,llOKJIBA .N.l 15353-KZ Pecny6J111Ka KaaaxcraH TpaHc4»opMa~ID1 rocy~apCTBa (B tlByx TOMax) TOM II 15 HIOJHI 1996 r. OmeJI orrep~nft 1 JlerrapTaMeHT III PerIfoHa EBPOHbI If Cpe,D;Heft A3IfIf lIEHE:>KHbIE 3KBHBAJIEHTbI (no COCTOHHHIO Ha 1 MaH 1996 r.) BaJIIOTa = TeHre (T) 1 TeHre = 0,0152,rr;oJIJI. cmA 1 ,rr;OJIJI. CmA = 65,95 TeRre CPEIIHHH OBMEHHbIH KYPC TeHre 3a 1 ,rr;OJIJIap CmA 3 KBapTaJI 1995 4 KBapTaJI 1995 1 KBapTaJI 1996 36,10 61,37 59,68 63,11 64,91 CIlHCOK COKPAIUEHHH BC3,Il;BB Ba3a COI(HaJIbHO-SKOHOMH'-IeCKHX ,rr;aHHblX BceMHpHoro BaHKa HIlll, HH,rr;eKC nOTpeOHTeJIbCKHX I(eH 3Il OH,rr; SKOHOMHl-IeCKHX npeoopa30BaHHH EC EBponeHcKHH COI03 3KCHMOaHK 3KcnopTHo-HMnopTHblH oaHK PecrryOJIHKH Ka3axcTaH BBIl BaJIOBOH BHYTpeHHHH npo,rr;YKT cr CTaTHcTHKa rocy,rr;apCTBeHHbIX cPHHaHcoB MB Me)K)U'HapOAHbIH BaJIIOTHbm OH,rr; MOBPY Me)K)U'HapO,rr;HM OpraHH3aI(HH BbICIIIHX peBH3HOHHbIX Yl-Ipe)l{)];eHHH HAHH HaI(HOHaJIbHOe areHTCTBO no HHOCTPaHHbIM HHBeCTHI(HHM 03CP OpraHH3aI(HH SKOHOMHl-IeCKOrO COTpy,rr;HHQeCTBa H pa3BHTHH IlIlC IlapHTeT nOKynaTeJIbHOH cnocooHoCTH CIlIlB CHcTeMa nJIaHHpOBaHHH/nporpaMMHpoBaHHH oIO,rr;JKeTa rKK rocy,rr;apcTBeHHbIH KOMHTeT cPHHaHcoBoro KOHTPOJIH rBP rocy,rr;apcTBeHHbIH oaHK pa3BHTHH IlPOOH IlporpaMMa pa3BHTHH OpraHH3aI(HH OO'be,rr;HHeHHblx HaI(HH PECI1YBJUfKA KA3AXCTAH TPAHOI)OPMAUHSl rOCY,[(APCTBA TOM II COAEP)KAHHE rmma I. CT]>y:KTypa rocY.IlapCTBeHHhIX yqpe)l()leHBI B CJIyx<6 • • . . . . . . . • • . • . . .. 1 A. BBe.n;eHBe . . . . . . . • . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . • . . . . . . . . 1 B. 0630P rocy.n;apCTBeHH.bIX CTPYKTYP . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 1 C. CTPYKTYpa nepCOHaJIa rocy.n;apCTBeHHbIX yqpe)K,l:J;eHBH . . • . . . . • . . . . . • • • . 8 D. IIpHOpHTeTHl>Ie HanpaBJIeHB.9: .n;e.9:TeJIhHOCTH B npOIl;ecce npOBe.n;eHB.9: peQ;lopMhI 10 E. HOBaR KOHCTHTynH.9: • . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11 F. PeOpraHB3aJ::(IDI pecny6JIHKaHCKHX opraHOB rocy.n;apCTBeHHoro ynpaBJIeHH.9: ... 12 G. PeOpraHH3aIJ;H.9: MeCTHl>IX OpraHOB rocy.n;apCTBeHHoro ynpaBJIeHH.9: . . . . . . . . . 28 H. 3a,n;atIH peQ;lOpMhI H OpraHB3an;HOHHo-npaBOBaR OCHOBa • . . . . . . . . . . . . • . . 30 rJIa.:oa IT. rp3.)l()laHCKasJ cJIY)K6a ..................•................... 33 A. BBe,n:eHBe . . . . • • . • . . . . . . . . . . • • . . . . . . • • . . . . . . . . . . • • . . . . . . . 33 B. MacIllTa6hI rpa)K,l:J;aHCKOH CJIyx6hI . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34 C. IIoJIHTHKa B OTHomeHHH COKpam;eHH.9: tIHCJIeHHOCTH nepCOHaJIa rpa)K,l:J;aHCKOH CJIYJK6hI . . • . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34 D. CHcTeMa rocy,n:apCTBeHHOH CJIY}K6hI • . . . . . . . . • • • . . . . . . . . . . . . . . . . • . 36 E. YpoBeHl> H CTPYKTypa 3apa6oTHoH IIJIaThI . . . . • . • . . . . . . . . . . . . . . • . . . . 41 F. YnpaBJIeHHe rocy.n;apcTBeHHoH CJIYJK60H . . • . . . . . . • . . • . . . . . . . . . . . . . . 48 G. 3aKJIIOQeHH.9: . . . . . . . . . . . . . . . . • . . . • • • • . . . . • . • • . . . . . . . • . . . . . 51 rJIa.:oa ITI. MeXaHH3MbI npBHSlTBSI pemeHBI OTHOCBTeJIbHO pacnpe.lleJIeHBSI 61OJl)KeTHbIX CPeJI:CTB B a,nMBHBCTpaTBBHbIe CTpyKTypbI ....•......... 53 A. BBe.n;eHHe . . . . . • . . . . . . . . . . . . . . . . • . . . . • . . • . . . . . . . . . . . . . . . . 53 B. IIaccHBHoCTh CHCTeMhI rocy.n;apCTBeHH.bIX Q;lHHaHCOB .. . . . . . . . . . . . . . . . . . 54 C. Pas.n;p06JIeHHOCTh CHCTeMhI rocy.n;apCTBeHHbIX Q;lHHaHCOB . . . . . . . . . . . . . . . . 55 D. Mo.n;eJIh MaTPellIKH . . . . . . . . . . • • . . . . . . • . • • • . . . . . . . . • • • . . . . . . . 56 E. 3aKJIlOQeHBe • • . . . . • . • • . . . • • • • . • . . . . • • • • . . . • • • • • • . • . . . . . • . 58 rJIa.:oa IV. IIo.llroTOBKa B BCnOJIHeHBe paCXo.llHoH qaCTB 6lO.Il)KeTa .....•......... 59 A. BBe.n;eHBe . . . . . . . • . . . . . . . . • . . . . . • • • • . . . . . • • . . . . . . . . . . . . . . 59 B. MacIllTa6hI 61O,ll}KeTa • . . . . . . . • • • • . . . . . • • • • . . . . . . . . . . . . . . . . . . 59 C. I1o,n:roToBKa 61O,ll}KeTa . . . . . . . . • • • . . . . • . • • • • . . . . . . . . • . . . . . . . . • 65 D. YnpaBJIeHHe rocy.n;apCTBeHHbIMH KanHTaJIOBJIO}KeHH.9:MH . . • . • . . . • . . . . . . . 74 E. YTBepX(,lI.eHHe 61O,ll}KeTa . . . . . . . . . . . . . . . . . . . • • . . • • . . . . . . . . . . . . . 80 F. BhIBO,D;hI H 3aKJI1OQeHH.H . . . . . . . . . . . . • . . . . . . . . . . . . . . . • . . . . . . . . . 82 rJIa.:oaV. HCnOJIHeHBe 61OJl)KeTa . . . . . . . . . . . . . . . . • • . . . . . . . • • • . . . . . . . . . • 84 A. BBe.n;eHHe . . . • . . . . . . . . • . . . . . . . . . . . . • • • . . . . . • • . . . . . . . . . . • • 84 B. CooTBeTcTBHe Me}K,lly YTBep)K,l:J;eHHbIMH H Q;laKTHl:{eCKHMH pacxo,n:aMH . . . . . . • 85 C. Heo6xo,llHMOCTb HMeTb cBo6o,n:y MaHeBpa Ha npOTIDKeHHH ro.n;a . . . . . . . . . . . 95 D. 06eCrreQeHHe 3Q;lQ;leKTHBHOCTH H Ha,n;e}KHOCT:fI 61O,ll}KeTHl>IX aCCHrHOBaHBH ... . 97 E. 3aKJIIOQeHH.9: . • . . . . . . . . . . . . • . • . . . . . . • • . . . . . . . . . . . . . . . . . . . 101 rJIaaa VI. AYlIBT 61O.lVKeTHOii lIeHTeJIbHOCTB . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 103 A. BBe;o;emre ....••..••......••..•....•.•...•.....•....•... 103 B. COBepmeHCTBOBaHHe CHCTeMLI BHYTpeHHerO aYJJ;HTa . . • . . . . . . . . . . • . . •. 104 C. C03,I\aHHe He3aBHCHMoro opraHa BHeIilllero aY,I\HTa . . . . . . . • . . . . . . . . . . . 108 D. Pa3BHTHe B03MoiKHocTeH JJ;lliI or.r;emrn 6IO,IPKeTa . . . . . • • . . . . . . . . . . . . .. 111 E. 3aKJIIOl:Iemr.sI •........••......•.•••....•..•..........•..• 115 rJIaaa VII. PecPopMa MeCTHbIX Opr.mOB roCYllapCTBeHHoro ynpaaJleHBH . . . . . . . . . . . 116 A. BBe;o;emre . . . . . • . . . . . . . • • . . . . • . . . . . . . . . . • . . . . . . . . • . . • . " 116 B. CTPYKTYPa MeCTHLIX OpraHOB rocy;o;apcTBeHHoro ynpaBJIemr.sr . . . . . . . . . . . . 117 C. HHaHCLI TeppHTOpHaJILHLIX aJJ;MHHHCTPaI:J;HiI . • . . . . . . • . . . . . • . • . . • . . 126 D. C03;O;aHHe Opr8.HOB MeCTHoro CaMoyrrpaBJIemr.sr . • . . . . . • • . . . . . • . . . • • . 149 E. HH8.HCHpOBaHHe MeCTHLIX OpraHOB ynpaBJIeHH.sI H TeppHTOpHaJIhHLIX aJJ;MHmrCTpaI:J;HH •.•.....•............••..•.• 159 F. 3aKJIIOl:Iemr.sr. . • • . . . • • . . . . • . . • • . . . . . . . . . . . . . . . . • . . . . • . . .. 177 rJIaaa VIII BHaHCBpOBaHlle 06Pa30BaHBH H 3llpaaooxpaHeHBH . . . . . . . . . . . . . . . .. 179 A. BBe,I\emre. • . • • • • . . . • • . . . • • . . • . • • • . . • • . . . . . • . . . . • • . . . . •• 179 B. nOcJIe,I\HHe C06hITH.sI B 06Pa30BaHHH H 3;o;paBOOXpaHeHHH •.•..••...••.. 180 C. MeXaHH3MLI epe Be,neHHH rocy,napCTBa. 1.2 B pe3YJIbTaTe aHaJIH3a acrreKTOB, rrpe,nCTaBJIeHHbIX B HaCTOHIUeM ,nOKJIa.;rJ;e, CTaHOBHTCH O'IeBH,IlHbIMH TpH OCHOBHbIX HarrpaBJIeHHH ,neHTeJIbHOCTH B paMKax rrporpaMMbI pecl>0pM: (ii) KOHCOJIH,!(auHH pecrryOJIHKaHCKHX rocy,napcTBemihIX CTPYKTYP; (ii) rrOCTerreHHoe H rrOCJIe,nOBaTeJILHOe rrpeoOpa30BaHHe MeCTHbIX OpraHOB rocy,napcTBeHHoro yrrpaBJIeHHH B MeCTHbIe opraHbI CaMoyrrpaBJIeHHH; H (iii) rrepecMoTp rrOJIHTHKH B OOJIaCTH 3,npaBOOXpaHeHHH H oOpa30BaHHH. B ueHTpe BHHMa.:HliH HacToHmeH rJIaBbI OKa3bIBaeTCH rrepBoe H3 3THX TPex HarrpaBJIeHHH ,neHTeJIbHOCTH H rrpe,ncTaBJIeHbl ,nBa OCHOBHbIX rrpHHUHrra rrpeoOpa30BaHHH:: (i) JIHKBH)lauHH HJIH peOpraHH3auHH MHorHX rocy,napCTBemihIX yqpe~eHHH, KOTopble YJKe He BLmOJIIDl:IOT OCHOBHbIX cl>YHKUHH, rrpHcymHx rocy,napCTBy B ycrrOBHHX PbIHO't{HOH 3KOHOMHKH; H (ii) KOHCOJIH)lauHH pa3,npOOJIeHHLIX B HaCTOHmee BpeMH a.;rJ;MHHHcTpaTHBHbIX CTPYKTYP B oOJIee KpYIIHble MHHHCTepCTBa H Be,nOMCTBa, crrocooHbIe pewaTL BeCL KPyr BorrpOCOB B HX KOMIIeTeHUHH, Ha OCHOBe aHaJIH3a, oToopa H rreperpyrrrrHpOBKH d>ymmHH, BbmOJIHHeMbIX 3THMH CTPYKTypaMH. AHarrorH't{HbIH rrpouecc MOJKeT OblTb Ha'IaT Ha ypOBHe MeCTHbIX OpraHOB rocy,napcTBemfOro yrrpaBJIeHHH. B. 0630P rocY.llapCTBeHHhIx CTPYKTYP CYIUeCTBYIOIUa.H: crpyKTypa 1.3 3a rroC'JIe,!(HHe IIHTh JIeT CTpYKTypa rrOJIHTH'IeCKHX OpraHOB Ka3axCTaHa rrpeTeprreJIa 3HaquTem.HbIC H3MeHeHHH. B ,neKaope 1991 ro,na, B rrocrre,!(HHe ,!(HH obmmero CCCP Ka3axcKaH COBeTCKaH COqHarrHCTH'IeCKaH PecrryOJIHKa (Ka3axCKaH CCP) rrpOB03rJIaCHJIa He3aBHCHMOCTb H CTarra Pecrryo:1HKOH Ka3axCTaH. TIOTpeooBarrocL HeMHOrHM oOJIee ro,na, rrpe~e qeM HOBoe rocy,napCTBO CMOrJIO YCTaHOBHTb OCHOBOrrOJIaraIOIUHe rrpHHUHIILI CYBepeHHoro Pa3BHTHH. 