TOM, 'ITO B Haqane 90-x IT. 06'beM 6IO):\)KeTHOrO cyOCHJ:IHPOBaHHH )KH)'lhlI 6bIJl OrpaHH'leH 1 npo[(eHTOM BBIT CXeppJIHHr, 1996; CTPaHK, 1996) -8- • BhUIa BBe~eHa CIiCTeMa 06ecneQeHHoro HnOTel:lHbIM 3aJIOrOM KpemrrOBaHIDI Ha Ue.rrn: CTpOIITeJ1hCTBa II nplI06peTeHIDI HOBOrO 1KH.J'IhlI, O~aKO B 60JlbIIIHHCTBe c.rryqaeB 3Ta CIiCTeMa pa3BHBaJIaCb MeATIeHHbIMH TeMTIaMli. 3TO CBH)leTeJ1hCTBYeT 0 TOM, liTO CHH:/KeHlIe npOueHTHbIX CTaBOK, npmmme 3aKOHOB 06 HnOTeKe II npHBam3aUWI 1KHJIbH HBJIHlOTCH He06xo~bIMH, HO BCe :/Ke He~OCTaTOl:IHbIMH YCJIOBHHMH AJ1H pa3BHTHH CHCTeMhI IInOTel:lHOrO q)IIHaHCHPOBaHIDI B ~OJIrOCpOl:lHOH nepcneKTHBe. B TaKHX CTpaHax KaK '4emCKaH Pecny6JIHKa, CnoBauKaH Pecny6.rrnKa, 3CTOHHH II JlHTBa, 6aHKH HeOXOTHO Bbl',rtaBaJIH Ccy;nI>I no~ HnOTel:lHbm 3aJIOr, B OCHOBHOM no npHl:lHHe OTCYTCTBHH B IOpJmHl:leCKOH CIiCTeMe KOMnOHeHTOB, cnoco6HbIX 06ecnel:lHTb co6mo~eHHe npaBHJI peaJIH3au:HH 3aJIO:/KeHHOrO .HMYID:eCTBa (BCeMHPHhlH 6aHK, 1996b; CTPaHK, 1996). 06maH cyMMa Kpe~OB, Bbl',rtaHHbIX no~ IInOTel:lHhIH 3aJIOr, HBJIHeTCH 60nee 3Hal:lHTeJ1hHOH B BenrpHH II CnoBeHHII (Xere~ H TOmHq, 1996; CTPaHK, 1996), r~e CHCTeMa Kpe~TOBaHHH 6hUIa C03~aHa eme npH COUHaJIH3Me. KonHlJeCTBO HOBbIX IInOTel:lHbIX Ccy.r(, Bbl',rtaHHbIX B 3THX CTpaHax 3a nOCJIe~He ro~, He3Hal:lHTeJ1hHO. ~ I - 9- rJIABA 2. OCHOBHLIE llPOBJIEMLI, cro~ IIEPE)J; CEKTOPOM, H 3A,JJ;AqJf nOJIH11lKH He06xo)l;HMOCTL B YCKOpeHHH Mep. HanpaBJIeHHLIX Ha 60JIee DOJIHoe B03MeIqeHHe aaTpaT JlmI TOro ~06bI pecpOPMbI B )KHJlliII(HOH ccpepe POCClfiI n03BOnH.JIH CTa6H.JIH3HpOBaTb 9TOT ceKTop 9KOHOMHKH B )J.OJ1I'OCPOlIHOH nepcneKTHBe, He06xo)J,HM0 6YJJ.eT cyrr(eCTBeHHo nOBbICHTb ypoBeHb B03MeIIleHHH HaceneHHeM 3aTpaT Ha npe)J.oCTaBnHeMble YcnyrH. B HatIane 1997 r. POCCHHCKaH ceMbH orrnatIHBana B Cpe)J.HeM MeHee 25 npoueHTOB cpaKTHtIeCKOH ce6eCTOHMocm KOMMYHanbHbIX yc.n:yr H 3aTpaT Ha 06CJIYLKHBaHHe .lKHnbHlO. B pe3YJIbTare o61,eM HBHoro 6IO)J..iKeTHOrO cy6CH)J.HPOBaHHH .lKHJIbH H CBH3aHHbIX C HHM KOMMYHanbHbIX yc.n:yr cocraBnHeT OKOJIO 3 npoueHTOB BBn H 40 npoueHTOB 6IO)J..iKeTHbIX paCXO)J.OB MeCTHbIX opraHoB BJIacm ll . KpoMe Toro, 3a nOCJIe)J,HHe ro)J.hl MYHHUHnanbHbIe OpraHbI HaKOnH.JIH 3HatIHTeJIbHyIO 6IO)J..iKeTHyIO 3aJJ,OJI.lKeHHOCTb no BbIrrnaTaM npe)J.llpHHTHHM no 06CJIYLKHBaHHIO .lKMHillHOro cpoH,JJ;a H OKa3aHHIO KOMMYHanbHhlX yc.n:yr. CYMMa ;}TOH: 3a)J.OJI.lKeHHocm COCTaBMa OKOJIO 25-30 npoueHToB o&beMa )J.eHe.IKHbIX c:y6ClfJ~HH. B nepHo)J. BbICOKOH: HHCPnHUHH CYMMa 6IO)J..iKeTHOH: 3aJJ,OJI.lKeHHocm no rrnaTe.IKaM npe)J.llpHHTHHM KOMMYHanbHOrO 06CJIY.iKHBaHHH nOCTOHHHO cOKpalilanacb no)J. B03)J.eHCTBHeM HHCPnHUHH H nO:3TOMY 6bma ropa3)J.O MeHee 3aMeTHOH:. Tenepb, KorJJ,a HHCPnHUHH 06ya)J.aHa, 3a)J,OJI.lKeHHOCTb no rrnare.IKaM CTana 60nee HBHOH:. B pe3YJIbTaTe yqeT HaKOrrneHHOH: 3aJJ,OJI.lKeHHocm n03BOnHeT nOnyqHTb 60nee nOJIHOe npe)J.CTaBJIeHHe 0 reKYIIlHX 06H3aTeJIbCTBax MYHHUHnanbHbIX OpraHOB B )KHJlliII(H0H: ccpepe. KaK nOKa3aHO B Ta6JIHue 1, )J.ecpHUHT CPHHaHCHPOBaHHH He06xo)J,HMbIX pacxo)J.oB TaKlKe HBJIHeTCH 3HatIHTeJIbHbIM. PeanbHbIH o61,eM pacxo)J.oB Ha KanHTanbHbIH peMoHT COKpaTHJ1CH B IDrI'b pa3 B 1990-96 rr. Ta6JIH~a 1. CTpYKTypa pacxo)J.oB Ha 06CJIYLKHBaHHe 1KHJIbH H KOMMYHanbHbIe yc.n:yrH B 1996 r. 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COCTOHHHe MYHHUHnanbHbIX 6IO)J..iKeTOB yxyJJ.IIIaeTCH no Mepe nepe)J.atIH npe)J.llpmITHHMH 10 no npe)lBapHTeJIbHbIM ,naHHbIM rOCcrpOH (rO~apCTBeHHoro KOMHTeTa no crpOHTeJIbCTBy H .iKHJIHmHOH nOJIHTHKe), IIOK33aTeJIb B03MeIIIeHHH 3aTpaT YBeJIH'lJHJICH B cpeJUIeM,no 30 npOI~eHTOB JIeTOM 1997 r. 3ToT nOK33aTeJIb ,nOJI:lKeH paccMaTPHBaThCH KaK rpy60 npH6JIH:lKeHHoe 3Ha'lJeHHe, IIOCKOJIbKY HeT Ha,ne:lKHbIX CTaTHCTII'lJeCKHX ,naHHbIX 0 q,aKTH'lJeCKHX 3aTpaTax Ha :lKHJIbe H onnaTe .iKHJIbH B POCCHH. 11 B PaMKax HCnOJIb3yeMoro B HaCTOHIIIee BpeMH B POCCHH K,n}' :lKHJIHmHbIMH cy6clWfHMH H pacxo,naMH Ha ropo,ncKoe p33BHTHe. n03TOMY COXpaHHeTCH ,nOCTaTO'lJHO BhICOKaH CTeneHb HeOnpeAeJIeHHOCTII OTHOCHTeJIbHO 06IIIeH q,aKTH'lJeCKOH cyMMLI cpe,nCTB, H3paCXOAOBaHHhIX Ha cy6c1mHpoBaHHe :lKHJIbH. - 10- cBoero 2KHJIhH B Be.n;eHHe MeCTHbIX OpraHOB H COKpam;eHHH rrepeKpeCTHOrO cy6CH,IUlPOBaHHH rrnaThI 3a CHaO~eHHe :7HeprOpeCypCaMH. HeXBaTKa OIO~eTHbIX Cpe.n;CTB 060paqnBaeTcH He.n;ocraTOqJihIM cpHHaHrnpOBaHHeM 06CJIYiKHBaHHH H peMOHTa H yxy.n;rueHHeM COCTOHHHH XliJIHII(HOrO cpOH.n;a, a TaK~e CH~eHHeM :7cpcpeKTHBHOCTH yrrpaBJIeHHH .n;eHTeJIhHOCThIO KOMrraHHll rro OKaaaHHIO KOMMYHaJIhHbIX yc.nyr. B HaqaJIe 1993 r. cpe.n;epaJIhHoe rrpaBHTeJIhCTBO H3.n;aJIO rrocraHOBJIeHHe, rrpe.n;yCMaTpHBaIO.rnee ooeCrreqeHHe rronHoro B03Me.rneHHH HaCeJIeHHeM 3aTpaT Ha 2KHJIhe H KOMMYHaJIhHhle yc.nyrH K 1998 r. fio.n; .n;aBJIeHHeM JlYMhI B :7TO rrocraHOBJIeHHe OhUlH BHeceHhI H3MeHeHHH, B COOTBeTCTBHH C KOTOphIMH :7TOT rrepHo.n;ohUl rrpOJ(JleH.n;o 2003 r. B Bblme)UIIHX He.n;aBHO YKaaax fipe3ImeHTa N'N' 425 H 528 ohUla rro.n;TBep~eHa ~eJlh rronHoro rrpeKpam;eHHH CyOCHJ(HpOBaHHH ceKTopa K 2003 r. KpoMe Toro, K 2000 r. rrpe.n;ycMaTpHBaeTCH rrOBblmeHHe ~eH Ha rrocraBJlHeMYIO HaCeJIeHHIO :7neKTpO:7HeprHIO .n;o ypOBHH, 06ecrreqHBaIO.rnero rronHoe B03Me.rneHHe 3aTpaT, a orrTOBble ~eHbI Ha raa J(JlH HaceneHHH oy,uyr ycraHOBJIeHbI Ha ypoBHe, .n;ellCTByIOInHM B OTHomeHHH rrpoMhlmneHHhIX rrpe.n;rrpHHTHll, B 1998 r.12 fipaBHTenhCTBo TaK~e COrnaCHJlOCh paapaOOTaTh rrporpaMMY rrO:7TarrHOrO rrpeKpa.rneHHH CyOcH,IUlPOBaHHH P03HHqJiblX ~eH Ha raa, rrocraBJlHeMblll HaCeJIeHHIO. B JlOKYMeHTe rrpaBHTeJIhCTBa .KoH~err~ pecpopMhI ~HJlHII(HO­ KOMMYHaJIhHOrO X03HllCTBa· MYH~rraJIhHhIM OpraHaM peKoMeH.n;yeTCH rrpe~e Bcero ycraHOBHTh rrnaTY, 06ecrreqnBaIO.rnyIO rronHoe B03Me.rneHHe 3aTpaT, J(JlH ceMell, HMeIO.rnHX oonee OJ(Horo ~.rna, H J(JlH Tex, KTO rrpo~aeT B OOJlhmHX KBapTHpax, rrno.rnaJ(h KOTOpbIX 3HaqHTeJlhHO rrpeBblmaeT COUHaJIhHhIll craH)J;apT, T.e. 42 M2 Ha CeMhIO H3 J.lByx QeJIOBeK, 54 M2 Ha CeMhIO H3 TPex QeJIOBeK H T.J.l. PemeHHe :7TOll cno~oll 3aJ(aqn rrOTpe6yeT COBMeCTHhIX YCHJlHll Pa3JlHqJibIX rocy.n;apCTBeHHbIX Be.n;OMCTB. fipeKpam;eHHe cyOcH,IUlpOBaHHH ~II(HOll ccpephI POCCHH CTaHeT B03MO~hIM, ecnH 3aJ(aQa oy.n;eT pemaThCH OJ(HOBpeMeHHO rro J.lBYM HarrpaBJIeHHHM: rryreM rrocrerreHHoro rrOBblmeHHH B peaJIhHOM BblP~eHHH TapHcpOB Ha KOMMYHaJIhHhle ycnyrH, OKaablBaeMhle HaceneHHIO, H C03.n;aHHH HOpMaTHBHo-rrpaBOBOll oaabl, CrrOCOOCTByIO.rnell rrOBhlmeHHIO :7enep~HH ~ 389 OT 3 anpenH H 26 ceHTH6pH 1997 r. 13 B POCCHll oOO,eM nOTpe6iIeHHH 3HepropecypcoB mnuqHbIM MHoroKBapmpHhIM JlOMOM B 2-3 paaa npeBbIDIaeT aHaJIoruqHbIH nOKaaaTeJTh no CTpaHaM C PbIHOquOH 3KOHOMHKOH C noxo~ KJIllMaTOM (MapmHo, 1997). KpoMe TOro, CpeJlHHH oOO,eM nOTpe6iIeHHH BOAb! B POCCHHCKHX roponax npeBbIDIaeT 300 JlHTPOB B JleHb, B TO BpeMSI KaJ{ B CTpaHax c PbIHOlfHOH 3KOHOMHKOH 3TOT nOKaaaTeJTh COCTaBJIHeT 150-200 JlHTpOB (C60pHHK MaTepHaJIOB... , 1997, CTp. 151). - 11 - Toro, yqMThIBaJI, tITO 3a peepOPMY B lKHJUIII(HOH cepepe lIO-lIpelKHeMY OTBetIaIOT M:yHHlUfIIaJIbHbIe OpraHbI, epe,[lepaJlbHOMY lIpaBHTeJIbCTBY He06xo,[lHMo C03,[laTh 3epepeKTHBH)'IO CTPYK1YPY CTHM)'JIOB, lI06YlK,[laIOII(HX perHOHaJIbHbIe H rOpO,[lCKHe OpraHbI BJIaCTH yCKOpHTh lIpHIDITHe Mep, HaIIpaBJIeHHbIX Ha lIOBbIIIIeHHe nOKa3aTeJISi B03MeII(eHHSi lKHJIHII(HbIX 3aTpaT. Pe3YJIbTaThI nO,[lp06Horo 06CJIe,[lOBaHHSi ,[leHCTByIOII(HX B HaCTOSiII(ee BpeMs:! TapHepOB CBH,[leTeJIbCTByIOT 0 cymeCTBeHHbIX Pa3JIHl.IIDlX B pa3Mepax IIJIaThI 3a KOMM:yHaJIbHbIe ycnyrH B Pa3JIHtIHbIX perHoHax CTpaHbl (I1HCTHT}'T 3KOHOMHKH ropo,[la, 1995). TaK, B aBryCTe 1995 r. Cpe,[lHHH no POCCHH pa3Mep IIJIaThI 3a OTOIIJIeHHe COCTaBJISiJI 8 u;eHTOB CIIlA Ha 1 M2 lKHJIbSi B MecSiU;, a lIO Pa3JIHtIHbIM 06JIaCTSiM EBponeHcKoH qaCTH POCCHH C YMepeHHbIM KJIHMaTOM (T.e. B npe,[leJIax O,[lHOH KJIHMaTHtIeCKOH 30HbI) 3TOT Cpe,[lHHH TapHep KOJIe6aJICSi B ,[lHaIIa30He OT 1,8,[lo 16,8 u;eHTOB. TaKaJI pa3HHu;a, Kor,[la CaMbIH BbICOKHH TapHep B 14 pa3 lIpeBbIIIIaeT CaMbIH HH3KHH, SiBJISieTCSi pe3YJIbTaTOM B03,[leHCTBHSi Tpex epaKTopoB: (i) Pa3JIHtIHble 3aTpaThI Ha OTOIIJIeHHe; (in Pa3JIH'lHaJI CTeneHb CTpOroCTH npaBHJI, peryJIHpyIOII(HX TapHepbI Ha KOMM:yHaJIbHbIe ycnyrH B pa3HbIX perHOHax; H (iii) Pa3JIHl.JHSi B lIPOBO,[lHMOH MeCTHbIMH OpraHaMH BJIaCTH nOJIHTHKe B OTHOIIIeHHH B03MeII(eHHSi 3aTpaT HaCeJIeHHeM. OnbIT cTpaH UeHTpaJIbHOH H BOCTO'lHOH EBPOlIbI CBH,[leTeJIbCTBYeT 0 TOM, tITO HMeeT CMbICJI lI03TanHbIH pe,[{epaJIbHOMY npaBHTeJIbCTBy CJIe):{yeT pa3pa60TaTh HOBbIe npoue):{yPbI KOHTPOJUI 3a HCnOJIHeHHeM 3aKOHo,[{aTeJIbCTBa, npe):{yCMaTpHBaIOII(He npHHHTHe onpe,[{eneHHbIX Mep B OTHomeHHH HermaTeJIbII(HKOB, BIIJIOTb ,[{O BbIceneHHH H nepe,[{al.JH )KlfJIbH '[{PyrMM JKHJIb~aM B npHHYJ(HTeJIbHOM nOPMKe. B CBoeM ,1l0K}'MeHTe C H3JIO:H{eHHeM KOHuen~H pa3BHTHH :H{HJIHIIUIOH CcpePbI npasHTeJIbCTBO ~e peKOMeH,[{OBaJIO MYHH~HnaJIbHbIM opraHaM CCPOPMHpOBaTb MeCTHbIe a,[{MHHHcrpaTHBHble KOMHCCHH, KOTopbIe 3aHMMaJIHCb 6bI npe,ABapHTeJIbHbIM paCCMOTpeHHeM cnyqaeB HeyrmaTbI H ,[{orOBapHBaJIHCb 6bI C JKHJIb~aMH 0 norameHHH 3a,[{OJI:H{eHHOCTH no rmaTe:H{aM (BO BHecy,[{e6HOM nOPMKe). Ba:H{HO TaK:H{e ycraHOBHTh cHcreMY l.JeTKO 3aKpermeHHbIX ,[{orOBOpHbIX OTHOmeHHH Me:H{,[{y )KlfJIbUaMH H TeMH, KTO npe,[{ocraBJUIeT )KlfJIHII(HO-KOMM)'HaJIbHbIe yc.rryrn:, a TaK:H{e Me:H{,[{y MYHH~naJIbHbIMH OpraHaMH H :H{HJIb~aMH MYHH~naJIbHbIX KBapmp. Ilpe,[{croHmee nOBbImeHHe ypOBHH B03MemeHHH 3aTpaT 6YJ(eT cnOCo6CTBOBaTh YCKopeHHlO pecpopM B ,[{pyrHX Ba:H{HeHmHX 06JIacrHx )KlfJI~OH CcpePbI (CTapo,[{y6poBCKaH, 1996). Cl.JHTaeTCH, l.JTO eCJIH nOKa3aTeJIb B03MemeHHH 3aTpaT 6YJ(eT cocraBJUITh 50 npo~eHTOB, nOBbImeHHe rmaTbI, B3MMaeMOH C HaCeJIeHHH H CBH3aHHOe C 3TMM COKpameHHe 61O,[{:H{eTHoro cy6CH,[{HPOBaHHH, - 13 - KOpeHHbIM 06pa3oM H3MeIDIT 3KOHOMI:NeCKoe nOBej:\eHHe OCHOBHhIX 3aHHTepeCOBaHHhIX CTOPOH, 'lITO 6YJ(eT CnOC06CTBOBaTh YCKOpeHHIO npou;ecca peOpraHH3aIJ;HH HHCTHT}'UHOHa.T1bHOH CHCTeMhI. CneJ:\YeT OTMeTHTh CJIeJ:\YlOIUHe CPaKTOPhI, cnOC06Hhle nOBJlHHTh Ha HHCTHT}'UHOHa.T1bH}'lO CHCTeMY: • TIoBhImeHHe YPOBIDI B03MeIIJ;eHIDI 3aTpaT Ha 06cnyJKHBaHHe }lQfJIHIIJ;Horo cpoH):\a 6YJ(eT cnoc06CTBoBaTh nO.HBJleHHIO HOBhIX 'IaCTHhIX npe):\llpHHTHH B 3TOH ccpepe j:\eHTeJ1hHOCTH. TIoHBJleHHe HOBhIX npe):\llpHHTHH MOrJIO 6hI cnOCo6cTBOBaTh YCHJleHHIO KOHKypeHIJ;HH H ):\a.T1bHeHmeMY nOBhImeHHIO 3¢JaW,e B KOHe-JIIOM AH'lHOM n0rpe6AeHHH, 1993 BBn Ha AYWY Ha.ceAeHM, B PhlHO'IHhIX Ileuax, B AOAA. ClllA y=4~-O~X+0.0918 2S%T.