3TH rrpHHUHIILI 3aKpeWIeHbI B KOHCTHTYUHH CTpaHbI, rrpHIDIToH B HHBape 1993 ro,na. O,IlHaKO 3TH rrOJIOJKeHHH rrepBoH KOHCTHTYIlHH ObIJIH rrepeCMOTpeHbI B MapTe 1994 ro,na, Kor,na JIHw)) 'Iepe3 O)lHH ro,n rroc.lIe rrapJIaMeHTCKHX BbI60pOB rrapJIaMeHT OLIJI OO'bHBJIeH BHe 3aKOHa. B HOBoH KOHCTHTYqHH, rrpHIDIToH B aBrycTe 1995 ro,na, yCTaHOBJIeHbI OCHOBHbIe rrpHHUHIILI H HarrpaBJIeHHH pecl>opMbI CHCTeMbI rocy,napCTBeHHbIX OpraHOB H yqpe~eHHH. B KOHCTHTYIlHH (B CTaTLe 2 H rraparpacl>e 4 CTaTbH 3) TaKJKe rro,nTBep~aeTCH TO, 'ITO Pecrry6JIHKa Ka3axCTaH HBJIHeTCH ymITapHbIM rocy,aapCTBOM. 3TOT rrpHHUHrr orrpe,neJIHeT OpraHH3auHOHHYIO CTPYKTYPY rocy,napCTBa, 0 'IeM rOBopHTCH BO BCTaBKe 1.1. KpoMe Toro, B COOTBeTCTBHH C KOHCTHTYUHeH, -2- B CTPaHe ,neHCTByroT npe3H,Il;eHTCKaH IPOpMa npaBJIeHH.H (CTaThlI 2) H BhI60PHhIH napJIaMeHT (CTaTh.H 49) !t. B IIpHJIo:>KeHHH 1K HaCTO.Hm;eMY ,nOKJIa,ny ,naeTC.H 60JIee no,np06Hoe OnHCaHHe nOJIHTHqeCKHX CTPYKTYP, 3aKpeTIJIeHHhIX B KOHCTH-ryI.J;HH. B Pa3,neJIe E ,naHHOH rJIaBhI npe,nCTaBJIeHhI HeKOTophIe nOJIO:>KeHH.H HOBOH KOHCTHTYlUIH, HMelOIlUle pemarom;ee 3HaqeHHe ,I(JI.H 06m;eH CTPYKTYPhI npon;ecca peIPOpM. B CJIe,nyroIlUlx rnaBax, r,ne peTh H,Il;eT 06 ynpaBJIeHHH 61O,IOKeTOM, rpa:>K,I(aHCKOH cJIY:>K6e H MeCTHhIX opraHax rocy,napCTBeHHOrO YIIpaBJIeHH.H 3TH nOJIO:>KeHH.H KOHCTH-ryI.J;HH H3JIO:>KeHhI 60JIee nO,np06HO. 1.4 B OTJIH~e OT 6hICTPhIX nOJIHTHqeCKHX H3MeHeHHH, YHaCJIe,nOBaHHhle OT COBeTCKoro BpeMeHH a,nMHHHCTpaTHBHhIe CTPYKTYPhI H3MeHHJIHCh JIHIIIh B He3Ha~TeJIhHOH CTeneHH. 3TH CTPYKTYPhI IPaKTHqeCKH npO,nOJl)l{aroT ,neHCTBOBaTh Ha OCHOBe npHHD;HnOB «,neMOKpaTHqeCKOrO n;eHTpaJIH3Ma» (Bo BCTaBKe 1.2 OnHCaHhI HHTeJIJIeKTyaJIhHhle H HCTOpHqeCKHe KOPHH 3THX a,nMHHHCTPaTHBHhIX npHHIJ;HnoB). OCHoBHhle XapaKTepHhle oc06eHHocTH OpraHH3an;HOHHOH CTPYKTYPhI H pacnop.H,I(Ka pa60ThI rocy,napCTBeHHoro annapaTa Ka3axcTaHa OTpa:>KeHhI Ha cxeMe 1.1. 1.5 Bo rJIaBe HCnOJIHHTeJlhHOH BJIaCTH CTO.HT IIpe3H,Il;eHT CTPaHhI H Ka6HHeT MHHHCTPOB, B03rJIaBJI.HeMhIH IIpeMhep- MHHHCTpOM. IIpeMhep-MHHHcTP, ero 3aMeCTHTeJIH H nepCOHaJI (8I1IIapaT) Ka6HHeTa MHHHCTPOB OTBeqaroT 3a PYKOBO,nCTBO pa3pa60TKOH Bcex HanpaBJIeHHH nOJIHTHKH npaBHTeJlhCTBa H KOHTPOJlh 3a ee rrpOBe,neHHeM. HMeHHO OHH npHHHMaroT Bce nOJIHTiPIeCKHe pemeHH.H. OpraHH3aD;HOHHaH CTpYKTYpa Ka6HHeTa MHHHCTPOB COCTOHT H3 YIIpaBJIeHHH, ~o nOJIHOCThIO COOTBeTcTByeT CTpYKTYpe MHHHCTepCTB, O,nHaKO B MeHee KPyrrHOM MacmTa6e. HanpHMep, B cli>epe rocy,napCTBeHHhIX IPHHaHCOB He MHHHCTepCTBO IPHHaHCOB, a YIIPaBJIeHHe Ka6HHeTa MHHHCTPOB, OTBeqarom;ee 3a ,naHHhIH ceKTOp, YCTaHaBJIHBaeT OCHOBHhle napaMeTphI no,nrOTOBKH 61O,IOKeTa. B 3TOM KOHTeKCTe Ka6HHeT BhmOJIH.HeT Te :>Ke Ha,nMHHHCTepCKHe IP~HH, KOTophle B l' TIaplIaMeHT COTOHT H3 ~yx: MlI,IOKJIHc, H36HpaeMhlli nocpe,nCTBOM npllMoro rolIOCOBaImJiI, H CeHaT, H36HpaeMhlli nyreM KocBeHHoro rOlIOCOBaHWi. Kpyr nOJIHOMO'lHH 3aKOHo,naTelIhHoH BJIaCTH CTporo OrpaHH'lHBalOTCg KOHCTHTynHei'i:. -3- PaMKax COBeTCKOH CHCTeMbI BbmOJIIDIJIHCb (i) IJ,eHTpaJIbHbIM KOMHTeTOM KnCC Hero OT,n;eJIaMH, 3aHHM3.IOIllHMHC.SI pa3pa60TKOH TIOJIHTHKH; H (ii) Ka6HHeTOM MHHHCTPOB Hero ynpaBJIeHH.SIMH, KOTopbIe OC~eCTBJI.SIJIH KOHTPOJIb 3a ,n;ejITeJIbHOCTbIO MHHHCTepCTB H ~yrnx rocy,n;apCTBeHHbIX OpraHOB (KOHCTHTYUIUI CCCP 1977 ro,n;a H 3aKOH CCCP 0 Ka6HHeTe MHHHCTPOB 0'1' 5 HIOJI.SI 1978 ro,n;a). 1.6 Ka6HHeT MHHHCTPOB PYKOBO,n;HT BceMH rocy,n;apCTBeHHbIMH OpraHaMH, Ha-cmHaJI C MHHHCTepCTB H HH:>Ke TIO BePTHKaJIH. PeCIIY6JIHKaHCKHe yqpe:>K,n;eHIDI TIpe,n;CTaBJI.SIIOT C060H TIepBbIH: ypOBeHb H BKJIIOq3.IOT rocy,n;apCTBeHHbIe MHHHCTepCTBa, rocy,n;apCTBeHHbIe KOMHTeTbI H ,n;pyrne KOMHTeTbI H rocy,n;apCTBeHHbIe OpraH.bI, a TaIOKe ~HHCTpaTHBHbIe yqpe:>K,n;eHH.SI H KOMMepqeCKHe TIpe,n;IIpH.SITH.SI, HaxO,n;.SIIllHeC.SI B HX Be,n;eHHH. 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TaKHM 06pa30M, cy,n;h6a BceH CTPYKTYPbI rocy,n;apCTBeHHhIX OpraHOB 3aBHCHT OT rrpeBpaTHOCTeH nOJIHTH-qeCKoro nponecca. 2.18 B npOTHBOBec 3TOMY 06IIJ;eH -qepToH Pa3BHTH5I coBpeMeHHhIX rocy,n;apcTB 6hIJIa nOITbITKa BOCnHThIBaTh rrpOlPeCCHOHaJIH3M, JI05IJIbHOCTb H He3aBHCHMOCTh CBoero nepCOHaJIa, a TaKXe nOCJIe,n;OBaTeJIbHOCTh Ka,D;pOBOH nOJIHTHKH rocy,n;apCTBa 3a c-qeT HCn0JIb30BaHH5I rocY,Il;apCTBeHHl>IX CJIY)K3.IqHX B paMKax CTaTYTHOrO pe)KlfMa. )1;axe Te CTPaHbI (HarrpHMep, Coe,n;HHeHKble illTaTbI), KOTopble COXPaHHJIH HeKOTopble 3JIeMeHThI ynOM5IHYTOH CHCTeMbI, TaKXe cTPeM5ITC5I xeCTKO peryJIHpOBaTh ee np05IBJIeHH5I. 2.19 B-TpeThHX, OTKPbITaH CHCTeMa npOTHBope-qnT O,Il;HOMY H3 OCHOBHhIX ,n;eMOKpaTH-qeCKHX npHHD;HlloB: paBHbIM ,Il;OCTYll Bcex rpa)K,Il;aH K rocy,n;apcTBeHHoH cnyx6e. BapHaHTbI pe4>opM 2.20 IIepBhlM Ba)KHbIM marOM B nponecce nOBbImeHIDI 3lPlPeKTHBHOCTH rpax,n;aHCKOH CnyX6hI 5IBJIjieTC5I no,n;6op H PYKOBO,II;CTBO Ka.n;PaMH rocy,n;apCTBOM B neJIOM. 3TO MoxeT ocymeCTBJUIThC.sI Ha KOHTPaKTHOH HJIH YCTaHOBJIeHHOH 3aKOHOM oCHoBe¥. MO)KHO rrpe.n;yCMOTPeTb e,Il;HHhrn nOp5I,Il;0K 3aKJIlO-qeHH5I cornameHHH C rocy,n;apCTBeHHhIMH CJIy)K3.IqHMH B PaMKax MeXaHH3Ma neperOBopOB 0 3aKJIlO-qeHHH KOJIJIeKTHBHhIX ,n;orOBopOB C npe,n;CTaBHTeJUIMH pa60THHKoB. JIHIIIb HeMHOrne CTpaHbI c,n;eJIaJIH BhI60p B nOJIb3Y TaKOrO BapHCurra, C"lfHTaH "lfTO OH HeneJIecoo6pa3eH, a HeKOTophle CTPaHbI noc-qnTaJIH, "lfTO TaKOH ~f COrJIacH() ItOHCTIlT}'IlHH Ka3axCTaHa nOJIHOMO'iHli no peryJIHpOBaHHIO rocy;napCTBellHoii CJIy:lE:6N JterurrCJI MeJKro' saItOHO~TeJtbHOii H HcnOlIll'HTeJlhHoii BeTBlIMH. naparpa

YCTaHaBJIHBaeT Ke OTMetIaJIOCh, CTaTYTIi pe:>KHM ,IJ;eHcTByeT B BH)J;e ,IJ;BYX CHCTeM: ,IJ;OJI:>KHOCTHOH CHCTeMhI H CHCTeMhI PaRrOB. 2.21 06hflIHO CtIHTaeTC.sI, tITO ~OJDKHOCTH8.JI CHCTeMa HMeeT p.sm; IIpeHMYJI];eCTB IIO cpaBHeHHIO C CHCTeMOH paRrOB, IIOCKOJIhKY OHa ,IJ;onycKaeT peryJIHpOBaHHe 3apa6oTHOH IIJIaThI C yqeToM TOtIHhIX xapaxTepHcTHK pa60ThI, KOTOPa.sI BhmOJIH.sIeTC.sI. O,IJ;HaxO Ha npaxTHKe, CBe,IJ;eHHe TaKHX xapaxTepHCTHK B ,IJ;OJI:>KHOCTHYIO KJIaCCHKHhIM 3a,IJ;aHHeM. A YIIpaBJIeHHe JIIO,IJ;CKHMH pecypCaMH rrpH TaKoH CHCTeMe Tpe6yeT Ha6JIIO,IJ;eHH.sI KaK 3a pa60THHKaMH, Tax H 3a ,IJ;OJI:>KHOCTHhIMH HHCTpYK!Ui.sIMH. BOJIee Toro, Taxa.sI CHCTeMa MO:>KeT IIOMemaTb Mo6HJIbHOCTH Ka,IJ;pOB, rrOCKOJIhKY rrpH H3MeHeHHH 3a,IJ;aHHH illTaTHhIX COTPY,IJ;HHKOB MO:>KeT B03HHKHYTb Heo6xo)J;HMOCTb rrOHCKa ,IJ;JI.sI HHX COOTBeTCTByrolIUlX ,IJ;OJI:>KHOCTeH. 2.22 IIo cpaBHeHHIO C 3THM CHCTeMa paHrOB .sIBJI.sIeTC.sI OTHOCHTeJIbHO rrpoCToH B CMbICJIe BBe,IJ;eHH.sI rrOCKOJIbKY OHa Tpe6yeT CJIe:>KeHH.sI TOJIhKO 3a xapaxTepHCTHKaMH rrepCOHaJIa. IIPH YCJIOBHH, tITO pa3p.sm; H ypOBeHh 3apIIJIaThI He 3aBHC.sIT OT 3aHHMaeMOH ,IJ;OJI:>KHOCTH, OHa .sIBJIjleTC.sI 60JIee JIerxoH )J;JI.sI rrepeCTa.HOBKH pa6oTHHKoB Ha .npyrHe ,IJ;OJI:>KHOCTH. K CO:>KarreHHIO, paRrOBa.sI CHCTeMa .sIBJI.sIeTC.sI MeHee 3KHOCTHOH CHCTeMbI (HJIH HX COtIeTaHH.sI) He ,IJ;OJDKeH 6hITh Heo6paTHMbIM. Kax B ,IJ;OJI:>KHOCTHOH, Tax H B PaRrOBOH cHcTeMax ypOBeHh H pa3p.sm; ,IJ;OJDKHhI 6bITh TeCHO CB.sI3aHI:.I C OK6hI OCHOBHhle KaTeropHH PaRrOB HJIH ,IJ;OJI:>KHOCTeH OCHOBaHI:.I Ha 06Pa30BaHHH. IIOCKOJIhKY o6e CHCTeMhI Tpe6yroT OIIHCaHH.sI ,IJ;OJI:>KHOCTHhIX Ke HHCTpYMeHTOB yrrpaBJIeHH.sI Ka,IJ;paMH, COXpaH.sIeTC.sI B03MO:>KHOCTb rrepexo,IJ;a OT O,IJ;HOH CHCTeMbI K ,IJ;pyrOH HJIH :>Ke rrepeXO,IJ;a K CMemaHHOH CHCTeMe. 2.24 B HeKOTOpbIX CTPaHax (HanpHMep, B MH)J;OHe3HH) C ycrrexoM H3rrOJIb3yeTC.sI CMemaHH8.JI CHCTeMa. HarrpHMep: ,n;OJI:>KHOCTHa.sI CHCTeMa )l;JI.sI HepapXHtleCKHX KHOCTh HCrrOJIb30BaHH.sI 3Toro BapHaHTa B Ka3axcTaHe. 2.25 HOBbIH CTaTYTHhIH pe:>KHM ,IJ;OJDKeH BBO,n;HThC.sI TOJIhKO rrOCJIe KOMIIJIeKCHOH a,IJ;MHHHCTpaTHBHOH peKaID;HX, OCTaIOlIUIXC.sI B rOCY,IJ;apCTBeHHbIX HeKOMMeptIeCKHX OpraHH3an;H.sIX. BpeMeHHhle pa60THHKH H pa60THHKH pyqHoro TPY,IJ;a ,IJ;OJDKHhI OCTaBaThC.sI B PaMKax OTKPbITOH CHCTeMbI. IIOJIHTHtIeCKHH rrepCOHaJI ('t!JIeHbl rrpaBHTeJIhCTBa, BbI60pHhle rrpe,IJ;CTaBHTeJIH) He .sIBJIjlIOTC.sI tIaCTbIO rrOCTO.sIHHOrO rrepCOHaJIa H He OTHOC.sITC.sI K CTaTYTHOH rocY,IJ;apCTBeHHOH cJIY:>K6e. Mx KeHHe ,IJ;OJI:>KHO onpe,IJ;eJI.sITbC.sI ,IJ;PyrHMH PaMKaMH. AHaJIOrHtIHO, B COOTBeTCTBHH C IIPHHIUiIIOM pa3,IJ;eJIeHH.sI BJIaCTeH, a,IJ;MHHHCTpaTHBHhIH rrepCOHaJI 3aKOHO,IJ;aTeJIbHhIX H cY,IJ;e6HbIX OpraHOB He MO:>KeT rro)J;'t!HH.sIThC.sI HCrrOJIHHTeJIhHhIM opraHaM, rr03TOMY ero Heo6xo)J;HMO BKJIIOtIHTb B OT,IJ;eJIhHhIH pe:>KHM. !'HCKJIlO"IeBHeM B 3TOM CMl>ICJIe JIBJUleTC.!l HoBaJI. 3eJlaa,nH.!l. B 1988 ro;ny npaBlITem.CTBO peWHJIO nepeiITH OT CTa1)'THoro pe:lKHMa Ha CHCTeMY 3aKJIlO"IeBH.!l KOJlJleKTHBBLIX .IlOI"OBOPOB B COOTBeTCTBHH C TpY.IlOBl>IM 3aKOHO,IlaTem.CTBOM. - 41 - E. YpOBeHb II CTPYKTypa 3apa60THOii IIJIaTbI 2.26 COKpam;eHHe rOCY,I1;apCTBeHHhIX CJIY)K6 1I03BOJIHT 1I0BbICHTb 3apa60THYJO IIJIaTY rocY,I1;apCTBeHHbIM CJIY)KaIJ.UlM, KOTopbIe 6Y,D;yT ,I1;eHCTBOBaTb B PaMKax HOBOH CTaTYTHOH CHCTeMbI. B HaCTO.SIID;HH MOMeHT IIJIaTe)KHa.SI Be,l1;OMOCTb .SIBJI.SIeTC.SI yrrpaBJI.SIeMOH, HO OHa COCTaBJIeHa .D;JI.SI CJIHIIIKOM 60JIbIIIOrO tUlCJIa pa60THHKOB. B pe3YJIbTaTe 3Toro OOII,l{ 3apa6oTHoii nJIaTbI B ceKTope o6IUero rocY.ZlapCTBeHHoro ynpaBJIeHHSI (cIlaKTIIQecKUe IIOKa3aTeJIH 61O]l)KeTa) DIO,!OKeT 3apIIJIaTa % nOCTYIIJleHHii % paCXO;n;OB % TeK)'IllHX paCXO;n;OB % BBII 1993 1994 1993 1994 1993 1994 1993 1994 1993 1994 Bcero 1/ 1,298 13,198 17.7 15.75 18.26 13.80 21.00 19.01 4.84 2.84 U:eHTPaJn,Hoe npaBHTeJlbCTBO 417 5,152 8.37 10.22 9.35 8.32 14.97 13.56 1.56 1.11 MeCTHhIe opraHbI 881 8,046 34.16 24.12 28.76 21.01 34.23 22.35 3.29 1.73 HCTO'lHHK: 3KoHoMH"lecKaJI H CPYHKD;HOHaJIbHlUI KJIaCcHcpHKaIJ;Kll 6IO,!OKeTa, MHHHcTepCTBo CPHHaHCOB, U:emp 3KOHOMH'leCKHX pecpoPM. II He C'IHTali COIUfaJIbHOrO o6eCne'leHKll. ~ 06paTHTe BHHMaHHe, 'ITO ;IlaHHhIe D;HCPPhl He BKJIIO'IaIOT IIJIaTeJKH}'lO Be;n;OMOCTh CHCTeMhl COIUfaJIbHoii: 3a.n::uITh1. IIoCJle)l.HllJl npe;n;CTaBJlJl.eT em:e O;II.HH npoD;em B BBII 1994- 95 IT. - 42- Tafi.rmua 2.3: cI>oHJl aapafioTHoii nJlaTbI B ceKTope rocY.llapCTBeHHoro ynpaBJIeHIUI B OT.lleJIhHhlX CTPaHax, 1994 CTpaHa Oomas: Cy:MMa roc. pacxo,n;OB ll>oH,!( 3apaooTHoii: IIJIaTbI Il>OH,!( 3apaOOTHOH IIJIaTbI (% BBll) (% roc. paCXO,ll,OB) (%BBm CmaHbI obmwero cCCP Ka3axCTaH 18.2 15.3 2.8 POCCIDl 46.3 13.5 6.3 QmaHbI co clle,!!!!HM gOXO.!!.OM: qemcKllll Pecnyomuca 11 51.9 8.3 4.3 BearpIDl 41 64.7 11.7 7.6 I'yMbmwI 21 44.3 13.6 6.0 rpeD.IDl 11 43.1 22.5 9.7 llopT}Ta.JIIDl 41 48.5 24.7 12.0 CTDaHbI C BbICOKHM .!!.OXO.!!.OM: BeJIbrIDI 21 56.7 17.8 10.1 1l>paHD.IDl 21 54.4 14.8 8.1 repMaHRll 21 62.3 18.2 11.4 HpJIaB,I(IDl 31 54.2 18.1 9.8 HH.nepJIaH,II,bI 11 70.9 13.3 9.4 HCIIaHIDl 31 50.5 19.6 9.9 BemucoopHTaHIDl 21 56.2 18.6 10.4 rrpHMe'faHHe: BKmO'fas: D.empaJIbHOe npaBmeJIbCTBO H MeCTBbIe Op:ram.I rocynapCTBeHHoro ynpaBJIeBK!!., oe3 yqeTa , Bua,II,aHHbIX BESD BCeMHPHoro BaBKa. 2.29 ITPH TOM, 'ITO 'lHCJIeHHOCTb 3aID1TbIX B rocYJ];apCTBeHHOM CeKTOpe B OCHOBHOM He H3MeHHJIaCb, cpeJ];HIDI 3apIIJIaTa roCYJ];apCTBeHHbIX CJIyxaIlUlX 3Hal:l:HTeJIbHO CHH3HJIaCb ropa3J];O HIDKe YPOBIDI 3apIIJIaTbI B CpeJ];HeM no CTpaHe. K cepeJ];HHe 1995 rOJ];a OTHomeHHe 3apa6oTHoH IIJIanl B rrpOMhIIIIJIeHHOM H €pHHaHCOBOM ceKTopax K 3apa6oTHoH IIJIaTe B ceKTope rOCYJ];apCTBeHHoro yrrpaBJIeHH5I Ha 50 npOn;eHTOB rrpeBblWaJIO aHaJIOrH'lHbrH nOKa3aTeJIb, Ha6moJ];aBrrmHC5I BO BpeM5I npOB03rJIameHH5I CTpaHOH He3aBHCHMOCTH. 3TO pa3JIH'lHe em,e 6oJIbme, eCJIH CpaBHHBaTb 3apa6oTHYIO IIJIaTY rocYJ];apcTBeHHbIX cnyxaIlUlx C 3apIIJIaTOH B qaCTHOM ceKTope. 3TO 5IBJI5IeTC5I pe3YJIbTaTOM peJ];KHX KoppeKTHpOBOK MHHHMaJIbHOH 3apa6oTHoH IIJIaTbI, KOTOPbIH cnyJKHT 'lHCJIHTeJIeM J];JI5I paCqeTa 3apIIJIaTbI pa60THHKOB rocYJ];apCTBeHHbIX yqpeJK,ll;eHHH (CM. PHCynOK 2.1 H cJIe,IJ;yIOIII,HH Pa3J];eJI). ITo 3TOH xe rrpH'lHHe - 43- lITO CyMMa neHCHOmn.IX BbIlIJlaT Clm3HJIaCb C 7 npoIJ,eHTOB BBTI B 1992 ro,I:(Y ,n;o 4 npOIJ,eHTOB BBTI B 1994-1995 IT. 2.30 06bNHO ClfiITaeTC5I, lITO 6a30BbrH YPOBeHb 3apa6oTHoH IIJIaTbI a,n;MHImCTpaTOpa o6mero YPOBHJI .n:OJDKeH no KpailHeH Mepe PaBHJITbC5I cpe,n;HeMY nOKa3aTeJIIO BBTI B paC"tIeTe Ha ,n;ymy HaCeJIelm5I. ECJIH HCnOJIb30BaTh 3TOT OpHeHTHp, TO 3apIIJIaTa "CneIJ,HaJIHCTa" ,n;OJDKHa 6bITb no KpailHeH Mepe Ha cymeCTByromeM ypOBHe. 2.31 O,n;HaKO B YCJIOBH5IX cepbe3Horo 61O,IOKeTHOrO KpH3Hca npaBHTeJIbCTBO He M02KeT nOHm Ha CTOJIh 3Ha"t{HTeJIbHOe nOBbIIIIelme 3apa6oTHoH IIJIaTbI 6e3 cymecTBeHHoro COKpamelm5I "tIHCJIeHHOCTH pa60TImKoB. liaaOBaJI CTpyKTypa aapaoOTHoii nJIaTbI 2.32 KaK Y>.K.e OTMe"tlaJIOCb, CTpyKTypa 3apa6oTHoH IIJIaThI rocy,n;apCTBemn.IX CJIY2Ka:r:u;HX CJIe,I:(YeT HeKOTOpbIM KOHIJ,eIIIJ,H5IM ",n;OJDKHOCTHOH CHCTeMbI". oTa CHCTeMa COCTOHT H3 14 IIIKaJI 3apa6oTHoH rmaTbI, KOTopbIe YB5I3bIBaIOT ypoBeHb 3apa6oTHoH IIJIaTbI C KaTeropHeH ,n;OJI2KHOCTeH rocy,n;apCTBemn.IX yq:pe2K,D;eImH. B Ta6JIHIJ,e 2.1 npe,n;CTaBJIeHa nepBa5I H3 TaKHX IIIKaJI, KOTOp'UI BKJIlO"tIaeT Ha KBaJIHcPHIJ,HPOBa.mn.IX pa60TlmKOB pecrry6JIHKaHCKHX yq:pe2K,D;eImH. ,I(pyrHe Ta6JIHIJ,bI YCTaHOBJIeHbI ,n;JI5I KBaJIHcPHIJ,HPOBa.mn.IX Ka,n;POB aBTOHOMHbIX pecrry6JIHKaH'CKHX areHTCTB (Ta6JIHIJ,a 2); KBaJIHcPHIJ,HPOBa.mn.IX Ka,D;POB 06JIaCTHbIX a,n;MHImCTPaIJ,HH (Ta6JIHIJ,a 3); KBaJIHcPHIJ,HPOBaHHbIX Ka,n;POB ropo,n;a JIelmHCKa (Ta6JIHIJ,a 4); KBaJIHcPHIJ,HPOBaHHbIX pa60THHKOB aBTOHOMHbIX areHTCTB ,n;pyrHx ropo,n;OB (Ta6JIHIJ,a 9); KBaJIHcPHIJ,HpOBamn.IX Ka,D;POB pailOmn.IX a,n;MHImCTPaIJ,HH (Ta6JIHIJ,a 10); pa60TlmKOB HOTapHaJIbHbIX KOHTOP (Ta6JIHIJ,a 11); 06CJIY2KHBaJOmero nepCOHaJIa rocy,n;apCTBemn.IX yq:pe2K,D;eImH (Ta6JIHIJ,a 12); pa60TlmKOB CeJIbCKHX a,n;MHImCTPaIJ,HH. ffiKaJIbI 3apa6OTHoH IIJIaThI ,n;JI5I ropo,n;cKJ!.(X, pailOmn.IX, CeJIbCKHX H HOTapHaJIbHbIX KOHTOP 3aTeM ,n;HcPcPepeHIJ,HpyroTC5I no THrry H/HJIH pa3MepaM OXBaThIBaeMbIX TepPHTopHH. Ta6JIHIJ,bI3apa6oTHoH IIJIaTbI nepHO,n;H"tIeCKH 06HOBJI5IIOTC.sl O,n;HOBpeMeHHO C KoppeKTHpoBKOH MHImMaJIbHOH 3apa6oTHOH IIJIaTbI Ka6HHeToM MHImCTPOB, KOTOPOH Olm CJIe,I:(YIOT. 2.33 Bce YPOBIm OIIJIaTbI Tpy,n;a paCC"tIHThIBaJOTC5I Ha OCHOBalmH HCXO,n;HOro YPOBHJI 3apa6oTEiOH IIJIaTbI HJIH "tIHCJIHTeJllI ("MHImMaJIbHa5I 3apIIJIaTa"), a CHCTeMa K03cPcPHIJ,HeHTOB orrpe,n;emIeT "Bec" ,n;JI5I KaJK,ll;OH ,n;OJDKHocm CJIe,n;yromHM 06Pa30M: .uOJDKHOCTb CneIJ,HaJIHCTa B ,n;aHHOM areHTCTBe • • . • . • • • . • . • . • • K03cPcPHIJ,HeHT 4,2 MHImMaJIbHa5I 3apIIJIaTa . . . • . . . . • • • . . . . . • • . . • . . • • . • • • . . . .• 261,7 TeHI'e lIHCTa5I 6a30Ba5I MeC5I"tIHa5I 3apIIJIaTa . . . . . . • • . • • . • • • • • • . . • 4.2 x 261,7 = 1 100 .uOJDKHOCTb Ha1:laJIbHHKa B ,n;aHHOM areHTCTBe • • • • . . • • . • • . • •• K03cPcPHIJ,HeHT 8,53 MHlmMaJIbHa5I 3apIIJIaTa • • • • • • • . . . • • . . • • . . . . . . • . . • • . • • • . •• 261,7 TeHI'e lIHCTa5I HCXO,n;Ha5I MeC5I"tIHa5I 3apIIJIaTa . . • . . . • . . . . • • • • • • . . 8.53 x 261,7 = 2200 Ha,n;6aBKa 3a BbICJIYry JIeT npH6aBmIeTC5I K STOH 6a30BOH 3apIIJIaTe, KOTOPa5I B03paCTaeT B 3aBHCHMOCTH OT Tpy,n;OBoro CTa2Ka (3-5 JIeT: 10 npOIJ,eHTOB; 5-10 JIeT: 15 npOIJ,eHTOB; 10- 15 JIeT: 20 rrpOIJ,eHTOB; 15-20 JIeT: 25 rrpOIJ,eHTOB; 60JIee 20 JIeT: 30 npOIJ,eHToB). - 44- 2.34 B COBOKYITHOCTH ,J:(HqHpepeHIJ;HaD:H.sI 3aprnIaT no ::lTOH ceTKe .sIBJI.lieTC.sI BnOJIHe 060CHOBaHHOH: cooTBeTcTByroIIJ,HH K03HI:(HeHT KOJIe6JIeTC.sI OT 1 )lO 5 cpe,J:(H HenOJIHTlNeCKHX )lOJDKHOCTeH. BblJIO 6b1 Hepa3YMHO rrpO)lOJDKaTb CHIDKaTb 3TH nOKa3aTeJIH, nOCKOJIbKY 3TO npHBeJIO 6bl K )laJIbHeHmeH )leMOpaJIH3an:HH rOCY)lapCTBeHHOH CJIyJK6bI. 2.35 O)lHaKO, )lOJIJKHOCTHbIe K0330BaJIaCl> ;tI)IlI. o6ecne'lelmll 6011ee BblCOKHX 3apDllaT ;tI)IlI. ~OJDKBOCTeH, MOHOnOl1H3HpOBaI:tHblX KOMMYHHCTH'IeCKOH napmeH. - 45 - 06pa30M, 6oJU,me qnCJIO ,nHpeKTOpCKHX ,IJ;OIDKHOCTeH). 3TO C03,IJ;aeT HCTO"'lHHK KOHq,JIHKTOB BHYTPH a,uMHHHCTPaIUlH H CKPbITbrii CTHMyJI ;rvur B3paIIUlBamHI a,IJ;MHHHCTpaTHBHbIX CTPYKTYp. EOJIee TOrO, CJIY:>KaIIUlH HMeeT MeHbme nepCneKTHB Cny:>Ke6HOrO pOCTa B He6oJIbmOM OT,IJ;eJIe, qeM B OT,IJ;eJIe C HeCKOJIbKHMH ,IJ;HpeKTOpaTaMH H OT,IJ;eJIeHH5IMH H 60JIbillHM qnCJIOM ,IJ;OIDKHOCTeH. ".TI.H:HeHHag ,IJ;OIDKHOCTHag" CHCTeMa TaIOKe Bbmy:>K,IJ;aeT TeXHHqeCKHX CneIUlaJIHCTOB BbICOKOro ypOBH5I (TO eCTb, ,IJ;OKTOPOB, BeTepHHapOB, HH:>KeHepOB, yqnTeJIeH, Cne~HaJIHCTOB no Bblq}lCJIHTeJIbHOH TeXHHKe) CTpeMHTbC5I 3aH51Tb MeHe,IJ;:>KepCKHe n03HIUlH, rrpHHa,IJ;JIe:>KaIlUie K BblCOKOOIIJIaqnBaeMOH illKaJIe. K yrrOMSIHYTOMY B npe.IJ;bI,IIyIIJ;eM naparpaq,e He,IJ;OCTaTKY TaKag CHCTeMa ,IJ;06aBHJIa 6bl He,IJ;OCTaTOK npH3HaHH5I pa3JIHq}{H npoq,eCCHOHa.JIbHbIX CHTYaIUlH: cpe;r(ll rOCY,IJ;apCTBeHHbIX CJIYXaIIJ;HX, KOTopble Tpe6yroT ,nHq,q,epeHUHPOBaHHblX HarrpaBJIeHHH nOCTPoeHH51 KapbepM. 