------------------------------------------------------------------------------------------• . - • Sweden • Switzerland • TIIIby • New zealand 20% .e-n I11III • Denmark • A1Iand • Au...... ... Fr., - 15% .UK • Italy .C8nada • Heighi'll ._111 • AuslrtaJSA lWay .Greeoa .s,,;ln........ 10% • Poctugal 5% ~o I ...... .WF- +u.wee 30000 5000 10000 15000 20000 25000 30000 GOP "per capita. market prlcat, US, , • 4E_+ 0.n1' I I 1611019718:14 I 1 - 15 - npe~croHIItHe npe06pa30BalUIH B )KlUIHIIUlOH ccpepe OKruKyrCH BeCbMa OOne3HeHHbIMH )lJ1H 3HatruTenbHOH '-IaCTH HaCeneHHH. • He~OCTaTO'-IHO pa3BHTaH cHcreMa COUHanhHOH 3amHTbI, npH KOTOPOH B03MO)KHOCTH Ha Mecrax )lJ1H OKa3aHHH a,npeCHOH MaTepHanhHOH nOMOIItH HaHOOnee HYJK,rIaIOmlfMCH CeMbHM 19 OrpaHHT.IeHbI . • OrpaHH'-IeHHOCTb B03MO)KHOCTeH npaBHTenbCTBa )lJ1H perynHpOBaHHH nnaTh! 3a )KHnHlUHble yc:ny:rH, OKa3bIBaeMble HaCeneHHIO, KOTOpble ~O CHX nop npe~ocraanHIOTcH B OCHOBHOM MeCTHbIMH MOHOnOnHHMH. ECTb OCHOBaHHH YTBep~aTb, '-ITO npH ~eHCTBYIOmeH cHcreMe ueHoo6pa30BaHHH B ceKTope nOTpe6HTenH BbIHYJK,rleHbI nepenna'-lHBaTb (nysaHoB, 1997). • He~o<""'TaTOT.IHOe cpHHaHcHpOBaHHe o6~HBaHHH )KHnbH B npomnoM Tpe6yeT 3HatruTenhHbIX HHBeCTHUHH Ha UenH BOCCTaHOaneHHH )KHnHmHOrO cpOH,Qa, '-ITO B KpaTKOCpOT.IHOH nepcneKTHBe MO)KeT YBenHT.lHTb o6myro cyMMY paCXO~OB HaceneHHH, CBH3aHHbIX C onnaTOH )KHnhH. • nO-npe)KHeMY He npocne)KHBaeTCH '-IeTKOH B3aHMOCBH3H Me~ crOlfMOCTbIO/pa3MepaMH )KHnOH nnoma.nn: H ~OXO~aMH )KHnbUOB. Cne~eT C03~aTb 6narOnpHHTHbIe ycnOBHH WIH PbIHOT.IHOro nepepacnpe~eneHHH )KHnHlUHoro cpoH,Qa, C TeM '-IT06bI ocna6HTb HanpH)KeHHOCTb B cHcreMe. O~aKO HH3KaH creneHb pa3BHTHH pbIHKa He~H)KlfMOCTH ocraeTCH CPaKTOPOM, npeIIHTCTBYIOlUlfM TaKOMY nepepacnpe~eneHHIO. • KpaHHHH He~cpcpeKTHBHOCTb MeXaHH3MOB KOHTPOnH 3a onnaTOH yc:ny:r' TaKaH Mepa KaK BbIceneHHe 3a HennaTe)KH KBapTIInaTh! npaKTHT.IeCKH He nplfMeHHnaCb B POCCHH. KaK cne~CTBHe eCTb cepbe3HbIe onaceHHH OTHOCHTenbHO Toro, '-ITO B ycnOBHHX 6bIcrporo nOBbImeHHH nnaTbI 3a )KHnbe H KOMMYHanhHbIe yc:ny:rH y ~OMamHHX X03HHCTB 06pa3yeTCH 3a,nOll)KeHHOCTb no 20 nnaTe)KaM . • 11 HaKOHeu, eCTb onpe~eneHHbIe nCHXOnOrH'-IeCKHe co06pruKeHHH. CmnnKOM MHoro nIO~eH Ct.IHTaIOT, '-ITO o6eCne'-leHHe ~emeBbIM )KHnheM HBnHeTCH 06H3aHHOCTbIO rOC)'AapCTBa. TaKlfM 06pa3oM, HecMOTpH Ha TO '-ITO nOBbIllieHHe ypOBHH B03MemeHHH 3aTpaT nyreM BBe~eHHH PbIHOT.IHbIX ueH Ha yc:ny:rH HBnHeTCH HeOTnO)KHOH aa,na'-leH, npH onpe~eneHHH Toro, HaCKOnhKO 6bIcrPbIMH TeMnaMH ,Aon)KHbI OTMeHHTbCH cyOCH,Wflf, Heo6xo~o ytruTbIBaTb H3MeHeHHH pa3Mepa peanhHOH 3apa6OTHOH nnaTbI H B03MO)KHOCTH MeCTHbIX OpraHOB anaCTH WIH OKa3aHHH MarepHanhHOH nOMOIItH HaH60nee ~IOlUlfMCH CeMbHM. B 1993 r. cpe~epanhHOe npaBHTenbCTBO onpe~enHnO OCHOBHbIe npHHUHTIbI MYHHUHTIanhHbIX nporpaMM )KHnHlUHbIX noc06HH C UenbIO OKa3aHHH nOMoIItH ManolfMYI.UlfM CeMbHM. nporpaMMa BbInnaTh! )KHnHlUHbIX noc06HH - nepBaH B POCCHH nporpaMMa OKa3aHHH MaTepHanhHOH nOMOIItH no pe3YnhTaTaM npOBepm MaTepHanhHOrO nonO)KeHHH, ocymeCTBnHeMaH MYHHUHnanhHbIMH anacrHMH21. nporpaMMa ocymeCTBnHeTCH B 19 B PaMKax npe.o;OCTaBJIeHHOrO 3afiMa Ha peopraHH3a.I.\HIO cHcreMbI COUHarIbHOH 3aJI(HThI (CfIAJI) BCeMHpHhIH 6aHK OKaahIBaeT npaBHTeJlhCTBy nOMOII[b B peaJIH3aI.tHH Tpex nWlOTHhIX npoeKTOB a.n;peCHoH COUHarIbHOH nOMoDIH B Tpex perHoHax. 20 3To npoH30IWIO B YKpaHHe, r.o;e nOKaaaTe.JIb B03Me~eHHH 3aTpaT 6bIJI yBeJIHl.IeH C 30 .0;0 80 npolleHTOB B re'leHHe npH6JIH3HTeJ1hHO o~oro ro.o;a, H K aBrycry 1996 r. OKOJIO nOJIOBHHhI ,AOMamHHX X03HHCTB HMeJIH 3a.n;OJIJKeHHOCTh no ODJIaTe JKH.TlhH (BaH H MapHeHKO (Vaughan and Marnenko, 1996». 21 nepBaH cpe)leparIbHaH nporpaMMa OKaaaHHH nOMoDIH no peayJThTaTaM npoBepKH MaTepHarIbHOrO nOJIOJKeHHH - nporpaMMa )leHeJKHhIX noc06HH Ha .o;eTeH - 6bU1a npHHHTa B 6hIBmeM CCCP B 1974 r., - 18 - MOJKHO OmeT nytIIIle CfllTaHHpOBaTh BTOPOH 3Tan pecpopMbI TaPHCPOB H ynpaBJIHTh ~eflTeJIbHOCThIO Ha 3TOM 3TaTIe oonee 3qxpeKTHBHO. IT03TOMy Ha ~aHHOM 3Tane HeT cMblcna CnOpHTh 0 TOM, KOr~a ~OmKHO OblTh OOeCneqeHO nOnHOe B03Mem;eHHe 3aTpaT - B 2000 r., B 2003 r. HnH n03Wiee ..!l.rm TOro, qTOObI oOcYJK):laTh 3TOT Bonpoc, HeT ~OCTaTOqHOH HHcpoPMam'IH. Ha oonee ~onrocpo'lH}'IO nepCneKTHBY ropa3~O BaJKHee OOecne'lHTh B03Mem;eHHe 50 npou;eHTOB 3aTpaT B 1998 r., qTO npe~CTaBJIHeTCfl peanbHo BbITIOnHHMbIM. 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CIlIA, 'tJTO COCTaBJIHeT oonee 20 nponeHTOB oo~eH cyMMbI OIO)lJKeTHOrO cyOCH,w1POBaHlIH JKlIJIlI~OH CKJleH .IlYMoH. \.ITO KaCaeTCH MYHlII.\HnaJIbHbIX OpraHOB, JKlIJIlI~bIe JThrOThI HBruIIOTCH Har~ npllMepOM He ooecne'tJeHHbIX CpenCTBaMlI nOJIHOMO'tlllH. I1o'tITH Bce npenOCTaBJIHeMbIe JThrOThI yTBep:>KJlaIOTCH <}:>enepaJIbHbIMlI BJIaCTHMlI, 11 MYHlII.\lIllaJIbHbIe OpraHbI He MOryI' 1I3MeHllTh 3TOT nOpH,D;OK. B TO JKe BpeMH, 113 KJleHbI OllJIa'tlllBaTh ycnyrll no neHaM, npeBbIllaIOlJllIM cpeAHIOIO. fIOCKOJThKY ynpaBJIeHlIe BbIllJIaTOH JKlI.1IlIII(HhI nOCOOllH H peryrmpOBaHlIe TaPllpeHHKMaH H CTapo.n:y6poBCKaH, 1996). <1>e)lepaJIhHOMY npaBHTeJIhCTBY CJIe.n:yeT C03)laTh YHHBepcaJlbHyIO HOpMaTHBHO-npaBOByIO Dasy BbInJIaTbI }KHJIHIl\HbIX nOCOOHH H OnJIaTbI }KHJIhH H pacnpocrpaHHTh COOTBeTCTByIOIIJ:YIO HHCPOPMau:HIO. 