2.38 BMecTo Toro, qTo6bl npO,IJ;BHraTbC5I B 3TOM HarrpaBJIeHHH, Ka3axCTaR ,IJ;OJDKeH rrpe:>K,IJ;e Bcero BbI6paTb TOT HJIH HHOH THn pe:>KHMa roCY,IJ;apCTBeHROH CJIY:>K6bl, a 3aTeM B COOTBeTCTBHH C 3THM Bbl6opOM pa3pa6OTaTb CTPYKTYPY 3apa6oTHOH IIJIaTM. ECJIH BbI60p C,IJ;eJIaR B nOJIb3Y ,IJ;OIDKHOCTHOH CHCTeMbI, THnOBag npo~e,IJ;ypa nepeCMOTpa CTPYKTYPbl 3apa6OTHOH IIJIaTbI 6Y,IJ;eT cne,IJ;ylOl1l;eH: ,o;OIDKHOCTH HJIH n03HIUlH rpyrrIIHpyroTC5I BMeCTe B COOTBeTCTBHH C CO,IJ;ep:>KaHHeM pa60TbI C ~eJIblO C03,IJ;aHH5I KJIaCCOB HJIH KaTeropHH O)UIOpO,IJ;Hb1X ,IJ;OIDKHOCTeH, Tpe6yroIII,Hx O,IJ;HHaKOBOrO BH,IJ;a KBaJIHq,HK~HH HJIH TeXHHqeCKHX, yrrpaBJIeH'IeCKHX HJIH HaytIHblX HaBbIKOB. Ka:>K,Il;brii H3 ~THX KJIaCCOB B CBOlO oqepe,ru, ,IJ;eJIHTC5I Ha pa3p5l,l.'(bI B COOTBeTCTBHH C ypOBHeM TPY,IJ;HOCTH, C.110:>KHOCTH HJIH OTBeTCTBeHROCTH H TPe6yeMbIMH HaBMKaMH. MCnOJIb3yroTC5I B OCHOBHOM ,IJ;Be MeTO,nHKH o~eHKH ypOBHSI ,IJ;OJI:>KHOCTH: rpa.o;~H5I H paH:>KHpOBaHHe ,IJ;OIDKHOCTeH. IIpH MeTO,IJ;erpa.o;aIUlH ,IJ;OJDKHOCTeH, ,IJ;OJDKHOCTH B PaMKax orrpe,IJ;eJIeHRoro KJIacca cpaBHHBaJOTC.SI C onpe,IJ;eJIeHHOH yxe OneHeHROH HCXO,IJ;HOH ,IJ;OJDKHOCTblO. IIpH MeTO,IJ;e PaH:>KHPOBaHH5I ,IJ;OJDKHOCTeH no 6aJIJIaM, pa3JIHtIHble XapaKTepHCTHKH OneHHBaeMOH: ,IJ;OJDKHOCTH nO,IJ;CqH'l'bIBaIOTC5I Ha OCHOBe 3apaRee onpe;n;eJIeHHOH 6aJIbHOH illKaJIM ;rvur Ka.:>K,I(Oro 3JIeMeHTa, H 06III,HH CqeT onpe,IJ;eJI5leT ypOBeHb ,IJ;aHROH ,IJ;OJDKHOCTH. 3TO POJDKHO ObITh CPeJIaHO TOJIl,KO B OTHOIIIeHHll ~OJDKHOCTeii, COXPaHHBIII1lXCJI IIOCJIe IIpOBepeHllJI peOpraHH3aI{1l1l a,JJ,M1l1IHCTpa'J'HlJHOH CllCTeMhI, OIlHCaHHOH B IIpeph~ IIaparparjJax 1l B FJTase l. 2.39 ECJIH PYKOBO,IJ;CTBO rrpeIJ;IIOtITeT CHCTeMY paRrOB, TO CHaqaJIa ,IJ;OJDKHa 6bITb HCnOJIb30BaRa npone.o;ypa C03,IJ;aHH5I KJIaCCHq,HKaIUlH nepCOHaJIa rryreM (i) orrpe,IJ;eJIeHH5I Pa3JIH'llI:bIX "HepapxHli", COOTBeTCTByroIII,HX cym;eCTBYlOIII,HM YPOBHSIM 06pa30BaHH5I B 06pa30BaTeJIbHOH CHCTeMe CTpaHbl; (ii) pa3,IJ;eJIeHH51 "HepapxuH" Ha KJIaCCbI, orrpe,IJ;eIDIIOIII,He CTPYKTYPY KapbepM; H (iii) ,IJ;a.JIbHeHmero ,IJ;eJIeBB5I KJIaCCOB Ha "CTyrreBB" HJIH "P~I", KOTopMe Onpe,IJ;eIDIIOTC5I BblCJIyrOH JIeT HJIH pe3YJIbTaTaMH ,IJ;e5lTeJIbHOCTH. CJIe.o;yromHM marOM 6bIJIO 6bl rrpe06pa30BaHHe Ka.:>K,I(Oro CYmeCTByromero ypOBHSI 3apIIJIaTM B 3KBHBaJIeHTHyro HepapXHlO, KJIacc HJIH PM H 3aKpeIIJIeBBe Ha3BaHROrO ypOBH5I 3a pa60THHKOM, 3aHHMaJOmHM CB5I3aHHyro C 3THM n03HIUllO. OIDITb :>Ke, TaKOe yrrpa:>KHeBBe ,IJ;OJDKHO 6bITb rrpo,IJ;eJIaHO TOJIbKO B OTHomeHHe cJIY:>KaIII,HX, KOTopbIe OCTaHyTC5I Ha rocY,IJ;apCTBeHHOH cnyx6e nOCJIe a,IJ;MHHHcTPaTHBHOH: peopraHH3~HH. 2.40 ,I1;eHcTBHTeJIbHag CTPYKTYpa HOBblX illKaJI 3apIIJIaTbI no JIlO60H H3 3THX CHCTeM (HJIH no CMelliaHROH cHcTeMe) ,IJ;OJI:>KHa 6bITb OCHOBaRa Ha MaKP03KOHOM1flfeCKOH o~eHKe HX Henocpe,IJ;CTBeHHoro B03,IJ;eHCTBH5I (qepe3 npe06pa30BaHHe illKaJILI3apIIJIaTbI), a TaIOKe cpe)UIecpOtIHblX nOCJIe,IJ;CTBHH (qepe3 nepcneKTHBbI pa3BHTH.R KapbepM, KOTopble OBB npe;IJ;JIaraJOT). 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IIp(311)1eHTa II AnnapaTa npaBHTeJIbCTBa; nOMOlllHHKOB II COBeTHHKOB llpe311,11;CHTa Pecny6JlHlCll; npeJlCT8lIHTeJIeH: llpe311,11.eHTa; PYKOBOJtHTeJIeH: annapaTOB naJIaT napJlaMeHTa; PYKOBO)lHTeJleil: CTP)'KTYPHLIX nO,!J;pa3,11;eJIeHHil: NlMHHHCT)laIUm npe311,11.eHTa; PYKOBO.AHTeJIeil: ueHTPaJIbHblX IICnOJlHIITeJIbHblX OpraHOB, He BXO)lllll!,llX B COCTaB npaBHTeJlbCTBa; 3) BTOPal! KaTerOplIl! - ,ll;OJllKHOCTH: 3aMeCTHTeJleH: PYKOBOJtHTeJleH: roCY,ll;apCTBeHIILIX OPraHOB, HenOCpe,ll;CTBeHHO nOjI'lHHeHHLIX H nO)lOneTHLIX npe311,11.eHTY Pecny6JlIIKII; 3aMeCTIITeJIeil: MIIHIICT)lOB, 3aMeCTIITeJIeH npe)lCe.n:aTeJIeil: rocy.n:aPCTBeRHblX KOMHTeTOB; 3aMeCTHTeJIeil: IUCllMOB 06JlaCTeH, rOp0,ll;OB pecny6J1l1KaHcKoro 3Ha'leHIIl! H CTOJlHIU>I Pecny6J1I1K11; 3aMeCTHTeJIeil: PYKOBO.AHTeJIeH: annapaTOB naJIaT llapJlaMeHTa; 3aMeCTIITe.1J! npe,ll;ce.n:aTeJlJ!, ceKpeTapJlII '1JleHOB IleHTPaJIbHoH: 1136l1PaTeJIbHOii KOMIICCHH; 3aMeCTHTeJIeii PYKoBo.AHTeJleii ueHTPaJIbHLIX nO,!J;pa3,11;eJIeHHil:, rOCY,!l;apCTBeHHLIX IIHCneKTOpOB NlMHHHCT)laIUm llpe311,11.0HTa; npe,ll;CTaBHTeJIeH: llpasHTeJIbCTBa; PYKOBO.AHTeJIeH CTP)'KTYpHLIX nO,!J;pa3)1oaeHHil: annapaTOB llpaBHTeJlbCTBa II llanaT llapJlaMeHTa; nOMOlllHHKOB II COBeTHllKOB llpOJlCe)laTeJlJ! CeHaTa II npOJlcc,llaTeJlIl MaJKHJlHca llapJlaMeHTa, npeMbep-MHHHCTpa II 11K 3aMeCTIITeJIeil; 3aBeJlY'lOIIl,IIX CCKTOPaMH AJlMHHHCTPaIUm npe311,11.ellTa; 3aMeCTHTeJleH PYKOBO.n:HTeJleH: CT)lYJITYPHblX nO,!J;pa3,1leJleHHH annapaTOB npasHTeJIbCTBa II llaJIn llapJlaMeHTa; 3aMeCTHTeneH PYKOBOJtHTeJleH: IIHbIX ueHTpaJIbHLIX IICnOnHHTeJlbHLIX OPraHOB, He BXOJllllll,llX B COCTaB llpaBlITenLCTBa; aKIIMOB paH:OHOB II ropO,llOB 06J1aCTHOrO nO,ll;'ll!HeHIIll; 4) TPeTLJ! 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Bo MHorHX CJIyqaxx y.n;aeTCX OTJI02KHT:b HJIH npe.n;OTBpaTHTb JIHIIII:. B03.n;eHCTBHe pacxo.n;OB Ha .n;eHe2KHO-Kpe.n;HTHYIO ccpepy (T.e. aCCHrHOBaHHX), HO He ocyru,eCTBJIeHHe CaMHX pacxo.n;OB. 3TO Be.n;eT K HaKOIIJIeHHIO 3a,I(OJDKeHHOCTH no IIJIaTeXaM. 5.10 qTO KacaeTCX MeCTH:bIX 6IOn:>KeTOB, .n;ecpHIIHT Ha KaccoBoH OCHOBe He .n;orrycKaeTcx B npHHD;Hne. O.n;HaKO Ha npaKTHKe Ha npOTX:>KeHHH ro.n;a B03HHKalOT 3HaqHTeJI:bH:ble .n;ecpHD;HT:bI, KOTOp:hle HeH3MeHHO npHXOnHTCX cpHHaHCHpOBaTb H3 pecrry6JIHKaHCKOrO 61OW!{eTa, no KpaHHeH Mepe qaCTHl.{HO, XOTX 3TO He BXO.n;HT B HaMepeHHX 61OW!{eTH:bIX OpraHOB. IIo3TOMY, no BceH BepOXTHOCTH, 3TO npHBe.n;eT K YBeJIHqeHHIO necpHD;HTa pecrry6JIHKaHCKOrO 61OW!{eTa B 1995 ronY, KaK :3TO npOH30IIIJIO B 1994 rony. 5.11 HecMoTpx Ha TO 'l(TO .n;ecpHD;HT Ha KaCCOBOH OCHOBe XBJIXeTCX 3HalflfTeJIhHbIM, OH He .n;aeT nOJIHOrO npe.n;CTaBJIeHHX 0 peaJI:bHOH CHTYaIIHH, nOCKOJIhKY Y'flfT:bIBaIOTCX JIHIIIh cpaKTHqeCKH npOH3BeneHHhle pacxo.n;hI. KpOMe Toro, B 6IOW!{eTax npoHcXO.n;HT HaKOIIJIeHHe KPyrrHOH 3a,n;OJI)KeHHOCTH no IIJIaTe:>KaM, B OCHOBHOM no 3apa6OTHOH IIJIaTe. COrJIaCHO naHHbIM MHHHCTepcTBa cpHHaHCOB, nOJIyqaeMhIM B xo.n;e CHCTeMaTHqeCKOrO 06CJIe.n;OBaHHX cpHHaHCOBOrO COCTOJ!HHX 06JIaCTeH, o6ID;ax cYMMa 3a,IIOJDKeHHOCTH no COCTOXHHIO Ha 15 aBrycTa 1995 ro.n;a .n;ocmrJIa 6,6 MJIP.n; Teme, npHqeM nOJIOBHHY :3TOH CYMMhI COCTaBmma 3a,I(OJDKeHHOCTh no 3apa6oTHoH IIJIaTe. ComaCHO .n;aHH:bIM, nOJIyqeHH:bIM B pe3YJIhTaTe aHaJIOrHtffioro 06CJIe.n;OBaHHX yqpe:>K.n;eHHJ~ H npe.n;rrpHXTHH, cpHHaHcHpyeMhIx H3 pecrry6JIHKaHCKOrO 61OW!{eTa, CYMMa HX sa,u;OJI)KeHHOCTH HeCKOJIbKO HHJKe, nopx.n;Ka 325 MJIH Teme. TaKHM 06Pa30M, o6ID;ax CYMMa 3a,IIOJI)KeHHOCTH rocy.n;apCTBeHHoro 61OW!{eTa B D;eJIOM COCTaBHJIa OKOJIO 7 MJIP.n; Teme no COCTOJ!HHIO Ha 15 aBrYCTa 1995 ro.n;a (qTO COCTaBJIXeT OKOJIO 2 npOD;eHTOB BBII sa nepHo.n;). 5.12 KaK HenOJIHOe HCnOJIhSOBaHHe, TaK H nepepacxo.n; aCCHrHOBaHHbIX 6IOW!{eTHbIX cpe.n;CTB XBJUIIOTCX npH'l(HHOH Hecnoco6HoCTH .n;eHCTBoBaTh B paMKax YTBepJK.n;eHHorO 61O.n;:iKeTa. 3TO MO:iK.eT npOJlCxo.n;HTh no CJIenYlOID;HM TpeM npHlflfHaM: (i) nepeOD;eHKa 061>eMa nOCTYIIJIeHHH; (ii) Heo6x3aTeJIbH:bIH XapaKTep 6IOW!{eTHhIX aCCHrHOBaHHH; H (iii) npaKTHKa ceKBeCTpaD;HH. 3TH rpH npH'nmhI B03HHKHOBeHHX paCxOJK.n;eHHH pa3JIHlIHhI no CBOeMY XapaKTepy H rpe6YIOT Pa3JIHlIHhIX peIIIeHHH. PaCXO)J(,lleHlHl Me:iK.l{y nOCTynJIeHHHMH, rrp0rH03HpyeMbIMH rrpH COCTaBJIeHHH 61O,ll)ICeTa, H cPaKTHqeCKHMH nOCTyrrJIeHHJ!MH 5.13 Ao 1995 rona npe.n;BapHTeJIhH:ble OD;eHKH rocy.n;apCTBeHHhIX nOCTYIIJIeHHH XBHO 3aBDIIIlaJIHCh. TaK, B 1994 ro.n;y cpaKT:H'l(eCKHe nOCTYIIJIeHHX COCTaBHJIH JIHIllh 75 npOIJ,eHTOB nOKa3aTeJIX, YKa3aHHoro B 61OW!{eTe. 3TO npOHcxo.n;HT He TOJI:bKO B Ka3aXCTaHe, HO B 60JIhllIHHCTBe crpaH 6hIBillero CCCP, 'l(TO 06YCJIOBJIeHO MaKPO:3KOHOMHqeCKOH HeCTa6HJIhHOCTbIO, B nepBYIO oqepe)J;h He02KHnaHHhIM POCTOM 3a,IIOJI)KeHHOCTH no IIJIaTe:iK.aM B MacIIITa6ax BceH 3KOHOMHKH. qTO KacaeTCX, B qaCTHOCTH, nOCTYIIJIeHHH B rocynapCTBeHHhIH 61OW!