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B JKHfIHIllHOH ccpcpc HaKOnHfICH 3Haql'fTeJTbHbrH: nOTCHUHarI,lJ;J1H 60JTCC 3cpcpeKTIIBHOrO pacnpC,lJ;eJICHHH JKHfIbH. )KmrnIllHblc YCJTOBHH MHorllX CCMCH, B OCHOBHOM MOJTO,lJ;bIX CCMbCH C OTIIOCHTCJTbHO BbICOKHMH ,lJ;OXO,lJ;aMH 6b1JTH H rrpo,lJ;OJTJKaIOT OCTaBaTbCH HCY,lJ;OBJTCTBOPHTCJThHhIMH, B TO BpCMH KaK MHomc CCMbH C HH3KHMH ,lJ;OXO,lJ;aMH (B OCHOBHOM nCHCHOHCpbl) JKHBYT B ,lJ;OBOJThHO 60JTbillllX KBapTIIpax. 3TO 03HaqaeT, qTO B POCCHH 3Haql'fTCJThHaH qaCTb nOTpe6HoCTCH B JKHJIhC MOJKeT 6b1Tb }',lJ;OBJTCTBOpCHa HC llYTCM CTpOHTeJTbCTBa HOBoro JKHJIhH, HO llYTCM rrcpcpacnpC,lJ;eJICHHH HMCIOmCrOCH 1KIDIHIllHOrO cpOH,lJ;a. no MCpC nonanHOH OTMCHbI HCPbIHOqflbIX OrpaHHqCHHH, B KpynHCHillllX ropO,lJ;ax, r,lJ;c CTOHMOCTb HMCIOmCrOcH JKHfIHIllHoro cpoH,lJ;a BblcoKa, nOHBHfIHCb H HaqaJTH ,lJ;cHCTBOBaTb PhIHOqflbIC MCXaHH3MbI. B HaqarIC 1994 r. B MOCKBC, r,lJ;c HCCKOJThKO COT qaCTIIhIX PH3JTTOPCKHX KOMnaHHH CCPOPMHpOBaJTH ,lJ;OBOJThHO KOHKYPCHTIIblH PblHOK, CJKC,JJ;HCBHO pcrHCTpHpOBarIOCb 250-500 PhlHOqflhIX OrrCpan;HH C npHBaTII3HpOBaHHhIMH KBapTIIpaMH (KaJTHHHHa H ,lJ;p., 1994). no On;CHKaM fOCCTPOH, B 1997 r. B MOCKBC 6b1JTo 3apcmcTpHpOBaHO OKOJTO 300 000 oncpauHH C 33 npHBaTH3HpOBaHHhIMH KBapTIIpaMH, a 06IllHH 060pOT Ha PbIHKC ,lJ;OCTIIrarI 12 MIIp,lJ; ,lJ;OM. CllIA • nOBblCHBillaHCH M06FlJIbHOCTb CCMCH HaH60JTCc HarJ1H,JJ;HO CBH,lJ;eTeJTbCTBYeT 0 nOHBJTCHHH PhlHOqHhIX MCXaHH3MOB. HCCMOTpH Ha cna,n, Ha6mo,lJ;aBillHHcH B CTpOHTCJThCTBC HOBoro JKHfIhH C 1991 r., nOKa3aTCJTh M06HfIhHOCTII (,JJ;OJTH CCMCH, rrCpCCXaBillHX Ha HOBblC KBapTIIpbl B TCqCHHC rO,lJ;a) B 32 3To He 03HaqaeT, 'ITO HMeIO~eCH He.>KHJIble nOMe~eHHH ,[{OJDKHbI nepe,[{aBaThCH B paCnOpHJKeHHe KOH,[{OMHHH}'MOB (T.e. :lKRTlbUOB). BMecre C TeM KOH,[{OMHHH}'MaM CJle.nyeT npe,[{ocraBHTh npaao C03,[{aBaTh HOBbie npOH3BO,[{CTBeHHble nOMe~eHHH. HanpHMep, nyreM nepeo60p}']:{OBaHHH nO,[{BarrOB H crpoHTeJIbCTBa HOBhIX coopyJKeHHH Ha npHJIeraIO~HX 3eMeJIhHblX yqaCTKax. 33::ny UHcpPY CJle.nyeT conocraaHTh C 40-45 ThlCj!qaMH HOBhIX KBapTHp, crpo~HXCH B MOCKBe eJKero,[{HO. - 29- MOCKBe yaenmmncH C MeHee l.JeM 4 rrpOneHTOB B 1991-92 IT. JJ,O 6,5 rrpOneHTa B 1996 r.34 ](:13 20 rrpOneHToB HaHOOnee OOeCrrel.JeHHbIX ceMeH OKono l.JeTBepTH YJ1}"illlRTIH CBOH :>KHJIHIIUihle YCJIOBHH B 1992-95 IT. (rYSaHOBa, 1997). B OCHOBHOM 6JIaroJJ,apH TOMY, l.JTO MHorHe OOeCrrel.JeHHbIe CeMbH CMOrJIH ynytmIHTb CBOH iKHJ'IHII(Hble YCJIOBHH rryreM COBepII1eHHH orrepanHH Ha TOJIbKO l.JTO CcPOPMHpoBaBII1eMCH pblliKe, oo~ee KOJIlIt.feCTBO POCCHHCKHX ceMeH, 3aperncrpHpoBaHHbIX B Kal.JeCTBe .lfYiKJJ.3,IOIIUfXCH B ynytmIeHHH iKHJ'IHII(HbIX YCJIOBHH', COKpaTHJIOCb Ha 25 rrponeHTOB B 1991-97 IT. 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Cne;::tyIOII(HMH maraMH B npou;ecce C03;::taHliH YCJIOBHH KOHKYpeHUHH ;::tonJKHhI 6bITh CO paccpopMHpOBaHHe MYHHUHnaTIbHbIX KOMnaHHH, 3aHHMaIOII(HXCH 06c.JIYXGfBaHHeM Jl(HJIHIIUIoro cpo:H,Ita, KOTopbIe B HaCTOHII(ee BpeMH cpaKTlit{eCKli HBJrnIOTCH MOHOnOJIHHMH, 06c.JIYXGfBaH OCHOBHyro '1aCTh Jl(HJIHIIUIoro cpo:H,Itaj (H) c03;::taHHe YCJIOBHH;::tJ1H nOHBJIeHHH HOBbIX '1aCTHbIX npenrrpHHTHH 06c.JIYXGfBaHIDlj H (iii) nOHBJIeHHe KO:H,ItOMliHHYMOB, B 60JIbmeH CTeneHH ~aIOIIUiXCH B YCJIYI'ax, OKa3bIBaeMhIX B YCJIOBHHX KOHKYpeHUHH. • npHBaTH3~HJI. Kor;::ta 6y,u;eT 3aBepmeHa ;::teMOHOn0JIH3aI:(HH CcpePhI 06c.JIYXGfBaHHH JKHJ1HII(Horo cpo:H,Ita H MeCTHbIe OpraHbI BJIaCTH 6y,qyr 06na,llaTh ;::toCTaTOq}{bIM OnhITOM npoBe;::teHHH KOHKYPCHhIX ToproB, HC'Ie3HYT Bce npenHTCTBHH, MemaIOII(He npHBaTH3a[(HH npenrrpHHTHH no 06CJIYJKHBaHHIO JKHJ1bH. 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BOJIbIIIHHCTBO CPYHKll;HH, BbmonHHeMhIX B HaCTOHII(ee BpeMH E;:tmIbIMH CJIYJK6aMH 3aKa3qHKa, KOTopbIe B 60nhIIIHHCTBe CJIyqaeB HBJrnIOTCH ;::tenapTaMeHTaMH MYHHUHnaJIbHhIX opraHOB, MOryT 13 B crpaBax BOCTO'lHOH H UeHTPaJIbHOH EBponLI BCeMHpHLIH 6aBK OKa3aJI con:eHCTBHe B npoQecce peOpraBH3aQHH MeCTHLIX npen:npH)'I'THii Bon:ocHa6xeHHH H QeHTPaJIbHoro OTOllJIeHHH B PaMKax QeJ1oro pH,ll;a HHBeCTHQUoHHLIX onepaQHit: (BceMHpHLIif 6aBK, 1994a; 1994bj 1995b; 1996c). ·36· ObITh nepe.o;aHbI ynpaBJUnO.mHM KOMIIaHIDlM. COOTBeTCTBeHHO, KOH,ItOMHHH}'MhI nonyqaT 3Halfl1TeJIhH}'IO BbIroJJY OT Toro, q'fO OHH oYJJYT nOJIaraThCH Ha npocpeccHOHaJIOB B OOJIaCTH ynpaBJIeHHH B npou;ecce 3aKJIK)qeHHH KOHTPaKTOB H KOHTPOJIH 3a .o;e.HTeJIhHOCThIO npe.o:rrpHHTIu1:, OKa3bIBaIOInHX ycnyrH. B HacroHInee BpeMH B POCCHH no~ HeT npaKTf[qeCKOrO onbITa qaCTHOrO ynpaBJIeHHH :>KHJIHInHhIM CPOH,ItOM44, H nOTpeOYeTCH HeKOTOpoe BpeMH J.VllI Toro, qTOObI pa3paOOTaTh Ha.o;JIe:>KamFle MexaHH3MhI 3aKJIK)qeHHH KOHTPaKTOB, B TOM lfl1CJIe KOHTPOJIhHbIe nOKa3aTeJ1H 3cpcpeKTIlBHOCTH .o;eHTeJIhHOCTH H MeXaHH3MhI KOHTPOJIH 3a COOJIIO.o;eHHeM .o;orOBopHhIX OOH3aTeJIhCTB. Co:aepmeHCTBOBaHHe nop~ peryJIHPOBaJlHJI TaPH+oB Ha KOMMYHa.Jn.HLIe YCJIYTII B ropo~ax Heooxo,ItHMO nOBhICHTh 3cpcpeKTIlBHOCTh peryJIHpOBaHHH .o;eHTeJIhHOCTH npe.o:rrPHHTIlH KOMMYHaJIhHOrO OOCJIY:>KHBaHHH, OCOOeHHO Ha MYHHIJ;HnaJIhHOM ypOBHe, WIH Toro qTOObI c.o;ep:>KaTh qpe3MepHbIH POCT crOHMOCTH KOMMYHaJIhHhIX ycnyr H no B03MO:>KHOCTH cnOCOOCTBOBaTh KOHKYpeHIJ;HH H nOHBJIeHHIO HOBhIX npe.o;rrpHHTIlH. B POCCHH 3cpcpeKTIlBHoe peryJmpOBaHHe .o;eHTeJIhHOCTH npe.o;rrpHHTIlH KOMMYHaJIhHOrO OOCJIY:>KHBaHHH TOJIhKO Halfl1HaeTCH. TIPH no.o;.o;ep:>KKe BCeMHpHOrO oaHKa C03.o;aHa e.o;epaJIhHaH 3HepreTIlqeCKaH KOMHCCHH (3K), O,ItHaKO ee HeOOXO,ItHMO B .o;OCTaTO~oH creneHH y:KOMIIJIeKTOBaTh nepCOHaJIOM H Ha,IteJ1HTh HaWIe:>K~ nOJIHOMOllliHMH. B HaqaJIe 1997 r. npaBHTeJIhCTBO YTBep.ItHJIo KOMIIJIeKC OCHOBHhIX npaBHJI, 45 peryJIHpYIOIIJ;HX TapHcpbI B ccpepe CHaO:>KeHHH 3JIeKTp03HeprneH H TeIIJIOM . B HacroHInee BpeMH OCHOBHhIM BH,ItOM .o;eHTeJIhHOCTH 3K HBJIHeTCH BBe.o;eHHe HOBoro nopH,ItKa peryJIHpOBaHHH KpynHeHIlIHX npe.o:rrpHHTIlH, .o;eHCTBYIO:mHX no BceH TeppHTOpHH crpaHbI B 3HepreTHKe H ra30BOH npOMbIIIIJIeHHOCTH. CCPOPMHPOBaHhI TaK:>Ke PerHOHaJIhHbIe 3HepreTHqeCKHe KOMHCCHH (P3K), KOTopbIe B OCHOBHOM ocyru;eCTBJIHIOT perYJmpOBaHHe npHMeHHTeJIhHO K ycnyraM, OKa3bIBaeMhIM HaCeJIeHHIO, o,ItHaKO OHH ropa3.o;o MeHee 3cpcpeKTIlBHbI H HY1K.ItaIOTCH B cyru;eCTBeHHoM y:KpeIIJIeHHH. 3K CJIeJJYeT paCIlIHpHTh CBOH OpraHH3aIJ;HOHHo·TeXHHqeCKHe B03MO:>KHOCTH J.VllI ynpaBJIeHHH H (i) cnOCOOCTBOBaTh pa3BHTIlIO OpraHOB, ocyru;eCTBJI.HIO:mHX peryJIHpOBaHHe KOHTPOJIH, C TeM q'fOObI Ha pernOHaJIhHOM ypOBHe; (ii) nOMOraTh 3THM peryJIHPYIOInHM opraHaM YTBep:.lKJlaThCH Ha perHOHaJIhHOM ypOBHe B KaqeCTBe He3aBHCHMhIX yqpe:.lKJleHHH; H (iii) CBeCTH K MHHHM)'MY BJIHHHHe MeCTHbIX rpynn, npeCJIeJJ:YIOIIJ;HX onpe.o;eJIeHHhIe HHTepeCbI. 3K HeOOXO,ItHMO oy.o:eT YBeJ1HllliTh o61,eM TeXHHqeCKOH nOMOIIJ;H, C TeM q'fOOhI ooecrrelfl1Th TaKOH nOpH,ItOK, npH KOTOPOM ycraHOBJIeHHbIe cpe.o;epaJIhHbIM npaBHTeJIhCTBOM npHHU;HnbI H npaBHJIa, peryJIHpYIOIIJ;He .o;eHTeJIhHOCTh npe.o;rrpHHTIlH KOMMYHaJIhHOrO OOCJIyJKHBaHHH, TOJIKOBaJIHCh H .o;eHCTBOBaJIH ObI B e,ItHHOM nopH,ItKe no BceH TeppHTOpHH crpaHbI 46. 44 OepBhIH TeH,Itep C yqacmeM qaCTIihIX KOMIIaHHH no ynpaBJIeHHIO :JKHJlH~HhlM CPOH,ItOM ObIJ1 npoBe~eH B r. MOCKBe B cepe~He 1997 r. 45 OOCTaHoBlIeHHe OpaBHTeJIbCTBa ND 121 OT 4 Q:>eBparm 1997 r. 46 PeryJIHpOBaHHe B cQ:>epe TellJIOCHaO:H<:eHIDI HBJIHeTCH HaHOOJIee BIDKHhlM HanpaBJIeHHeM ~eHTeJIbHOCTH, yqHThIBaH ~omo 3aTPaT Ha TellJIOCHaO:H<:eHHe B 06~eH cyMMe 3aTpaT, O~aKO CJ1e~eT YlleJ1HTh BHHMaHHe aHaJIOmqHhlM aCneKTaM peryJIHpOBaHHH npHMeHHTeJIbHO K ~pyrHM npe~pHHTHHM KOMMYHaJIbHOrO OOCJIY)KHBaHHH, ~eHCTBYJO~ BHe KOHKYPeH~H. B TaKHX 06JIaCTHX KaK BO~OCHaO:H<:eHHe. KaHaJIH3~ H TeJIecpoHHaH CBH3b. TaK, pe3YJIhTaThI aHarm3a ~aHHhIX 0 TapHcpax, nonyqeHHhIX OT I1HcmTYTIl3KOHOMHKH ropo~a (I13f, 1995), CBH,IteTeJIbCTBYJOT 0 HaJIHqHH ~eCTBeHHhIX ~cnponop~ B CHCTeMe TapHcpoB Ha perHOHaJIbHOM ypoBHe H nepeKpeCTIiOM cy6c~POBaHHH Pa3J1HqHhIX KOMMYHaJIbHhIX yrnyr. B 13 pemoHax EBponeHcKoH qacm POCCHH OTHOmeHHe llJIaThI 3a ropHtlYIO BO~ K llJIaTe sa CHaO:H<:eHHe XOJIO~OH BO~OH H KaHarmS~IO (3a 1 ~) H3MeHHJIOCb B ~ana30He OT 1,0 ~o 8,3. - 37- B KpaTKOCpO'lliOH rrepCrreKTIiBe rrOBblmemie 3cpcpeKTHBHOCTH peryJIHpOBaHHH B ccpepe KOMMyHaJIbHbIX yc.rryr MOJKeT BeCbMa cyII(ecrneHHo rrOBJIHHTb Ha OOII\HH ypoBeHb 3aTpaT Ha JKHJIbe . Cyn:(ecrnyro~aH HHCTHTyIUIOHaJIbHaH cHcreMa H crpYKTYPa yrrpaBJ1eHHH ;o:eHTeJlbHOCTbIO 47 rrpe;n:rrpHHTHH TaKOBbI, l.JTO rroTpeoHTeJIH BblHYJKJJ:eHbI OImal.JHBaTb ropa3;O:o OoJIhmHii o61.eM yc.rryr, l.JeM OHH cpaKTHl.JeCKH rrOTpeOJUlIOT48, rrpH 3TOM rrOTepH Terma MOryT ;O:OCTHraTb 35 rrpoueHTOB a BO;n:bI -;0:050 rrpoueHTOB. KpoMe Toro, B Cli1IY He3cpcpeKTIiBHOCTH yrrpaBJleHHH, y rrpe;n:rrpHHTHH KOMMyHaJIbHOro oOCJJYLKl:lBaHHH, HeCMOTpH Ha HX pa3JlYThIe mTaTbl H B03MOJKHOCTb BblrmatIHBaTb 3apaooTHyro rmary B pa3Mepe BbIme cpeJJ:Hero, HeT ;o:ocraTOl.JHblX CTHMyJIOB JJ:JIH rrOBblmeHHH rrpOH3BO;n:HTeJIbHOCTH (MapTHHO, 1997). B OCHOBHOM rro rrpHl.JHHe BbICOKOH ceOecrOHMOCTH KOMMyHaJIbHbIX yc.rryr, ypOBeHb oo~ paCXO;O:OB Ha JKHJIbe B paCl.JeTe Ha KBa;n:paTHbIH MeTp B POCCHH 3HatIHTeJIbHO rrpeBbImaeT aHaJIorH'llihie rrOKa3aTeJlH rro OoJIhIIlliHcrny crpaH UeHTpaJIbHOH H BOCTO'lliOR EBporrbl, B TOM tIHCJIe rro crpaHaM BaJITHH (COOpHHK MarepHaJIOB ... , 1997, crp. 191). Yl.JHTblBaH, l.JTO ueHbI Ha TOIIJIHBO H 3apaOOTHaH rmaTa B POCCHH rrOKa e~e HHJKe, l.JeM B crpaH3X UeHTpaJIbHOH H BOcrOl.JHOH EBporrbI, 3TO e~e pa3 rro;n:TBep)K,ll;aeT KPaHHIOlO He3cpcpeKTHBHOCTb ;o:eHTeJIhHOCTH POCCHHCKHX rrpe;n:rrpHHTHH KOMMyHaJIbHOrO oOCJJYLKl:lBaHHH. E~e OJJ:HHM acrreKTOM ;o:eHcrnyro~eH cHcreMbI peryJIHpOBaHHH HBJIHeTCH TO, l.JTO MeTOJJ:bl peryJIHpOBaHHH cyII(ecrneHHo pa3JIHl.JaIOTCH OT pernOHa K perHOHY: ;O:aHHble 0 3aTpaT3X MeCTHbIX rrpe;n:rrpHHTHH H rrOKa3aTeJIH B03Me~eHHH 3THX 3aTpaT B Pa3JIH'llibIX pernOH3X H ropo;o:3X HeB03MOJKHO TOl.JHO CpaBHHTh. 