{eT, MHorne KpynHeHillne npe.n;rrpHXTHX, nO.n;JIeJKaIIJ,He npHBaTH3aD;HH HJIH peoprami3aD;HH, HaKOIIHJIH SHa'l!HTeJIhHYIO 3a,IIOJDKeHHOCTh no HaJIOrOBhIM IIJIaTeJKaM. MHorne - 88 - q>H3HlIeCKHe JIHu.a, KOTOPbIM 3apIIJIaTa y:>Ke ,Il;aBHO He BbIIIJIal:J:HBaeTC.sI HJIH BbIIIJIal:J:HBaeTC.sI B HaTYPaJIbHOM BbIpIDKeHHH (6apTep), TaIOKe HaKOIIHJIH pa3JIHl:J:HbIe BH,Il;bI 3a.n:.OJlJKeHHOCTH nepe,Il; rOCY,Il;apCTBOM. Erne O,IUIHM K.UeHHbIe 6IOJl)J(eTHbIMH aCCBrHOBaHHSlMH 5.16 B COOTBeTCTBHH C npaBHJlaMH, YCTaHOBJleHHbIMH npaBHTeJIbCTBOM, HeKOTopble paCXO,Il;bI MOryT ocyrneCTBJl.sITbC.sI 6e3 npe,Il;BapHTeJlbHOrO yTBep)l{,Il;eHH.sI. )l,Be OCHOBHbIX KaTeropHH paCXO,Il;OB XapaKTepH3yroTC.sI 3Hal:J:HTeJlbHbIM 061>eMOM Cpe,Il;CTB, HCnOJIb3yeMbIX 6e3 COOTBeTCTByrornero aCCHrHOBaHH.sI: (i) KPC,lUIThJ rrpeIWPHJITHJIM. KaK y:>Ke OTMellaJIOCb, CYMMa paCXO,Il;OB B ,Il;aHHOH KaTeropHH .sIBJl.sIJlaCb OTHOCHTeJIbHO BbICOKOH no COCTO.sIHHIO Ha KOHeu. nepBoro KBapTaJIa 1995 rO,Il;a. IIPH 060CHOBaHHH nO,Il;06HbIX npou.e,Il;Yp BblJlBHraeTC.sI apryMeHT 0 u.eJIeCOo6pasHoCTH COXpaHeHH.sI KOHHII.HaJlbHbIM KaHa.ilaM. (ii) C03,4aHHe pe3epBOB. (PaCXO,Il;bI KOMHTeTa no Q:>H3HlIeCKHM pe3epBaM). PaCXO,Il;bI B ,Il;aHHOH KaTeropHH TaIOKe npe,Il;CTaBJI.sIlOTC.sI KpaHHe 3Hal:J:HTeJlbHhIMH. C03,Il;aHHe pe3epBOB, npe,Il;YCMOTpeHHoe cneu.HaJIbHbIM nOCTaHOBJIeHHeM OT 20 aBrycTa 1992 rO,Il;a ocyrneCTBJI.sIeTC.sI ,Il;IDKe B Tex CJly-qa.sIX, KOr,Il;a Cpe,Il;CTB Ha 3TO He BhmeJleHO (lITO 3aKpeIIJI.sIeTC.sI erne O,Il;HHM He,Il;aBHHM nOCTaHOBJleHHeM - ,Il;HpeKTHBOH Ka3HalleHCTBa OTHOCHTeJlbHO Bcex npou.e,Il;Yp Henpe,Il;YCMOTpeHHbIX paCXO,Il;OB, T.e. paCXO,Il;OB, . I - 89 - ocym;ecTBID!eMbIX 6e3 rrpe~apIlTeJIbHOfO YTBep)K,ll;eIDHI). B03MO)KHO, 'ITO B CTPOfO orrpe.n;eneHHhIX CHTYaIUl5IX fH6K1ie rrpOue.llYPhI paCXO.n;OB, rrpe.n:yCMaTpHBaIOlIUIe peTpOaKTHBHhIe aCCHfHOBaHH5I, MOryT 6hITh 060CHOBaHhI KpaHHeH Heo6xo.llHMOCThIO, O.I(HaKO HH'ITO He M02KeT orrpaB.n;aTh rrOJIHOe OTCYTCTBHe 6IOlOKeTHbIX aCCHfHOBaHHH. 5.17 :3TH llCKJIIOqeHH5I crroco6cTByroT rrepepacxo.n:y Cpe,lJ;CTB Ha 60nee cHCTeMaTH"IeCKoii OCHOBe. 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O.n;HaKO, KaK OTMeqaeTC5I B fJIaBe IV, eCJIH He C'IHTaTh HeKOTopbIX OC06bIX cnyqaeB, KOf.n;a HCKJIIO'IeHHe 060CHOBaHO XapaKTepOM pacxo.n;OB, nHMHT Cpe.n;CTII, BhI,neID!eMhIX Ha orrpe.n;eJIeHHYIO KaTeropHIO pacxo.n;OB, .n;OJI2KeH .sIBJI.sITbC5I pa3pemeHHe:'.1:, HMeIOlIUIM CHJIY 3aKOHa, KOTOPbIH He M02KeT 6hITh npeBbIWeH, eCJIH He rrepeCMOTpeHO CaMO pa3pemeHHe. 5.18 CTpeMJIeHHe o6eCrreqHTh cTporoe co6nIO.n;eHHe ::lTOrO OCHOBHoro nOn02KeHH5I 6IO.I(2KeTHOrC) 3aKOHo.n;aTeJIhCTBa 3aCTaBHJIO HeKOTopble CTPaHbI (HarrpHMep, PaHUHIO H CllIA) BBeCTH yronoBHble HaKa3aHH.sI, .n;OCTaTO"IHO cTporne .I(JI.sI Toro, 'IT06bI npe.n;OTBpaTIlTh CJIy'IaH Hapym(~HHH. 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O.n;HaKO Ha 3TOH CTa.n;HH cPYHICQHH oueHKH olO,ll;)KeTa He BbmOJIHHIOTCH CKOJIbKO-HHoy.n;b CHCTeMaTHqeCKH, .n;a H CaMa KOHI.l;e:rn:r;HH nOKa en:r;e He npH)KlfJIaCb B PaMKax npaBHTeJIbCTBa. II03TOMY B HaCTOHn:r;eM pa3.n;eJIe npe.n;npHHHMaeTCH nonbITKa CyMMHpOBaTb HaHOOJIee Ba)KHble MOMeHTbI npoue.n;yp oueHKH olO,ll;)KeTa H acneKTbI .n;eHTeJIbHOCTH yqpe)l{,D;eHHH, OTBeqaIOn:r;HX 3a 3TY oueHKY, Ha OCHOBe Me~apo.n;Horo OITbITa. 6.23 KaK IIPOBOJ{HTCJl Ol.(eHKa 6IOlOKeTa? OueHKH npOBO,ll;.sITCH nepHo.n;HqeCKH BO BpeM.sI HCnOJIHeHHH HJIH :lKe no ero OKOHliaHHH. He Bce BH.n;bI .n;eHTeJIbHOCTH npaBHTeJIbCTBa HeOoXO,ll;HMO peryJI.sIpHO oueHHBaTb. B HeKOTopbIX CJIyqaHx CTOHMOCTb CaMOH oueHKH MO:lKeT OKa3aTbCH BbIIIIe, qeM npOH3Be.n;eHHa.sI elO nOJIb3a. OueHKa, KaK MHHHMyM, .n;OJDKHa npOaHaJIH3HpOBaTh cPHHaHCOBOe H MaTepHaJIbHOe HcnOJIHeHHe nporpaMM, .n;aTb OO'bHCHeHHe TOMY, K KaKHM H3MeHeHH.sIM B BbmOJIHeHHH nOCTaBJIeHHbIX 3a.n;aq MOryT npHBeCTH Te HJIH HHbIe OTKJIOHeHHH, peKOMeHAOBaTb HeOoXO,ll;HMbIe H3MeHeHHH. 6.24 OueHKH B 3HaliHTeJIbHOH CTeneHH OCHOBbIBaIOTCH Ha MeTo.n;OJIOrnHX, npHHHThIX B oon:r;eCTBeHHbIX HaYKaX (CM. BCTaBKY 6.3). I1cnOJIb30BaHHe MeTo.n;OJIOrnH n03BOJIHJIO BBecrn OOJIee BbICOKHe H oOJIee 3cPcPeKTHBHble CTaH,ll;apThI, KOTopble OOJIerliHJIH onpe.n;eJIeHHe HeOJIarOnpHHTHbIx HJIH He:lKeJIaTeJI:bHbIX B03.n;eHcTBHH H OTKJIOHeHHH Me:lK,ll;Y TeMH 3a.n;aqaMH, KOTopbIe ObillH nOCTaBJIeHbI, H .n;eHcTBHTeJIbHblM nOJIO:lKeHHeM .n;eJI. O.n;HaKo, qeTKOCTb no.n;oopa nOKa3aTeJIeH .n;eHTeJIbHOCTH, B KOHeqHOM HTore, onpe.n;eJIHeT 3cPcPeKTHBHoCTb oueHKH. B CTpaHax, HMelOIIJ;HX .n;aBHHe TPI OTBeqaTb 3a Ol.(eHIry? OTJIHqHTeJIbHOH qepTOH Me)l{,llYHapO,ll;HOro OITbITa HBJIHeTC.sI TO, qTO OOJIbnrnHCTBO CTpaH He nOJIaraeTCH Ha KaKOH-JIHOO O.n;HH opraH ,ll;JIH npOBe.n;eHH.sI oueHKH, a HCnOJIb3yeT ueJIYlO CHCTeMY, COCTOHn:r;yIO H3 OOJIbIIIOrO liHCJIa pa3JIHqHbIX opraHOB: OpraHbI OTBeqalOIIJ;He 3a BHeIIIHHH ay.n;HT; opraHbI, npOBO,ll;.sIn:r;He BHYTpeHHHH ay.n;HT; opraHbI OIO,ll;)KeTHOrO ITJIaHHpOBaHHH; H nepHo.n;HqeCKH no KOHTpaKTY - qaCTHbIe OpraHH3an;HH, BKJIlOqa.sI YHHBepCHTeThI H HCCJIe.n;OBaTeJIbCKHe HHCTHTYTbl. 6.26 IIocJIe nepHo.n;a 3KcnepHMeHToB MHorne CTpaHbI CTpeMHTCH paCIIIlIp.sITh ccPepy KOHTpOJIbHbIX H ay,lJ;HTOpCKHX cPYHKUHH BbIcnrnx opraHoB ay.n;HTa nyTeM .n;ooaBJIeHHH cro.n;a oOH3aHHocTeH no npoBe.n;eHHIO oueHKH. B OOJIbIIIlIHCTBe CTpaH 3TO YBeJIHqeHHe cneKTpa I - 113 - 06.sI3aHHOCTeH OtPOpMJIeHO oqnm;HaJIbHbIMH 3aKOHO,n;aTeJIbHbIMH aKTaM#. 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Ta6JIHua 7.1 rrOK83:bmaeT, 'tITO cpe,I(ID:UI IIJIOma,D;:b TeppHTopHH PaHOHOB 60JIee HJIH MeHee COOTBeTCTByeT 3THM rrOKa3aTeJIJlM, 3a HCKJIIO'tJ:eHHeM o6naCTeH: C O~IeHb HH3KOH IIJIOTHOCThIO HaCeneHHJI. 3TOT KpHTepHH HMeeT HaMHOrO MeHbmee 3Ha'tJ:eHHe ,n;IDI o6nacTHoro YPOBHJI, Ha KOTOPOM MeHbme rroTpe6HOCT:b B rrpJlM:bIX KOHTaKTax C HaceneHHeM. ;v O,IXEIaKO. B lIO;ll'llmemm 06n:aCTH MOJiteT HaXOIIll'I1>ClI TaKOe KOJlH'leCTBO eP.HHHD; HKlB:ecrollIIl;ero YPOBBll. KOTopoe npeBlioIIIIaeT PaJlHOBallhHYIO "HOPMY KOBTpOJIll" (T.e. TaKOe KOJlH'lecrBO nO.lt'lHHemttdX eP.HHHD;. BlioIIIIe KOTOpOro 3 OpraHlI3~Wl ClIIDII:aeTC.I1.) • - 120 - Ta6J1Hua 7.1: PaaMephI B CTPYKTypa 06JIaCTHhiX oprmoB rocY.llapCTBeHHoro ynpaBJIeHBSI OBJ1ACTb ThIC. Hace.n. IIJIOTHOCTb KOJI-BO JJ;pyme JJ;pyme TeppIIT. Hace.neHHe xr B TIdC. Hace.neHHl!. KOJl-BO roPO.ll.OB roPO.ll.CK. B p.m:OHOB p.m:OHOB 1994 r. HaKM' p.m:OHOB THlIa CeJIbCK. KM' MeCTH. Bcero rIO Ka3axCTaB)' 2,724.9 16,942.4 6.2 220 83 204- 2,496 12.4 77.0 1. AKMommcKaJi: 92.0 869.6 9.5 12 6 14 151 7.7 72.5 2. AKTI06mICKaJi: 300.6 760.2 2.5 16 7 3 150 18.8 47.5 3. A..'IMll-A THHCKaJi: 72.7 962.9 13.2 11 4 9 133 6.6 87.5 4. ATldpaYCKaJi: 118.6 457.7 3.9 8 15 57 14.8 57.2 5. BOCTo'IHO-K.a3axCTaBCKaJi: 97.5 961.0 9.9 12 6 19 102 8.1 80.1 6. iKaM6WICKaJi: 144.3 1,052.0 7.3 10 4 13 142 14.4 105.2 7. iKe3Ka3rl1BCKaJi: 312.6 493.4 1.6 7 4 22 65 44.7 70.5 8. 3ana.D;HO-Ka3axCTaBCKaJi: 151.3 674.3 4.5 16 2 4 164 9.5 42.1 9. KaparaB.ll.HHcKaJi: 115.4 1,305.5 11.3 9 6 17 106 12.8 145.1 10. KSWI-OP.ll.HHCKaJi: 220.0 606.3 2.8 8 3 11 97 27.5 75.8 11. KomeTaycKaJi: 78.2 674.9 8.6 16 4 9 194 4.9 42.2 12. KoCTa:aaHCKaJi: 113.9 1,082.5 9.5 14 4 13 205 8.1 77.3 13. Ma:amCTayCKaJi: 165.6 338.5 2.0 4 3 10 19 41.4 84.6 14. llaBlIO.ll.llPCKaJi: 124.8 965.9 7.7 12 3 8 164 10.4 80.5 15. CeBepHo-KasaxCTaBCKaJi: 45.0 620.6 13.8 12 4 149 3.8 51.7 16. CeMmIa.lIaTmIcKaJi: 185.8 839.2 4.5 15 3 13 149 12.4 55.9 17. TaJ:I.lI.Id-KypraBcKaJi: 118.5 737.9 6.2 12 6 9 136 9.9 61.5 18. Typr.m:cKaJi: 111.8 313.2 2.8 10 3 144 11.2 31.3 19. IOlKHO-K.a3axCTaBCKaJi: 117.3 1,969.2 16.8 16 8 11 168 7.3 123.1 r. AllMaThI 33.0 1,185.4 35.9 8 1 2 r. JIemmcK 6.0 71.6 11.9 HCTO'IHHK: CTaTHCTlAeCmH elKero.ll.mIK Ka3axCTaBa, 1993 'j - 121 - HHCTHTYUHOHaJIhHCUI CTpYKTYPa.1!. 7.11 oPMa..JThHO, rocy,napCTBeHHOe TepplITOpHaJlbHOe ynpaBJIeoe ocym;eCTBJUIeTCX )J;BYMJI rocy,napCTBemn.IMH opra:s:aMH: COBem;aTeJIbHbIM - M8CJIHX8TOM HJIH MeCTHhIM COBeTOM, H HCnOJIOTeJIbHbIM - PYKoBO,I(HTeJIeM a,rI;MHOCTPaIUlH (rJIaB8 8,!{MHHHCTPaIQfH HJIH aKHM). MaCJIHxaTbI 7.12 Pom. MaCJIHXaTOB Ha npaKTHKe XBJUIeTCX B JIYlIIIIeM C.JIY'iae BcnoMOraTeJIbHoH. XOTX cym;eCTByIOm;ee 3aKOHo,naTeJIbCTBO npe,nOCTaBJUIeT HM ,nOBOm.HO IillIPOKHH cneKTp nOJIHOMO'lHH~, npaKTH'ieCKH, 00 He HMeIOT CaMOCTOXTeJIbHOH cq,epbI ,neXTem.HOCTH, OT,neJIblIOH OT rocy,napCTBa. 