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Ka'I.Iccrso o6c.rIy.IKHBaHHa .IKHillIIl\Horo q,o~a asnaeTca KPaHHC HH3KHM H 9TO OT'l.IaCTH OfuaCHaeTCa TCM, 'l.Iro OCHOBHaa 'l.IaCTb ~ oocny.lKHBaeTCa HaxoMll\HMHCa B COocrsCHHOCTH MyHHUHnanbHbIX OpraHOB npe~pHaTHaMH, KOTOPbIC ¢llkmULteCkU asnaIOTca MOHonOmlaMH. HCKOTOPbIC ropo~a Ha'I.IHHaIOT HCnOnb30BaTb npaKTHKY 3aKnIO'l.ICHHa KOHTPaKTOB Ha o6cny.lKHBaHHC .lKHnHIl\Horo cpOHJ1.a B PaMKax KOHKYPCHbIX TeHJ1.CpOB. B TeX cnyqaax, Kor.na TaKHc TC~CpbI OpraHH3YIOTca Ha,wIC.IK~HM 06paaoM, Ka'I.Iccrso OOcny.JKHBaHHa .lKHnha nOBbICHnOCb, a 3aTpaTbI CHH3Hill1Ch (CTapo.ny6poBcKaa, 1996; CTPaHK, 1997). Hcooxo~o C03~aTb HOpMaTHBHO-npaBOBYIO oaay, C TeM 'l.ITOObI Y ropo~OB nOaBHnaCb B03MO.IKHOCTb H 3aHHTepCCOBaHHOCTb B YCKOPCHHH npOl\ccca cpopMHpOBaHHa KOHKypCHTHbIX PbIHKOB 06cny.JKHBaHHa .lKHillIIl\Horo cpo~a. OCHOBHOH KOMnnCKC npaBHn npOBC~CHHa TCHJ1.CPOB H 3aKnIO'l.ICHHa KOHTPaKTOB ObIJI yTBCp~CH fOCCTPOCM B 1994 r. H ycncmHo onp06oBaH B pa~c ropO~OB (BCCMHPHbIH oaHK, 1996a). B CCpe,[\HHC 1997 r. Ha paccMOTpeHHC JlYMbI GbIJI npc~CTaBncH npocKT 3aKOHa 0 rocy,napcrscHHhIX saKynKax, npc.uyCMaTpHBaIOIl\HH npoBc~cHHC KOHKYPCHbIX Te~CpOB B 06asaTenhHoM nop~c. Una Toro, 'l.IT06bI SaKpCnHTb ycncm, ~oCTHrHYThIc B 9TOH 06naCTH ~CaTenhHOCTH, eJJ:epaJIbHOMy: rrpaBHTeJIbCTBy cne,u;yeT C03JJ:aTh OOlIlYIO HopMaTHBHO-rrpaBOBYIO Oa3Y JJ:J]H pa3paOOTKH H BHeJJ:peHHH craHJJ:apTOB 06c.rIyJKHBaHHH JKHJ1HlIlHOrO cp0HJJ:a. TaKHe CTaHJJ:apThI JJ:OJIJKHbI ycraHaBJIHBaThCH JJ:J]H KaJKJJ:OrO perHOHa C yqeTOM KOHKPeTHbIX ycnOBHH H yrnepJK,l.laThCH perHOHaJIbHbIMH OpraHaMH ro~apCTBeHHOH BJIaCTH. BHeJJ:peHHe TaKHX CTaHJJ:aPTOB JJ:OJIJKHO ocymeCTBJIHThCH rrocrerreHHo, yqHTbIBaH HeyJJ:OBJIeTBOPHTeJIbHOe cocroHHHe JKHJ1HlIlHoro cpOHJJ:a H HeXBaTKY cpeJJ:CTB JUUI 3cpcpeKTHBHOrO OOcnyJKHBaHHH H peMOHTa. Cne,u;yeT rropyqHTh JKHJ1HlIlHbIM HHcrreKTOpaM Bbmaqy JIHueH3HH H ocymeCTBJIeHHe KOHTPOJIH 3a COOJ1IOJJ:eHHeM rrpe,WIpHHTHHMH KOMMYHaJIbHOro oOcnyJKHBaHHH ycraHOBJIeHHblX craHJJ:aPTOB KaqeCTBa, a TaKJKe ooeCrreqeHHe Toro, qTOObI Bce KOHTpaKTbI, 3aKJ1IOqaeMbIe B JKHJ1HlIlHO-KOMMYHaJIbHOM X03HHCTBe, OCHOBbIBaJIHCb Ha TaKHX craHJJ:aPTax. Cnpoc Ha HOBoe lKHJlbe H HnOTe"'lHoe «itHHaHCHpOBaHHe nO MeJK)JyHapOJJ:HbIM craHJJ:aPTaM, B POCCHH He OlIlYlIlaeTCH OcrpOH HeXBaTKH JKHJ1bH. POCCHHCKHH JKHJ1HlIlHblH CPOHJJ: cocraBJIHeT 18,1 M2 Ha JJYllIY HaCeJIeHHH, a JKHJ1IIJIOlIla.rt:b cpeJJ:HeCTaTHCTH'IeCKOH ropoJJ:cKOH ceMbH cocraBJIHeT OKOJIO 50 M2.51 3TO MOJKHO CpaBHHTh C 52 pa3MepaMH JKRIllilIlHoro cpoHJJ:a B pa3BHBaIOlIlHXCH crpaHax C aHaJIOrHqHbIM ypOBHeM JJ:oxoJJ:a . KpoMe Toro, oonee rrOJIOBHHbI roPOJJ:CKHX CeMeH: HMeIOT BTOpOH: JJ:OM HJ1H JJ:aqy B CeJ1bCKOH: MeCTHOCTH, 'ITO TaKJKe rrOMOraeT y.o:OBJIeTBOpHTh rrOTpeOHOCTH B JKHJ10H IIJIOlIla,IUf. OJJ:HaKO eCTh UeJ1bIH PHJJ: crPYKTypHbIX CPaKTOPOB, KOTopbIe B cpeJJ:HeCpOqHOH rrepCrreKTHBe OYJJ:YT rrpoJJ:OJIJKaTh rrOJJ:JJ:epJKHBaTh crrpoc Ha HOBoe JKHJ1be Ha ropa3JJ:O oonee BblCOKOM ypOBHe, qeM MOJKHO OhUIO Obi rrpe,WIonaraTh, OCHOBbIBaHCb Ha COrrOCTaBJIeHHH JJ:aHHblX rro pa3HbIM CTPaHaM H MaKP03KOHOMH'IeCKHX rrOKa3aTeJUIX. CpeJJ:H TaKHX cpaKTopOB MOJKHO OTMeTHTh cneJJ:y:IOlIlHe: • MHrp~lUI. ECTh JJ:Ba OCHOBHblX BHJJ:a rrpHTOKa HaCeJIeHHH, HCrrblTbIBaIOlIlero HeOOXOJJ:HMOCTb B HOBOM JKMJIbe B pe3YJIhTaTe rrepee3JJ:a Ha HOBoe Mecro JKHTeJ1bCTBa - pYCCKoe HaCeJIeHHe, rrpHOblBaIOlIlee H3 JJ:PyrHX CTPaH oblBllIero CCCP, H JIHua, B03BpamaIOlIlHeCH B UeHTPaJIbHYIO 50 BCeMHpHbIH 6aHK nOMepJKHBaeT paaJIHtlHbIe HHHQHaTIlBbI, HanpaBJIeHHbIe Ha nOBbImeHHe 3qxpeKTIlBHOCTIl HCn0JIh30BaHHH 3Hepropec,!pcoB JKHJIHmHbIM CPOH.D:OM B CTpaHax 6hmmero CCCP (BCeMHpHbIH 6aHK, 1994a; 1996a; 1996b). 51 no }laHHbIM fOCKOMCTaTa. 52 am npe}lCTaBJIHeTCH }lOCTaTOttHbIM, oc06eHHo ec.rrH CpaBHHTb POCCHIO CO CTpaHaMH C nOXOJKHMH KYJIbTYpHbIMH Tpa,nHllllilMH, HanpHMep co CTpaHaMH Bocrot:lHOH EBponbI. Pa3BHBaIOmHeC.!I CTPaHbI A3HH Tpa.I(HQHOHHO XapaKTepH3ytoTCH MeHee BbICOKHMH nOKa3aTeJ'lHMH pa3Mepa )KHJ1lUIOma.I(H B paCl.J:eTe Ha nymy HaceneHHH. - 43- qaCTb CTpaHbI H3 OT,ll;aJIeHHbIX paiIOHOB CeBepa. KOJ1HqeCTBO ceMeH, nepeMelI(aIOIIUiXCfl BHYTpH CTpaHbI, MOJKeT npeBbImaTh HeCKOJ1bKO MHJ1J1HOHOB. • Pacnpe~eJIeHHe lKUJIH~HOro clK>H~a. B HaCTOfllI(ee BpeMfl JKHJlHII(HbIH: q,oHJJ: pacnpe.I\eneH ,ll;OBOJ1bHO HepaBHOMepHo, H JKHJlHlI(HbIe YCJ10BHfl 3HaqHTeJlbHOrO KOJ1HqeCTBa ceMeH flBJ1flIOTCfl Hey.r:(OBJ1eTBOpHTeJ1bHbIMH. B 1996 r. 3 MJlH qeJ10BeK npOJKHBaJIH B K0MMyHamHbIX KBapTHpax, a 5,4 MJIH qenOBeK - B 06lI(eJKHTHflX. 3HaqHTenbHafl qaCTh 3THX .I\HcnponopJ:.lHl1 MOJKeT 6bITh YCTpaHeHa B pe3YJ1hTaTe nepepacnpe.I\eneHHfl JKHJlHlI(Horo q,oHJJ:a no,ll; B03.I\eHCTBHeM PbIHOtIHbIX MeXaHH3MOB, O,I\HaKO yqHTbIBafl COCTOflHHe PbIHKOB JKHJlbfl, npe.I\CTaBJIfleTCfl BnOJ1He OqeBH,ll;HbIM, qTO Mfl 06ecneqeHHfl HOPMaJIbHbIX JKHJlHII(HbIX YCJ10BHH .IVUI HaceneHHfl nOTpe6yeTCfl CTPOHTeJ1bCTBO HOBoro JKHJlbfl B 3Ha\IHTenbHOM omeMe. ,Urm MeCTHbIX OpraHOB BJIaCTH CTpoHTeJ1bCTBO MYHHLUinamHoro JKHJ1bfl, KOTopoe 6y;I{eT pacnpe.I\eneHO MeJK)Jy MaJIOHMYIIlHMH rpa~aHaMH, 06elI(aeT 6bITh .I\OCTaTOqHO CJI0JKHOH 3a,I\aqeH. • KaqecTBO lKUJIIdI. 