0 0 ,nOJDKHbI BbmOJIHXTb nepe,namn.Ie HM q,ymrn;HH B npe,neJIax, YCTa:s:aBJIHBaeMblX opra:s:aMH BJIacrn pecny6JIHKa:s:CKoro ypOBHX. B !3TOM KOHTeKCTe pOJIb MaCJIHXaTOB COCTOHT B TOM, lIT06bI co,neHCTBOBaTb a,n;aIITaIUlH pemeOH, npBHXTblX Ha 06m;erocy,napCTBeHHOM ypOBHe, K YCJIOBHXM CBoeH IOPHC,I(HKIlHH. O,I(HHM H3 npBMepOB MoxeT CJIy)KHTh 6IO,lOKeT IOPHC,nHKIlHH. BIO)J;)KeT ,nOJDKeH 6bITh 0,n06peH MaCJIHXaTOM, HO, B TO xe BpeMX, OH OCTaeTCX qaCThIO rocy,napCTBeHHOrO 6IOJUKeTa H, B pe3YJIbTaTe !3TOrO, nOlITH nOJIHOCThIO onpe,neJUIeTCX nOJIOXeHRXMH, HOPMaMH B palMepaMH 6IO)J;)KeTHblX aCCHrHOBa:s:HH, pememfX 0 KOTOPblX npBOMaIOTCX B n;eHTpe. C yqeToM !3TOrO, npe,nCTaBJUIeTCX, lITO MaCJIHXaThI He HrpaIOT CKOJIhKO-06y.D;b 3Ha'lHTeJIbHOH POJIH, a HX nOJIHOMOt{HX no 0,n06peHHIO Hocn tmCTO q,OPMa..JThHbm XapaKTep (CM. BCTaBKY 7.2). Kopo'tJe rOBOpx, cym;ecTBOBa:s:He MeCTHbIX COBeTOB Ha cero)J;HXIIIHeM !3Tane BhII'JIX,I(HT CKopee KaK nepe)KIITOK npOII1JIbIX COBeToB, He:lKeJIH KaK ,neiiCTBemn.m !3JIeMeHT yqaCTHX HaCeJIeO.sI B pemeOH MeCTHblX 3a,n;a'tJ. 7.13 MaCJIHXaTbI MOrJIH 6b1 HaRTH ,u;JUI ce6x HOByro pom. B npon;ecce C03,na:s:HX MeCTHblX opra:s:OB ynpaBJIeOX, 06 !3TOM nO:H,u;eT pe'tlb oxe, B pa3,neJIe D. ~ nOllBOMO'IRII C'praBOB TeppHTOpRaJILHOro ynpaBJIeImlllIPeltCTaBJIlIlOT C lOPHlIWIeCKoli TO'lICB 3peimli OlIPClteJIeBHYlO JIYTaJIHI:G'. Olm OlIPe,neJI1!lO':tCll JUYMX 3axOHO,llaTe.m.m.IMH 6JIOKaMH: 3axOKOM 0 MCCTKOM caMoynpaBllemm OT 15.12.1991 (c HlMeKeHHllMH H ltOIIOJIHellIDlMH Ii mBape 1992 K .aIIpeJIe 1993) H YKa:lOM, HMCIOm.eM CIl1IY 3aXOKa, 0 MeCTHhlX npe,nCTamrrem.Kl>IX K laKOHo:n:aTe:JIl,lWX OPraHax OT 10.12.1993, KOTOphIi B OlIPel{eJIeHHOH CTCIICIm 3aMeWleT nOJIolitCimli npc.n;LI'.tlYIll.cro 3axOHa, q,OPMaJILHO, OllBaKO, lIPH :!!TOM era He OTMeRlDl. SOJIee TOro, HeKOTOphIe IIOJIOllteHHll KaK O.u;Horo. Tax H ,npyroro 3aKOHO,llaTem.Kl>IX axTOB npOTHBOpe'laT BOBOIi KOHCTIl:T)'nIIH. B '1aCTKOCTK, :!!TO OTHOCHTCll K Cr.60 You OT 10.12.1993, KOTOpalt,llaeT IlapJIaMeBTY nOllHOMO'lHll OTMCHli'I'l> pcmeHHll MCCTHhlX MaCJIHXaTOB. ::ITo nOllHOMO'IHC HMeJIO lIPaso Ha cymeCTBOBaHHe B COBeTCKOH CKCTeMe, me MeCT:!I:bIC Co:sen.l6WJI11 COCTaBHOii: '1aCTblO 33KOKO,llaTeJIbHOH SeTBH lIJIaCTK (eM. TeKCTOB}'lO PaMKY 8.1); o.u;aaxo. 3TOro He MOllteT 6hlTh npH ymnapHoH q,OPMC OpraHlI3aIl;1!lI rocy;o,apCTBa, KOma Olm lIPHH3.BIlelitaT K HCnOJIHHTcm.HoH SeTSH H, TaxHM 06Pa30M" 1I0)l'lKllllIOTCli BI>IllleCTOlllI:(HM HCIIOJIHHTeJIbHloIM, a Be 3aKOHO,llaTem.HloIM OPraHaM. ~ Oq,HIIKaJn.a:we, nOllHOMO_ MaCJIHXaTOB onpe,neJUlIOTCg ltBYMJ'I Pa3JIlI'lHhIMH ,nOx:yMeHTaMH. KOHCl'H'I'YnHlI,llaeT HM CJIelU'lO.lIUle npepOraTHBhI: (i) 0,n06pelme B npe:n:e.n:ax csoeH IOplfCll'.llKIIHH MaROS Pa3SHTHH, COD;HaJn.HO-3KOHOMH'leCKHX nporpaMM, OT'IeTOS 0 COCTaBJIemm If l'IcnOJIHeHl!ll oIO;IO!!:eTa; (ii) peIIlel!llC - B lIPe,ne.nax HX KOMlIeTeBItKH sonpOCOs lOPHC,nKE:QHH TeppHTOpHaJn.Kl>IX e,rounm:; (iii) 3acJI)'llIHl!aHHe OT'leTOS mas a,nMHI!lICTpaIl;lfil; (iv) pcmCHHe BOnpOCOS cBOeil C06CTBeHBOH SHYTPeHHeil CTpyE:ryphI; (v) OTBeTCTBeBHOCTh 3a lamHTY 3aKOBHLlX HHTcpeCOs rpalltll;BH H npose,neBllc 06merocy;o,apCTseHHoH nOJIHTHBl!. 3TH npeporaTHBhI pa3sHTId ,llaJIee II YKalC, HMeIOmeM CIl1IY 3a1COHa. OT 10.12.1993 r. CT3ThH 40 H 41 :nora YKala npe,l(YCMaTPHBaIOT onpelle.;lcHHoe KOJIH'leC'TBO orp:mH'IeBHLlX nOllHoMo'illii B TaKHX c4>epax. x:ax ropo.u;cKOe IIlIaI!lIpOBaHHe, o6meCTscBHLlX IIOPBJIOK, rocy;n:apcTseHHa:i 6e30IJaCHOCTh, CaHHTapBO-rHI'IIeHH'leCKHH lC.oHTpom., npoTHBOnOlitapHalt 6e30nacBoCTh If T .,n. Ilpll :nOM CJIe,nyeT OTMe11lT:&, 'ITO BLI60pB:hle 'lJIeHhI Macnmcara mIJIlIIOTCg TaKlite 'lJIeHaMH m.x6oplloil Kon,nerl!ll ,nng Ha3l1a'leHHll 'lJIeHOs CeHaTa. - 122 - CTpYKTYPa MeCTHbIX OpraHOB rocy.napCTBeHHOrO ynpaBJIeHIDI 7.14 MeCTH'LIe opra.m.I rocy.n;apCTBeHHoro ynpaBJIeml.SI B03rJIaBJUIIOTCSI rJIaBOH a,n;MHHHCTP3.IUlH - rrpe.n;cTaBHTeJleM IIpe3H,IJ;eHTa H IIpaBHTe.lI'bCTBa. OH SIBJUIeTCSI rJIaBHDIM: ,n;oBepeHHDIM: JIHIJ;OM rocy.n;apCTBeHHoH BJIaCTH B npe.n;eJlax cBoeH IOPHC,Il;HKIUlH (CM. TeKCTOBYIO PaMKY 7.2.). B ocym;eCTBJIeHHH ero 0H.I(), TaK H CTpYKTYPHbIe OT.n;eJILI (HanpHMep, TeppHTOpHa.JThHbIH KOMHTeT npHBaTH3aIJ;HH). 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OHa BKJIlOQaeT B ce6.II CJIe.nyroruee: (i) o(}JIaCTHOH amrapaT (nO.n;06Hbm annapaTy Ka6HHeTa MHHHCTpOB), no.n;pa3.n;eJI.lIlOIUHHC.II Ha TpH ceKTopa: (a) 06ruee ynpaBJIeHHe H KOHTPOJIh; (b) COUHaJIhHa.II c4>epa H palBHTHe TeppHTopHII; (c) OpraHH3aIJ;H.II H KOHTPOJIh 3a .n;e.IITeJIhHOcThro HHJKeCTO.IIIUHX ypoBHeH; ~ HCKlllO'IeHileM II] 3TOro npaBFlJIa llBIDllOTC.It: TepPHTOp:aaJIbHhIe ynpaBlICHII.It: CPRRaHCOB. ORR HaxOAllTCJl B a.n;MHBlfCTpaTHBHOM nO,!{'mIIeBRH rnaBbI TepPHTOp:aam.HOil a.n;MHBlfCTpamm. COlCpllHJ!.ll npH 3TOM, o~o, Bee OCTaJIbHhIC xapu:rep:aCTHKH C1'PYlITYPBOro OT;!(e.JIa. - 124- (ii) OTpaCJIeBhle OT,l(eJIhI, oCYmeCTBJlSIIOIUHe cOTPY,IUiHtIeCTBo C pecrry6JIHKaHCKHMH MHHHCTepCTBaMH. B 06JIaCTHX HapacTaeT CTpeMJIeHHe OT.n;eJUITb "npOHsBO,nCTBeHHl>le" OT,neJIbl (npoMbIIIL'leHHOCTb, TeJIeKOMMYHHKaI(HH, CeJIbCKOe XOS.H::HCTBO H T ..n;.) OT ,npyrHX OT.n;eJIOB H nepeBO,nHTb HX Ha "xoSpaC'tleTHYJO" OCHOBY. O,nHaKO, B 9THX "xoSpaCtIeTHblX" OT.n;eJIax no npeJKHeMY ,neilcTByroT 06IUerocy.n;apCTBeHHl>Ie HOPMbI tPOPMHPOBaHIDI lllTaTOB (CM. Ta6JIHrry 7.2). 7.18 "C06CTBeHHl>Ie" a,nMHHHCTPaTHBHble OpraHbl 60JIee HHSKoro yrrpaBJIeH'leCKorO ypOBIDI HMelOT aHaJIOrH'tlHyro CTPYKTYPY sa HCKJIIO'tleHHeM Toro, 'iTO KOJIH'tleCTBO "c06CTBeHHl>lX" OT,neJIOB HaMHOrO MeHbllIe. OTpaCJIH, BXO,nsIIUHe B KOMlleTeHI.lH1O "c06CTBeHHl>lX" OT,neJIOB 06JIaCTHOrO YPOBIDI, YPOBHeM HlUKe MOryT KOHTpOJIHpOBaTbCX "CTPYKTYPHbIMH" OT,neJIaMH, npH 9TOM HX ,neXTeJIbHOCTb 6y,neT OCYmeCTBJIXTbCX CKopee MeCTHblMH OT,neJIeHHXMH C06CTBeHHO 06JIaCTHblX OT,neJIOB, HeJKeJIH OT.n;eJIaMH pailoHHoro ypOBIDI. - 125 - Ta6JIuua 7.2: CTPYKTypa nepCOHaJIa 06JIaCTHbIX OpraHOB rocYJlapCTBeHHoro ynpaBJIeHWI (Ha OCHOBe WTaTHoro paCmlCaHWI) CaMO- BT.'II. cPHHaBC. HOTapIl- ceKTopa MacJIHXaT AII:H:M II 3l1MbI aJIJ>m.Ie ~yme HTOro Bcero 3apIlJI. 3l1MbI 3l1MbI KOHTOPbI ceKTopa 3apILlI. Bcero no Ka3axCTaHj' 1,555 156 1,635 18,931 100 823 20,292 1,784 42,898 AKMOJIHHCKaJI 92 8 75 914 5 41 1,283 27 2,312 AKno6HElcKaJI 117 8 85 1,065 5 28 1,095 59 2,317 AiIMaTHBcKaJI 77 8 85 1,048 5 29 959 42 2,147 ATbIpaycxaa 47 7 60 551 4 26 647 29 1,298 B. Ka3axCTaBCKll.!l 92 8 80 997 5 45 1,518 48 2,656 .iKaM6LIJ1:cKaJI 72 7 85 1,204 5 37 1,209 20 2,530 .iKe3Ka3ra:aCKall 57 7 70 702 5 41 834 1,618 3. KUaxCTaBCKll.ll 92 8 80 1.006 5 34 1,216 23 2,338 KaParaB,lIHECKlI.lI 77 7 85 1,173 5 68 1,499 76 2,845 K3LIJ1:-0P;rQmCK.a.JI 57 7 70 662 5 18 812 23 1,579 KoxmeTaYCKaJI 102 8 80 1,187 5 42 851 135 2,266 KoCTa.Ha.BCKlUl 92 8 85 1,443 5 48 1,204 568 3,313 MaHmCTaycKlUl 37 7 50 412 4 16 504 10 987 naBJlO~pCIWl 77 7 85 1,268 5 47 1,230 24 2,619 C. Ka3aXCTaBCKali 82 8 70 782 5 26 825 25 1,715 CeMHIIan:anmCKal! 92 8 80 998 5 41 1,061 34 2,186 Ta.JImoIKopra:acKali 92 8 75 987 5 34 680 123 1,878 TYPraHCKlUi 67 7 70 653 4 17 462 319 1,515 10. Ka3axCTaBCIWl 122 8 85 1,507 5 60 1,453 49 3,107 AiIManu 7 7 150 330 6 122 872 100 1,465 neHHElCK 5 5 30 42 2 3 78 50 207 HCTO'IHHX: nOCT3HOBJleHHe 1371 Ka6JmeT8 MHHElCTpOB OT 5 Ael\a6pSl 1994 r. (WaBooxpaBeHHe II 06p830BaBHe He yqHTbIB8lOTCJI). - 126 - C. ~HHaHCbI TeppHTOpHanbHhIX a.ztMHHHCTpagHi'i:. TeppHTOpHanhHaR CTpyKTypa 61O.n>ICeTa. 7.19 KaK yxe OTMeqaJIOCb B rJIaBe I, cnyx6b1 06m;ecTBemmro nOJIb30BamHI pacrrpe.n;eIDIlOTCH no Pa3JIHtlH:bIM YPOBWIM yrrpaBJIeHHH He B COOTBeTCTBHH C BbmOJIH.sIeMbIMH IIMH Q>ymaJ;IDIMH (T.e. B COOTBeTCTBHH C Q>HHaHCHpyeMbIM BH.n;OM .n;eHTeJIbHOCTH), aHa OCHOBe OpraHH3~OHHoro npH~Hna: KOHKpeTlIble "61O)J;.IKeTlIbIe OpraHH3aII;HH" BKJIlOqaIOTCH B 61O)J;.IKeTbI Toro HJIH HHoro YPOBWI C yqeToM TeppHTopHH, Ha KOTOPOH OHH OKasblBaIOT CBOH yc.rryrnl'. B rJIaBe III OIIHCbIBaeTCH, KaKHM 06pasOM 9TO OpraHH3aII;HOHHOe npaBHJIO OTpa.IKaeTCH Ha nOCTpoeHHH 61O)J;.IKeTa - nocpe.n;CTBOM npe.n;OCTaBJIeHlHl CMeT. 7.20 TeppHTOpHaJIbHa.sI CTpYKTYPa rocy.u;apcTBeHHoro 61O)J;.IKeTa OTpa.IKaeT CTpYKTYPY CaMoro rocy.n;apcTBa. rocy.n;apCTBeHlIbIH 61O)J;.IKeT BKJIlOqaeT .n;Be COCTaBJI.sIlOm;He: pecrry6JIHKaHCKHH 61O)J;.IKeT H TeppHTOpHaJILlIbIH. IIepBbIH co6HpaeT BOe)J;HHO CMeThI rrpe.u;npIDITHH H OpraHH3aII;HH, nO.I{'mWlIOm;HXCH pecrry6JIHKaHCKOMY YPOBHlO, TOr.n;a KaK nOCJIe,IJ;HHH c06HpaeT no 06JIaCTHM CMeTbI npe.u;rrpIDITHH H OpraHH3an;HH, nO.u;qHWlIOm;HXCH TeppHTOpHaJIblIblM a,IJ;MHHHCTpan;IDIM. 7.21 IIpe.u;rroJIaraeTcH, lITO Bce CnyX6bI 06m;eCTBeHHOrO n0JIb30BamHI .n;OJI.lKH.:bI Q>HHaHCHpOBaTbcH O.n;HHaKOBO, B OCHOBHOM, 3a CqeT 06m;erocy.u;apCTBeHHLIX cpe.n;cTB, HCXO)J;.sI H3 06m;erocy.u;apCTBeHlIbIX CTaH)J;apTOB onpe.n;eJIeHlHl nOTpe6HOCTeH - HOPM pacxo.n;OB. 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CaMH rpymm TU:;>Ke speMli OT speMeHH H3MeHJllOTCJI B COOTBeTCTBHH C pemellll.llMH npamrreJILCTBa. - 132 - Ta6JIqa 7.6: OCHoBBble rpynnhl HaceneHIDl, lIMelOQJHe npaoo Ha OnJIaTY YCJIYf' no JIhrOTBbIM TapucltaM rpyrma KOMMYHllJlI>HhI H'lecTBO ra3, :lKH,ll,Koe B TpascnopT Yc.r.ry:rn TBCpnoe TOIIJIHBO BeTepllHhI BOB ,/ ,/ ,/ ,/ BnoBLI norn6IlIHX B BOB ,/ ,/ ,/ X KaBanepLI OpneHOB H MeltalIeil: ,/ ,/ ,/ (TOJILKO ra3) X HHBaJJ::R;Iij)Il ,/ ,/ ,/ ,/ ManoHM}'I!