3HaqHTeJlbHafl qaCTb JKHJlHlI(Horo q,oHJJ:a nOCTpoeHa OqeHh .I\aBHO, He 53 060pY.I\oBaHa OCHOBHbIMH y.I\06CTBaMH (TaKHMH KaK rOpflqafl BO.I\a H ra30BbIe llJlHTbI ) H HaxO.I\HTCfl B .I\OBOJ1bHO llJIaqeBHOM COCTOflHHH no npH\lHHe HeXBaTKH cpe.I\CTB Ha 06CJIYJKHBaHHe H peMoHT. Bo MHorHX rnyqaflX peKOHCTpYKUIDI/BoCCTaHOBJ1eHHe TaKOrO JKHJlhfl He npe.I\CTaBJIflIOTCfl 3KOHOMHqeCKH I(eneC006pa3HbIMH. TaKHM 06pa30M, HeOOXO.I\HMO 6y;I{eT CTpoHTh HOBoe JKHJlbe, KOTOpoe npH.I\eT Ha CMeRy cerMeHTY HMeIOlI(erOCfl JKHJlHlI(Horo KHhIM KOMIlOHeHTOM lIpOrpaMMbI CTpYKTYpHbIX peq,opM. YqliThIBaH nOTeHUliaJIbHbIH cnpoc Ha HOBoe )K:IDlbe Ii BOCCTaHOBJIeHlie JKIDlIirI(HOro q,OH,na, npli Ha)VleJKa~eH CIiCTeMe peryJIlipOBaHIiH IiHBeCTIlUliIi B JKIDlIiIJ.UiYIO cq,epy POCCIiIi MOryT ,nOCTIl\{b 6-8 npoueHTOB BBn B cpeJ(HeCpOlffiOH Ii 60JIee ,noJIrOCpOqHOH lIepCneKTHBax. B 1996 r. B HOBoe JKIDlbe 6hIJIO IiHBeCTIlpOBaHO 3,4 lIpoueHTa BBn, a B ropo,nCKoe KOMMYHaJIbHOe X03HHCTBO (6e3 yqeTa KalIliTaJIbHOrO peMoHTa) - 0,45 npoueHTa BBn55. 3TH UIiq,PbI crre.IlYeT cpasHliTh C lIOKa3aTeJIHMIi npeJ.lbI.nYIIt1iX JIeT: B 1994 r. 06~aH cyMMa HOBhIX IiHBeCTIlUIiH B JKIDlIirI(HO-KOMMYHaJIhHOe X03HHCTBO COCTaBIDla 5 npoueHToB BBn, B TO BpeMH KaK B 1990 r., T.e. ,no HaqaJIa peq,0PM, OHa, lIO BceH BIiJUiMOCTIl, COCTaBJI.sma noqTH 7 npoueHTOB BBn56. TaKliM 06pasoM, JKIiJIIirI(HaH cq,epa POCCIiIi MOJKeT CTaTh BaJKHbIM KOMlIOHeHTOM 3KOHOMliqeCKOrO lIo,n'beMa B CTpaHe. B HaCToH~eH pa60Te BOlIPOC co,neHCTBIiH CTPOIiTeJIbCTBY HOBoro JKIiJ1bH He o6CYJKJ(aeTCH CKOJIbKO-HIi6y.nh no,npo6HO. B OTJIlitIlie OT ClIeUliq,litIeCKIiX npOOJIeM, CBH3aHHbIX C peq,opMaMli ynpaBJIeHliH, OOcrryJKIiBaHIiH Ii lIepepacnpe,neJIeHIiH liMeIO~eI"OCH JKIiJIIirI(Horo q,oH,na B CTpaHax 6hIBrnero CCCP, peq,opMa B cq,epe JKIiJIIirI(Horo CTpoliTeJIbCTBa HBJIHeTCH 3~aqeH, CTOH~eH npaKTlitIeCKIi nepe,n BceMIi pasBliBaIOIlll:IMIiCH CTpaHaMIi. BCeMlipHhIH 6aHK HaKOnIDl 3Hal:.fHTeJIbHbIH onhIT B 3TOH 06JIaCTII ,neHTeJIbHOCTII Ii 3TOT onhIT onlicaH B )l0KYMeHTe 0 nOJIliTHKe BceMlipHoro 6aHKa (BceMlipHbIH 6aHK, 1993). OcHOBHhIM BhIBOP;OM, KOTOPhIH: MOlKHO cp;eJIaTh npOCJIep;UB P;HHaMHKY paaBHTIUI lIUIJIJIIIl;HOH C~hI B paaJIll'lHhIX CTpaHax MHpa, HBJIHeTCH TO, qro ~eCTBeHHhIe J(licnponopUliIi B ceKTOpe, KaK lIpasIDlO, 06ycrroBJIeHhI oc06eHHoCTHMIi lIpe.nrrOJKeHIiH, T.e. pa3JIliqHhIMli He,nocraTKaMIi, BJIliHIO~1iMIi Ha clIoc06HOCTb OTpaCJIl:I 06ecnel:.fHBaTh HOBoe JKIDlbe no ,nOcryrrHhIM ueHaM. n03TOMY Hali60JIee IIJIO,nOTBOPHhIM BIiJ(OM BMernaTeJIbCTBa rocy.napCTBa B ,neHTeJIbHOCTb B ceKTope HBJIHeTCH C03,naHlie Ha)VleJK~ HOpMaTliBHO-lIpasoBoH 6asbI Ii IiHCTIlTYUliOHaJIhHOH OCHOBhI. CpeJ(li OCHOBHbIX Mep nOJIliTliKIi MOJKHO OTMeTHTh MephI, liMeIO~e OTHorneHlie K OXPaHe npaB apeH,naTopoB 3eMJIli, npas 3eMJIelIOJIb30BaHliH Ii lIM}'lll;eCTBeHHbIX npas, npaBIDlaM CTpoliTeJIbCTBa, cy6CIiJ(liPOBaHIiIO JKIiJ1bH (B TOM l:.fHcrre peryJIlipOBaHliIO IIJIaThI 3a JKliJIbe), HaJIOraM H HlIOTelffiOMY q,HHaHCHpOBaHHIO. qTO KaCaeTCH onepaUH:H BceMHpHoro 6aHKa, MO>KHO c,neJIaTh BbIBO,n, tITO B xo,ne ,neHTeJIbHOCTII B PaMKax q,HHaHcHpyeMhIX BaHKOM npoeKTOB OCHOBHoe BHliMaHHe crre.IlYeT y.neJIHTh He npe,nOCTaBJIeHHIO HOBoro JKIiJ1bH rocy.napCTBOM, a HelIocpe,nCTBeHHO peq,oPMaM nOJIIiTIIKH· H HOpMaTHBHO-npasoBoH 6ashI. B 3TOH CBH3H, 60JIbrne cpe,nCTB, BhIJ(eJIHeMbIX BCeMHpHhIM 6aHKOM B BliJ(e 3aHMOB, ,nOJIJKHO HanpaBJIHThCH Henocpe,nCTBeHHO MeCTHhIM OpraHaM rocy.napCTBeHHoH BJIaCTIl, KOTopbIe BbmOJIIDIIOT OCHOBHOH OO'beM pa60Tb1 no BHe,npeHIiIO CHCTeMhI, peryJIliPYIO~eH ,neHTeJIbHOCTb B JKHJIH~HOM CTpOHTeJIbCTBe (BceMlipHhIH 6aHK, 1993, CTp. 59, 72). 55 ECJlH yqeCTh,tITO POCCIDI He~aBHO nepe)KHJIa CTOJIb cyrneCTBeHHoe COKpameHHe ofueMa npoH3BO~CTBa, OObeM CTpOHTeJIbCTBa HOBOro XUIJlhlI B CTpaHe He CJIep;yer CqHTaTb He60JIbillHM. O~aKO JVIH Toro, qrofihI nonytlHTb 60nee nOJIHoe npe~CTaBJIeHHe 0 MacIIITafiax HHBeCTHUHii B:xmJlHmHYlO c¢epy POCCHH, ~aHHhIe o HOBhIX HHBeCTHlJHHX ~OnJKHhI fihITb ~OnOJlHeHhI HH H SaHMOB Ha CTPYKTYpHble npe06pa3oBaHHH (CAIl), IIpaBHTeJIbCTBO HaMepeHO npo~oJDKaTh pa3BHTHe HOpMaTHBHO- npaBOBOH 6a3hI npoBe~eHHH onepaQHif C rOpO~CKHMH 3eMeJIbHbIMH yqaCTKaMH. 61 HaCTOmQHH naparpacp OCHOBaH Ha HeKOTOphIX peKOMeH.n~, BhICKa3aHHhIX BaTHHK (Vatnick, 1997) - 48- YCKopeHue PetoPM ynpaBJIeHHB 6JO,[VKeTOM COXpamleTCfI PHCK, CBfI3aHHblH C TeM, qTO OlKHJJ;aeMaH BbIrOJJ;a B BHJJ;e CTaomrn3arUfH OIOJJ;lKeTa B pe3YJThTaTe IUlaHHpyeMbIx lKHJIIiIIUHbIX pecpoPM, He oyJJ;eT nOJIyqeHa, eCJlH 3TI1 pee,n;epaU;HH cne,n;yeT pa3pa60TaTb paCCllHTaHlryIO Ha rrepexo,n;HbIH rrepHO,n; crpaTerHIO ,n;eHTeJIhHOCTH, KOTOPaH 06eCrrel:lHT BHe,n;peHHe 60JIee TpaHCrrapeHTHhIX MeTO,n;OB H npou;e,n;yp 3aHMCTBOBaHHH cpe,n;CTB perHOmlJIbHhL\1H H MeCTHbL\1H OpraHaMH BJraCTH. LInH 3TOrO Heo6xo,n;HMo c,n;eJIaTb CJIe,n;yro~ee: (i) rrpeKpaTHTb BbIrryCK ,n;eHe)KHhIX Cy6CTHryrOB; (ii) BBeCTH OrpaHHQeHHH, B COOTBeTCTBHH C KOTOPbL\1H HOBbIe 3aHMCTBOBaHHH Ha CPHHaHCOBOM pbIHKe ,n;OJI)KHbI ocymeCTBJIHTbCH HCKJIIOQHTeJIhHO Ha U;e.rm CPHHaHCHpOBaHUH HHBeCTHU;HOHHbIX rrpoeKTOB; (iii) BBeCTH ,n;ocraTOtffiO 3cpcpeKTHBHble CHCTeMhI MOHHTopHHra H ynpaBJIeHHH 3a,n;OJI)KeHHOCTbIO; H (iv) pecrpYKTYpH3HpOBaTb 3a,n;OJI)KeHHOCTb rrepe,n; rrpe,n;npHHTHHMH KOMc\1YllaJIbHOrO 06CJIY)KHBaHHH. - 