(He rplDK,lUlBe ,/ X ,/ (TOJILlI:O ra3) X JIHI(a, nOCTPanaBIlIBe B pe3YJILTaTe tIepHo6LIJThCKOH aaapBB X ,/ ,/ (TOJILKO XH,llKoe) X MHoroneTHhIe MaTepH X ,/ ,/ (ICpOMe yrJIJl:) ,/ Pa60TlmKH OTroImOro :lKHBOTHOBOnCTBa X ,/ ,/ (ICpOMe ra3a) X 11 HeKoTopLIe KaTeroplm HHBaJIH.1l;OB HMelOT npaso JIHlUl> Ha Onpene.neHHLIe JILron.x. HCTO'UlHK: rocynapCTBelllD">Ii. 61O,!OKeT C BHeceHHLIMH H3MeHellIi.!lMH, 11 HIOJIJI: 1995 r. 7.27 A,nMmnt:C'rpa:rJ;HH o6J1acTHoro H paiIoHHoro YPOBWI TaIOKe npOBO,IUIT p3.3JIHqH},Ie npOrpaMMbI B ,o;pymx HanpaBJIeHH5IX, B TOM lIHCJle: (i) 060pOHa. PaiiOHLI BhIDJIatIHBaIOT Cy6CH,D;HH npe,o;npH.SITIDIM, o6eCnellHBaIOIIJ;HM OTOTIJleHHe, Bo,o;ocHa6xeHHe H TeJIec:1.>offilYIO CBH3h,D;JISI BOeHROcJIY:>KaIIJ:HX ,o;eilCTBHTemHoil CnyX6hI H BOeHROCJIY:>KaIIJ:HX B OTCTaBKe (a TaIOKe HX ceMeil), TaK KaK 3TH yCJIym npe,o;OCTaBJIHIOTCH no JlhrOTHLIM :u;eHaMlY • (i) 06II(eCTBeHHhIii IIOP.Jl,l(OK H 6e30II8cHOCTb. B ~OnOJIHeHHe K aCCBTHOBaHHHM H3 pecny6J1HKaHCKOrO 6IO,o;:lKeTa, o6J1acTHoil 6IO,o;:lKeT npe,o;ycMa'rpHBaeT c:1.>HHaHCHpOBaHHe noxapHoil OXPaHLI H MHJIHD;HHU!. (iii) JKHJIHII{Ho-KOMMYHaJIbHMe YCJIyTH. 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BH,llbI HaJIOroB, nOCTYIL'IeBIDl OT KOTOPbIX oonaCTh .lleJIlIT C paiiOHaMH. OonaCTh onpe.lle.n:aeT .llomo IIJIaHHpYeMbIX HaJIOroBbIX nocTyIIJIeHKii:, KOTOPYIO paiiOH MoxeT OCTUllTh B CBOeM pacnoPJDKemm. Y BH,llbI HaJIOroB, nOCTyIL"leBIDl OT KOTOPbIX pecnyOJIH.Ka ;ll.eJIlIT C OOJmCTJiMH. lIo Ka:lK,llOMY llBJU' HaJIora pecny6Jmu onpe.llerurr npOD,eHT O'I"'IHCJIeHKii:;II.JUI U:lK,llOH 06naCTH (CM. TaoJmD,y 7.10). :!' BKlIIO'I8lI IIOCTyIL"leBIDl OT HaJIOroll Ha oeH3HH H ,llH3eJIhHOe TOIIJmBO. 'E ;0;0 WOJlll 1995 r. 10 npOD,eHTOll IIoCTyIllleHHii OT 3eMem.Horo ElaJIora IIIJIH B pecny6JIHKaHcKHii: 61O,ll,lKeT. HCTO'IHHK: MmmCTepCTBO q,HHaHCOB (HoMeHKJIaTYPa MB). 7.29 HH pa3Mepy npo:u;eHTHhIX O~CJIeHHH, HH pecrry6JIHKaHCKHe ;o;OTaII;HH He OKa3hm3lOT, ex ante, BJIlIXHHX Ha 06m;HH 06'heM 61O,lOKeTHhIX aCCHrHOBa:HHH, npe,Il;Ha3Haq3lOm;HXCX ,II;JIX KIDK.,ll;OH TeppHTOpHaJIhHOH e;O;HHHD;bI. 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BOT 3TH meCT:b BH.D;OB HanorOB (H COOTBeTCTByIOIII;He qaCTH YKa3a): (i) :3eMe:II.bH:b:rH HanOI' - qaCTh VUill (ii) Hanor Ha TpaHCnOpTmIe cpe,n;cTBa (HJlH HanOI' aBTOHHCneKIJ;HH) - qaCT:b VOl (iii) Hanor Ha HMYID:eCTBO IOpH.D;.HqeCKHX H Q>H3H'leCKHX JlHn; - qaCT:b IX (iv) C60p 3a pernCTpau;H1O Q>H3H'leCKHX JlHU., 3aHHMaIDIII;HXCX npe.n:rrPHHHMaTeJl:bCKOH ,IJ;eXTe:Jl:bHOCTblO, H IOp~eCKHX JlHn; (v) C60P:hI 3a rrpaBO 3aHXTHX OT,n;eJlbH:bIMH BH.n;aMH ,n;eXTeJl:bHOCTH (vi) C60p C aYKIJ;HOHH:bIX rrpo,n;a:JK. IIocJle,n;HHe 'l"PH nyHKTa He 1[BJl1[IOTCX HanoraMH B 06m;errpHH1£TOM CM:bICJle ~Toro CJlOBa H paCCMaTpHB310TCX KaK HeHaJIOrOB:bIe ,n;OXO.D;:bI. 7.34 Ha npaKTHKe pa3HHu.a MeJK,ll;y 06merocy,n;apCTBeHH:bIMH H MeCTH:bIMH HanOraMH He XBJl1[eTCX HaCTOJl:bKO cym:eCTBeHHOH, HaCKOJl:bKO MO:JKHO npe,n;nOJlO:JKHTh H3 HX Ha3BaHHH. C O.n;HOH CTOPOH:bI, XOTX u.eHTpan:bHOe rrpaBHTeJlbCTBO orrpe,n;eJl1[eT 6a3Y Hanoro06J1o:JKeHJl1[ H CTaBKH .D;1l1£ o6m;erocy,n;apCTBeHH:bIX HanorOB H XOTX OHH nOCTynaIDT B paCnOp1[:JKeHHe n;eHT:paII.bHOrO rrpaBHTeJl:bCTBa, u.eHTpan:bHOe npaBHTeJlbCTBO COrJlaCHJlOC:b OT,n;aBaTb 100 rrpOn;eH'IOB nOCTyrrJleHHH OT no,n;OXO.n;Horo Hanora MeCTH:bIM opraHaM BJlaCTH H pa3,n;eJl1[eT .!11 JJ.o BC'lj'llJIemm B CIL'Ij' YKa3a 0 BaJ'Ioroo6nolKemm 1995 r. 10% IIoCT}'IlJIemm OT 3eMeJIbHoro Hallom lWIO B pecnyoJIHKaBcKHii OIOWKeT. - 136 - Me~ TeppHTOpHam.HhlMH 61O,tOKeTaMH "peryJIHPYlOIIUIe HarrOrn": H,II.C, a.ImH3hI, HKCHpOB8.HHb1e pelITHMe IIJIBTe:JKH B3HMalOTC.SI TOJILKO B MecTax paCrrOJIO:>KeHH.SI rrpHpO,Il;HLIX peCypCOB. - 138 - Ta6J1Hua 7.8: 06I.J,J.aH CYMMa HaJIOroBbIX nOCTynJleHHii H pa3Mep HaJIOrOBblX nOCTynneHHU B paC1:feTe Ha .llymy HaceneHHSI B o6naCTSIx H r. AnMaTbl (nepecMoTpeHHblU 6IO.ll)l(eT Ha 1995 r.) HanoroBLle nOCT}'llJIeHHJI (MJIH TeRre) HanorOBble nocTynJIeHHJI Ha AYIUY HaCeJIeHWI (MJIH TeRre) 061IaCTb HacelIeHHe Hanor Ha Hanor Ha A~H3LI H,ll.C Hanor Ha Hanor Ha A~H3bl H,ll.C (TblC. 'IMOBeK) ;n:OXO.t\bI npH6LIJlb ;n:OXO.t\b1 npH6LIJlb cPH31f'1eCKHX JIlID; cPH31f'1eCKHX JIIm AKMOJIHHCKaJl 869.6 923.0 1,824.8 233.4 2,133.7 1,061 2,098 268 2,454 AKTI06HHCKaJl 760.2 1,369.1 1,654.8 326.5 1,791.3 1,801 2,177 429 2,356 An:MaTHHCKaJl 962.9 650.8 429.8 36.2 374.0 676 446 38 388 AThlpaycKaJl 457.7 1,057.1 1,159.0 1,145.7 1,126.6 2,310 2,532 2,503 2,461 BOCTO'lHO-KuaxcTaHCKaJl 961.0 1.461.3 1,115.8 573.2 1,137.1 1,521 1,161 596 1,183 .>KaM6blJICKaJl 1,052.6 549.6 487.0 334.5 480.2 522 463 318 456 .>Ke3Ka3raHCKaJl 493.4 1,327.7 616.5 41.8 616.4 2,691 1,249 85 1,249 3ana;n:Ho-Ka3axcTaHCKaJl 674.3 751.5 640.2 276.8 628.8 1,114 949 410 933 KaparaH;n:HHCKaJl 1,305.5 2,574.6 1,879.2 248.1 3,058.3 1,972 1,439 190 2,343 K3b1JI-OPAHHCKaJl 606.3 348.9 370.8 80.2 322.6 575 612 132 532 KOKlUeTaYCKaJl 674.9 546.7 442.5 229.0 720.4 810 656 339 1,067 KOCTaHaHCKaJl 1,082.5 1,780.2 3,001.8 92.1 1,569.4 1,645 2,773 85 1,450 MaHrnCTaycKaJl 338.5 1,294.1 846.3 18.1 759.1 3,823 2,500 53 2,243 llaBJIo,!{apCKaJl 965.9 2,081.9 2,154.9 970.3 1,567.5 2,155 2,231 1,005 1,623 CeBepHo-Ka3axcTaHCKaJl 620.6 578.9 271.9 330.8 536.8 933 438 533 865 CeMHnanaTHHCKaJl 839.2 574.9 494.4 114.9 1,025.7 685 589 137 1,222 T8JI;n:LI-KopraHCKaJl 737.9 336.6 173.1 8.2 205.2 456 235 11 278 TypraitcKB5I 313.2 249.3 128.0 24.5 208.1 796 409 78 664 IOJKllo-Ka3axCTaHcKaJl 1,969.2 960.5 1,878.8 1,148.6 1,478.4 488 954 583 751 An:MaTLI 1,185.4 2,983.3 5,151.9 1,571.5 6,266.3 2,517 4,346 1,326 5,286 IfToro B Cpe,!{HeM 16,870.80 22,400.0 24,721.5 7,804.4 26,005.9 1,328 1,465 463 1,541 HCTO'lHHK: ,Jl;aHHhle 0 HaCeJIeHHH: ("PernOHaJIhHbIit CTaTHCTH'IeCKHH e:lKerO,!{HHK Ka3axCTaHa, 1993 r." (1994 r., CTp. 48). Pa3Mephi HanoroBhlX nOCTYnJIeHHH: MHHHcTepcTBo cPHHaHcoB. - 139 - TaOJIHga 7.9: HaJIOI"OBble nOCTynJIeHHJI, B TOM '1HCJle B paCileTe Ha ,nymy HaCeJIeHHJI, B AlIMaTIfHcKOii OOJIaCTIf (nepeCMOTpeHHf>,it OJO}{)lCeT Ha 19951".) HMoroBLfe nOCTyruteHWI (B TbW. TeRre) HMoroBble nOCTyruteHWI B paC'IeTe Ha ~Y HacelIeHWI (B TeRre) PaROH I HacelIeHHe HMor Ha ;o;Oxo)lhl HaJJor Ha AKl.\H3Lf MC· HMor Ha ;o;OXO,lU>I HMor Ha AKl.\H3Lr HAC· eM HMoroBLIX noCTyruteHHH (39 MJlH TeHre), If,l\YlIl;HX HanpllMYID B 06J1aCTL. , HCKJlIO'Ial! nOCTynJIeHWI OT HMoros Ha 6eH3HH H ;o;H3eJILHOe TOnJIHBO, T.K. OHH He axO;o;HJIH B aKl.\H3LI B 1995 r. • HCKJlIO'Iall He60JILWOH ot5"LeM HaJJOroBbIX nOCTyruteHHH (13 MnH TeRre), H.n:YJI.tHX HanplIMYID B 06JIaCTb. HCTO'lHHK: AiIMaTHHcKoe 06naCTHoe e,IJ;epaD;HH). H, HaKOHeu, TeM 06JIaCT.SIM, ,1J;JI.SI KOTOPbIX He,IJ;OCTaTO"tJRbI nOCT)1IIJIeHH.SI OT no,u;xO,1J;Horo HaJIOra H rrpoueHTHbIe OTtfHCJIeHH.SI OT peryJIHPYlOIIUlX HaJIOroB, MHHHCTepCTBO Bbl,I.(eIDIeT ,IJ;OT3.IUIH, T.e. 6e3B03Me3,1J;HbIe rpaHTbI. B Ta6JIHue 7.10 YKa3aHbI 06JIaCTH, nOJIY"tJaIOIUHe ,IJ;OT3.IUIH. - 141 - Ta6.JIBUa 7.10: Pa3Mephl npOueHTHbIX OT'DICJIeHHii If J.J;oTayHii J.J;Jl.H 06JIaCTeii ()laHHhle nepeCMoTPeHHoro 61OJ.J;>KeTa Ha 1995 r.) Hanor Ha Cy6BeHIUUI ? A~H3 H,Il;C nO.m.3OBaHHe Harror aa 061Iacn. (%) (%) IIpHPO~ IIpH611IlI1> Ecn./BeT pecypca:M1l (%) (%) AxMommcKa.II 100 50 90.0 BeT AlcrlO6HBCKa.II 100 50 100 51.3 BeT AlIMaTHBcKa.II 100 100 100.0 ECTl> AThlpaycKl!.II 10 10 10 39.5 BeT BOCTO'lBO··Ka3axCTaHCKa.II 100 100 100.0 Ecn. )KaM6bDIC;Ka.II 100 100 100.0 Ecn. >Ke3Ka3TaHCKa.II 100 100 42.7 BeT 3an8J!;Bo-lwaxc:l'aHCKa.II 100 100 100 100.0 ECTb KaparaH,JJ;JmcKa.II 100 50 54.0 BeT K3bDI-OpwmCKaJI 100 100 100 100.0 ECTb KoxmeTaYcKa.II 100 100 100.0 ECTb KOCTaHaHCKa.ll 100 50 29.4 BeT MllHI'HCTaycKa.II 10 10 10 19.7 BeT naBJIOAaPCKa.II 20 20 20 26.2 BeT CeBepHo-lWaxcI'aHcKa.II 100 100 100.0 ECTb CeMmianaTHBcKa.ll 100 100 100.0 ECTb Tll.lIJlld- KOPraHCKa.Il 100 100 100.0 ECTb TypraHcKa.II 100 100 100.0 ECTb IOJKHo-Ka3axCTaHCKa.II 100 100 100.0 Ecn. AlIMaTbI 20 20 8.9 BeT JIeHBHcK 0 0 0.0 ECTb l1CTO'iHHK: Mmmc:repCTBO q,HBaHCOB. 7.40 fIPHHllIfII O)UlOBpeMeHHoro HCIIOJlb30BaHHX rrpOn;eHTHbIX OTtmCJIeHHH OT HaJIOrOBbIX IIocTYIIJIeHHil If ,I:(OTanHH MoxeT IIOKa3aTbCX CJIO)Kl[bJM, HO CaMa rrponema rrpOCTa. IIpe)K,I:(e Bcero, paCCMOTpHM 14ooJIaCTeH, He IIOJIY':laIOIII;HX ,I:(OJIH IIoCTYIIJIeHHil OT lIIe He06xo,IUlMOH. B 06JIacTII OCTaBJUIeTClI Mem.nmH llpou;eHT OT'mCJIeHHH, H ,n;OTaD;HH He B:bI,ll;eJUIlOTClI. 