50- • COCTIlB.lIeHHe HHBecTHIfHOHHbIX OIOlflKeTOB. PerHOHaJIhHhle H MeCTHhle 6ID,ALKeThI CMOrJlH 6hI C3KOHOMHTh 3HalJHTeJIhHhle Cpe,lJ;CTBa 6JIaro,lJ;apJl BHe,lJ;peHHID cOBpeMeHHoH CHCTeMhI ynpaBJIeHHJl rocY,lJ;apCTBeHHhIMH KanHTaJIOBJIO)KeHHJlMI1, B TOM qHcne MeTO,lJ;OB H npoQeJJ;yp OQeHKH npOeKTOB H COCTaBJIeHHH 6ID,ALKeTOB Ha HeCKOJIhKO JIeT, KOHCOJIH,lJ;aQHH rOCY,lJ;apCTBeHHhIX HHBeCTHl~HH C HHBeCTHQHR.1\1H, qmHaHCHPyeMhIMH MeCTHhIl\1H rOCY,lJ;apCTBeHHhIMH npeJJ;IIpHJlTHHMH, a TaK)Ke rryreM nOBhIUleHHJl 3cpcpeKTHBHOCTH Ha6JIID,lJ;eHHJl 3a peaJIH3a[(I1eH npoeKTOB. • Pet/JoPM8 MecTHOii HII.IIOPOBOii Otl3M. BBe,lJ;eHHe HaJIOrOB Ha lLVI)'UleCTBO, HaqHcnJleMhIX Ha OCHOBe CTOHMOCTH, H ,lJ;pyrHX MeCTHhIX HaJIOrOB HenOcpe,lJ;CTBeHHO nOBJIHJleT Ha HHBeCTHQHOHHhIH KJIHMaT B ccpepe )KI1J1hJl H He,lJ;BH)KHMOCTH. 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B TO 2Ke BpeMH, yqHThIBaH MHOrOIIJIaHOBOCTh np06JIeM B 2KHlIHIllHOH ccpepe, ,W1HaMHKa pa3BHTHH ceKTopa 6Y,AeT BO MHorOM 3aBHCeTb OT TeMrrOB OOIIIero npOllecca CTPYKTYpHbIX npe06pa10BaHHH B POCCHH. ECJIH cHTYallHH 6YJleT pa3BHBaThCH no HaH60JIee OnTHMHCTH"LIeCKOMY ClleHapHIO, YKpeIIJIeHHe cpe,AepaJIbHbIX yqpeiK,AeHHH B lleJIOM, nOBblIIIeHHe ::>cpcpeKTHBHOCTH ynpaBJIeHHH HaJIOrOBO-6IO,A2KeTHOH ccpepOH, 'IeTKoe 3aKpeIIJIeHHe HMYIIIecrneHHbIX npaB H YCOBepIIIeHCTBOBaHHe MexaHH3MOB KOHTPOJIH 3a BhlnOJIHeHHeM ,AOrOBOpHbIX 06H3aTeJIbcrn - Bce ::>TO OKa2KeT CYIIIecrneHHoe n03HTHBHOe B03,AeHcrnHe Ha peopraHH3allHIO :JKHJIHIllHOH ccpepbI. O,AHaKO ,AaJIbHeHIIIHe 3a,Aep2KKH B OOII1eM rrpOllecce CTPYKTYPHbIX npe06pa30BaHHH MOPYT BbI3BaTh - 57- Qpe3Bhft{aHHO cepbe3Hble npooneMhl, KOTopble MOryr 3aMe)lJ1HTh npou,ecc pecpopM B :iKHJIHInHOH ccpepe. 8cTaBKa 3. 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YTBep)lHTh CTaH)lapTHhle cpoPMhl rrpe):{oCTaB.11HeMOH rrpe)lnpIDITHHMH KOMMYHaJIhHoro 06CJJYiKHB3HIDI OT'l:eTHOCTH 0 CTpYKType 3aTp3T, Ha OCHOBe KOTOPhlX YCTaHaB.,lHBaroTCH TapHcphl. • YTBep):{HTh HOBhle rrp3BHJJa B3HMaHIDI rmaThI 3a OTormeHHe, ropH'I}'lO BO~ H ):{pyrHe KOMMYHaJJhHhle yrnyrH, C TeM 'IT06b1 cnOC06CTBOB3Th YCTaHOBKe C"t!eT'lHKOB H BhlCT3BJ1eHHIO C"t!eTOB H3 OCHOBe nOKa3aHHH rrpH60poB. • DpaBHTeJlhCTBY He06xo)lHMo H3)l3Th rrOCTaHOBJ1eHHe, npe~CM3TpHBaroLQee BHe):{peHHe HOBhlX 61O):{lKeTHhlX npoue~p H (03):{3HHe HOBOH HOPM3THBHO-npaBOBOH 6a3hl ~"IH rrepe):{3"t!H Be):{OMCTBeHHOrO iKHJ1hH. 9T0 ):{OJ1iKHO 3aCTaBHTI. perHOHaJJhHhle BJ1aCTH yCKOpHTh npouecc nepe):{a"t!H lKHJJhH, YCOBeprneHCTBOBaTh npoueJlYphl, npucrynHTh K nepe):{a"t!e )KHJIhH, HaxO):{HIu;erOCH B Be;:(emfH npe):{npIDITHH 060POHHOH npoMhlIIIJ1eHHOCTH H lKe.1e3HOAopolKHoro TpaHCIIOpT3, H BHeCTH H3MeHeHIDI B ):{eHCTBYJOIJ.:tYlO CHCTeMY cpe):(epaJIhHOH rrOMOIIJ;H, OK~l3hlBae~.tOH M}'J:1Hr.umaJIhHhIM OpraHaM, npHHlIMalOLQHM H3 CBOli 6aJIaHC Be,[lOMCI'BeHHOe iKHJ1he. • YTBep):(HTh HOBhIe npoue,[lyphl KOHTPOJ1H 3a C06J1IO;:(emleM 3aKOHOB H npaBHJJ B TOM, "t!TO KaCaeTCH BhlCeJleHlIH HermaTeJThIU;HKOB. MYH~naJIhHhIM OpraHaM rne~eT peKOMe~OBaTh (03):(aHHe MeCTHhIX a,t:\MHHHCTpaTHBHhlX (BHecy):(e6HhIXI KOMHCCHH AJ1H npe,[lBapHTeJ1bHOrO paCCMOTpeHIDI ):(eJl H yperyJ1HpOBaHIDI np06J1eM, CBH3aHHhlX C 3a):(0J1lKeHHOCTbIO lKillIhUOB. • DepecMO'rpen ;:(eHCTBYJOIJ.:tYlO CHCTeMY J1broT rro ormaTe lKHJJhH H pa3pa60TaTh rpacpHK HX n03TaIIHOH OTMeHhl H, KOr,[la ')TO 060CHOBaHO, KOMIIeHCaQHH nOJIyopMhl, pea'IH3ar.urn H Ha6J1IO)leHHIO 3a XO):(OM pecpopM. B "t!aCTHOCTH, He06xo):(HMo 'IeTKO Onpe,[leJlHTh CPYHKQHH MHHHCTepCTBa 3KOHOMHKH, KOMHTeT3 no CTPOHTeJ1bCTBY, ¢le;:(epaJJhHOH 3HepreTIfl{eCKOH KOMHCCHH, KOMHTeT3 no CTaH)lapTaM H AHTHMOHOnOJ1hHOrO KOMHTeTa. • BBeCTH HOBYJO CHCTeMY c60pa H 06pa60TKH CTaTHCTH'-IeCKHX ,[IaHHhlX, KOTOPaH n03BOJ1HT perynHpHO C06HpaTb H aHaJIH3HpOBaTh )laHHhle 06 OCHOBHhIX H3MeHeHHHX B lKHJJHlQHOH ccpepe POCCHH, B TOM "t!Hrne ,[IaHHhle 0 3aTpaTax Ha :lKHJJhe H KOMMYH3JlhHhle yrnyrH, TapHcpax H cy6CH,1IHHX, Il]1aTelKax H 3a):(0J1)KeHHOCTH ,[IOMaIIIHHX X03HHCTB, npHBaTH3ar.urn H nepe):\aqe lKHHbH, a TaKlKe 06 y-y:aCTHH 'IaCTHOrO ceKTopa. - 58- CTHMYJIbI peI'HOHa.nhHbIX H MecTHbIX 0PraHOB. MY'llHl."(lII1aJIhHhle opraHbI B pa3J1Ir4Hhlx perHoHax POCCHH HaKorrIDIH orrpe,n;eJleHHhIII rr03HTHBHhIlI orrbIT B rrpo~ecce YCKopeHIuI rrpe06pa3oBaHHII B LKIDIHmHOII ccpepe, o,n;HaKO pacrrpocrpaHeHHe :}Toro orrhITa ocymeCTBJlHeTCH ,n;OBOJlhHO Me,WIeHHO, H MHorHe MYHH~HrraJIHTeThI He crre,n;yroT peKOMeH,n;a~H7L\1 cpe,n;epaJIhHOrO rrpaBHTeJIhCTBa H He 3aHHTepeCOBaHhI B HCrrOJlh30BaHIiH rrepe,n;OBoro orrhITa. Ilo:}TOMY B KpaTKOCpO"'-IHOI1: rrepCrreKTHBe TeMrrhI rrpo~ecca pecpopM B LKHllHllumli ccpepe 6y,n;yT 3aBHCeTh OT Toro, KaK CKOPO Y MeCTHhIX opraHOB rrOHBHTCH Ha,WIeLKamHe CTHM:yJlhI. HR Battelle. North Pacific Laboratories (1996). Pre-Retrofit Energy and Water Consumption. Ryazan Demonstration Project. EHDP. Technical report, Richland, Washington, June. Bodnar, Patrick, Lev Freinkman, Vladimir Lexin and Alexander Shvetsov (1996). Russia: Financing and Maintenance of Social Assets Divested from the Coal Industry. The World Bank. Mimeo, June. 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