7.41 Ta6JIHu;a 7.11 nOKa3:bIBaeT 06IIl,HH 06'beM ,n;OXO,n;OB ,ll;JUI K8.X{)lOH 06JIaCTH H KaKOH npOu;eHT H3 3Toro 06'beMa 06JIaCTb nOJIytiaeT H3 KaJoK.IJ;OrO H3 HCTOlfHHKOB ,n;oxo,n;a (,n;aHHble yTOtmeHHOro 61O,ll;JKeTa 1995 1'.). 1-13 Ta6JIHD;bI BH,ll;HO, lITO ,n;eBlITh 06JIaCTeH (BKJIIO'tlax ropo,n; A.r.rMaTbI) B ,n;OTaIUIlIX He HY2K,ll;aIOTClI. a o.n;mma,rmaTH 06JIaCTlIM pecny6JIHKH ,n;OTaIUIH HYXHbI. B HeKOTophIX eJIytiaxx 06'beM ,n;OTaIUIH O'tlem. BeJIHK, B ITlITII CJIytiaxx OH COCTaBJUIeT 60JIee 50% 06IIl,ero 06'beMa ,n;OXO,ll;OB 06JIaCTH, a B ,n;BYX CJIytiaxx - ,ll;IDKe OKOJIO 70 npOu;eHTOB. TaoJIHua 7.11: nOCTynn:eHIDI MeCTHbIX OpraHOB, .ll:ona HanoroBblx nOCTynn:eHBii H .ll:OT3.UIIH (nepecMoTpeHHbIH OIO.ll:)I(eT Ha 1995 r.) 06JIacn. ilOcryIlJleRHlI JJ:OM HaJlOrOBhIX JJ:0TallHB ilOcryIlJleHIDI JJ:OM HaJlOTOBLIX JJ:OTalllI:H MeCTHhIX opraROB nocrynJIeRHli (B Tl>lc TeRre) MecTlIhIX opraROB 1I0cryIlJlemm (8 IIPOU.) (B TWC. TeHre) (B TLIC TeRre) (B lIPOJJ;eHT3X) (B npoJJ;eHT3X) AxMOJIHHexaJI 1,667,470 2,942,271 0 36.17 63.83 0.00 Alcno6HHCXlUI 2,402,592 2,195,450 0 52.25 47.75 0.00 Am.IamRCXlUI 1,65S,I78 840,000 2,797,194 31.27 15.87 52.85 ATWp3)'C1W1 2,102,721 7Q9,5S3 0 74.77 25.23 0.00 Bocro'IHo-Ka3axCTallCXlUl 2,986,171 2,826,020 742,512 45.56 43.11 11.33 )Kn(6W1exaJ1 1,316,121 1,301,700 2,091,946 27.94 27.64 44.42 )Ke3Xa3raHexaJI 2,064,489 921.633 0 69.14 30.86 0.00 3an8Jlllo-Ka3aXcra!lcXlUI 1,467,377 1,592,636 1,049,475 35.71 38.76 25.54 Kapa.raHJUlllcxaJI 4,m,093 2,791,661 0 63.12 36.88 0.00 K3hlJl.QP1n1HCIWI 703,872 823,208 3,558,303 13.84 16.19 69.97 KoxmeTaYexaJI 1,128,442 1,391,860 1,274,824 29.73 36.67 33.59 KOCTaHaliCIWI 3,711,010 1.758,143 0 67.85 32.15 0.00 MaenJcrayexaJI 2,075,152 274,308 0 88.32 11.68 0.00 IlaBJIO.1UlPCIWI 4,063,300 1.1S7.711 0 77.83 22.17 0.00 CeBepso-Ka3UCTalIcxaJI 1,226,662 1,139,520 1,135,419 35.03 32.54 32.43 CeMHllaJI!mHCXlUI 1,435,596 1,634,980 3,074,967 23.36 26.60 50.04 T~-KoPraHCXlUI 765,291 386,540 2,547,252 20.69 10.45 68.86 TyprallcxaJI 498,647 360,600 1,023,152 26.49 19.16 54.35 lO:lIcHo-Ka3axCTallcxaa 2,279,926 4,505,760 2.751,602 23.91 47.24 28.85 Am.IaTW 5.930,317 2.027,355 0 74.52 25.48 0.00 HTOro!' 44,259,088 31,580,909 22.447,~ 45.03 32.13 22.84 1 B CTpox:y "moro· BKJIIO'IeHLI IUl41PhI no r. nemmcx:y: 1 661000 Tes:re MecTB:h'IX .n;OXO;llOB. 0 - npOn;eH'I'BhIX oT'lKCJIemt:ii:, 401 254 000 Tes:re ,n;oTan;Wi H3 oIOAJl{eTa Pecnyl'lJIHICH Ka3a.xCTllB. HCTO'lBBK: MmmCTePCTBO 4IH.HaBCOB. npogeHTHble OT'IHCneHllSl OT HanoroBblx nOCTynneHHii H .ll:OT3.WIH .a;.ruI paiiOHOB. 7.42 E,ll;HHCTBeHHOH ueJIblO MHHHCTepCTBa cPHHaHCOB RBJUIeTCR 06eCne'tleHHe Pa3YMHOI'O ypOBWI cPHHaHCHPOBaHHlI ,ll;JUI 06JIaCTeH. nOCJIe 3Toro, 06JIaCTH CaMH peruaIOT BonpOChI pa3,n;eJIeHHll 3TI1X Cpe,ll;CTB Me)l(',I(y c06CTBeHHO 06JIaCTblO H nO,n;qHHeHHbIMH paHOHaMH. <1>axTH'tleCKH, 06JIacTII ,n;eJIaIOT 3TO nOlITH TaK )J{e, KaK MHHHCTepCTBO. 06JIaCTHOH ypOBem. - 143 - paCnpe,IJ;eIDIeT ,IJ;JllI Ka:>K,Il;Oro paiioHa ,IJ;OJIlO nO,IJ;OXO,IJ;HOrO HaJIOra H "tJeTblpeX peryJIHPYIOIIUix HaJIOrOB H, B cnyqae Heo6xo,IJ;HMOCTH, nO,IJ;HHMaeT HX YPOBeHI:. ,IJ;OXO,IJ;a IIOCpe,IJ;CTBOM ,IJ;OTaIIHH. 7.43 DOJIee ,IJ;eTa.JIbHO B 9TOM rrpOIl,eCCe MOJKHO pa306paTbcJI Ha npHMepe ArIMaTHHcKoH 06JIaCTH. B Ta6JIHIJ.e 7.12 nOKa3aHI:.I rrpOlJ.eIITHhIe OT"tJHCJIeHHJI OCHOBHI:.IX BH,IJ;OB HaJIOrOB (3a HCKJIIO"tJeHHeM II03xe BbI,IJ;eJIeHHOrO HaJIOra Ha 6eH3HH H ,IJ;H3eJlbHOe TOllJIHBO) Ha 1995 r. AmI HeKOTopbIX paiiOHOB, B KOTOPbIX IIJIaHHPyeTCJI ,IJ;OCTaTO"tJHI:.IH ooo,eM ,IJ;OXO,IJ;OB, 06JIaCTb YCTaHaBJIHBaeT npOlJ.eIITHhIe OT"tJHCJIeHHJI HH:iKe 100 rrpOlJ.eHTOB H He rrpe,IJ;yCMaTpHBaeT ,IJ;OTaIJ,HH. O,IJ;HaKO, rrpH nepeCMOTpe 61O,IJ;:lKeTa n03,IJ;Hee B 1995 r. OKa3aJIOCb, 'iTO ,IJ;OTaIJ,HH HY:iKHbI BceM paiiOHaM. B HeKOTOpbIX CJIY'iaJIX IIOJIOXeHHe MOrJIO 6bl 6bITb HCnpaBJIeHO nyreM nOBbImeHHJI npOlJ.eHTa HaJIOroBbIX nOCTYIIJIeHHH, OCTaIOllJ,HXCJI B paiioHe, HO BMeCTO 9Toro, rrpOlJ.eHTbI 6blJlH OCTaBJIeHbI npe:iKHHMH, a BceM paiiOHaM 6bIJIH npe,IJ;yCMOTPeHbI ,IJ;OTaIJ,HH. TaKHM 06Pa30M, HeKOTopbIe paiiOHbl TepJIIOT "tJaCTb CBOHX HaJIOrOBbIX nOCTYIIJIeHHH B nOJlb3Y o6JIacTHoro 61O,IJ;:lKeTa, B3~lMeH nOJIY'iaJI H3 06JIaCTH ,IJ;OTaIJ,HH. Ta6J'IBUa 7 . 12: Pacnpe.lleJIeHHe HaJIOrOBbIX nOCTynJIeHllii B aJIMaTHHCKoii o6J1aCTH 199sY 1IaJI0r l'Ia Han:or aa .D;OXO.I\bI .D;OXO,llhl H,Il;C ~3Y' ,nOTaIlHH cPH3H'1eCKHX rom; xopnop~ (.n;OruI B %) (.n;OruI B %) Paio#' (.n;OruI B %) (.n;0ruI B %) Ren.lHeT Bamcamc:mli: 100 100 100.0 100 Ecn. }KaM6htJICKHH 100 100 100.0 100 HeT H.mmcxmi: 100 25 47.0 100 HErr!' KacKeJ1eaCKHH 80 40 29.4 100 HeT~ Kereacxmi: 100 100 100.0 100 RCTl> KypTHl'lcKHii 100 100 100.0 100 RCTh PHM6eKCKHl'i: 100 100 100.0 100 Een. Tan:raPCKKH 100 100 100.0 100 ECTh YHI'ypcKmi: 100 100 100.0 100 ECTh lI:wmxCKaH 100 100 100.0 100 ECTh :9116eKIIIHXa3axcmli: 100 30 100.0 100 Een. r. Ka:m:a:ra:ii '1! 80 100 75.3 100 HeT4 1 B Ta6rom;e nOK213am.r oCl'Iol!l'll>Ie BII,llhl Han:OroB. 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BaCTOlIllJ,He pa3MephI npOIlem'm.tX OT'IHCJIemm 61>IlIH YCTaBOBJIeHl>I .no TOro, JtaJ{ M'H BH,llhl HaJIoroB 61>IlIH oTHeceHl>I K aBIl.B3m.IM c60paM. • B Ha'lan:e 1995 r., Kor.na YCTaBaBlIHBalIHCl> l'IOPMhI npOIlem'Hl>lX oT'IHc..'1emm, lIJIaHHpOlWIOCl>, 'ITO M'HM paiOHaM .D;OTaIlHH He nOTpe6yroTCJl; OJJ:B.axo, KOr.na nepecMaTpHlWICJl 6IOll;lKeT Ha 1995 r., nepecMaTpImaTh pa3MephI npOIlem'Hl>lX OT'lHCJlemm 6htJIO yxe n03lIHO II OKa3an:OCl>, 'ITO BceM HM HyxHl>I Jl,OTamm. HCTO'lHHK: A.n:MIITHBCKOe 06JIaCTHOe cPHBaBCOBOe ynpaBJIeHHe. 7.44 B CHJIY Toro, 'iTO ,IJ;OIDI OT"tJHCJIeHHH ,IJ;JllI paiiOHOB lJaCTO COCTaBJIJIeT 100 rrpOlJ.eHTOB, MO:iKeT CJIOJKHTbCJI Bne"tJaTJIeHHe, 'iTO 06JIaCTHOH 61O,IJ;:lKeT CaM IIO ce6e cIIoco6eH co6paTb - 144- KaKOe-TO He6oJThmoe KOJIH'IeCTBO HaJIOrOBblX .n;OXO.n;OB. O,Jl;HaKO, IIOCKOJIbKY MeXaHH3M rrpOI(eHTHblX oTtmcJIeml:H: IIpHMeHHM TOJThKO K TeM 06JIaCT.sIM, r.n;e c06HparoTC.SI HaJIOrn, 60JThmHHCTBO HaJIOrOBblX C60POB IIOcTYIIalOT H3 OTHOCHTeJThHO He6oJThmoro KOJIH'IeCTBa MecTHocTeH. CooTBeTcTBeHHo, 06JIaCTb MO;}KeT IIOJIY'IaTb 3Ha'IHTeJIbHbIe cpe.n;cTBa B cJIY'Iae, eCJIH OHa HMeeT rrpaBO Ha 'IaCTb .n;oxo.n;a O.n;HOH H3 3THX HeMHOrO'IHCJIeHHblX TeppHTopHif - H He IIOJIY'IaeT HHKaKHX HaJIOrOBblX .n;OXO.n;OB H3 .n;pyrnx e,Jl;HHHI(. B Ta6JIHI(e 7.13 IIOKasaHO paCIIpe.n;eJIeHHe .n;OXO.n;OB OT HaJIOrOBblX IIOCTYIIJIeHHH H HHblX .n;OXO.n;OB Me;}K,Jl;y C06CTBeHHO 06JIaCTHbIM 61O,Jl;;}KeTOM ArrMaTHHcKoH o6JIacTH H ee paifOHaMH. O'IeBH,Jl;HO, 'ITO 06JIaCTb IIOJIY'IaeT OTHOCHTeJIbHO He6oJThmoe KOJIH'IeCTBO IIOCTYIIJIeHHH OT HaJIOra Ha .n;OXO.n;hI rp~aH. Ho B o6JIacTb H,Jl;eT IIO'ITH IIOJIOBHHa IIOCTYIIJIeHHH OT HaJIOra Ha npH6b1JIb, OKOJIO TpeTH IIOCTYIIJIeHHH OT H,I1;C - XOT.SI B K~OM CJIy'Iae B o6JIacTb H,Jl;eT 'IaCTb .n;OXO.n;OB TOJThKO H3 Tpex paifOHOB H3 12. 06JIaCTHOH 6IO,Jl;;}KeT TaK;}Ke IIOJIY'IaeT OKOJIO .n;BYX TpeTeH o6mero 06'beMa a.KI(H3HblX C60POB, IIpe.n;CTaBJIeHHOrO B Ta6JIHI(e 7.13 (ecJIH BKJIIO'IHTb clO.n;a IIlicPPbl HaJIOroB Ha 6eH3HH H ,Jl;H3eJIbHOe TOIIJIHBO, He BKJIIO'IeHHbIe B .n;aHHbIe no rrpOI(eHTHbIM OTtmCJIeHH.SIM, npe.n;CTaBJIeHHbIe B Ta6JIHI(e 7.12). Ta6JIHua 7.13: PaCIIpeJleJleHUe IIOCTynJleHUH B AnMaTHHcKoH 06J1aCTH (JlaHHhle nepeCMOTpeHHoro 6lOJUCeTa Ha 1995 r.) OOJIacn. Pail:OHhI HTOro Hcro'lBHKB lIocryIlJIeHKi!: (TI>IC. Tes:re) % (TNC. Tes:re) % (TNC. Tes:re) % Hallor Ha ,n:OXO,llhI cpH3H'1eCKlIX lIHII; 45,474 2.02 598,996 19.29 644,470 12.03 Harror sa IIPHObIJlh 203.385 9.02 226,415 7.29 429.800 8.02 Harror sa lI.ooaBJIeHBYIO CTOHMOCTb 122,110 5.42 251,890 8.11 374.000 6.98 AKl::uoI>I!! 102,797 4.56 55.803 1.80 158.600 2.96 Harror Ha IIOJIb3OBaBHe IIPHPOll,BbIll(H pecypcaMH 0 0.00 0 0.00 0 0.00 3eMeJIbHhIii BallOr 0 0.00 61,830 1.99 61,830 1.15 Harror sa aBTOTpaHCDOpTHhIe Cpell.CTBa 0 0.00 61,400 1.98 61,400 1.15 Harror Ha HMYUleCTBO 0 0.00 73,356 2.36 73,356 1.37 focy.u.apCTBeHHhIii coop 10.000 0.44 107,300 3.46 117,300 2.19 HeSallOrOBhIe nOcryIlJIeBIDI 76,482 3.39 146,545 4.72 223,027 4.16 npo'IHe COOPI>I 8,274 0.37 117,109 3.77 125,383 2.34 ;o;opo:lKHhIii: 4>oBll. 203,935 9.05 56,065 1.81 260,000 4.85 oBll. oxpaHhI IIPHPO,llhI 0 0.00 32,512 1.05 32,512 0.61 ;o;OTaJlHH 1,481,721 65.73 1,315,473 42.37 2,797.194 52.20 HToro 2,254,178 100.00 3,104,694 100.00 5,358,872 100.00 I BKmO'Iali c6opI>I aa MOTOpsoe TOIlJIHBO, KOTopLIe B nepBOM IIOJI}'I'OlI,Im 1995 r. 6hIJIH caMOCTO.IITeJIbHblM BBlI.OM BaJIora. HCTO'IHHK: AlIMaTHHCKOe OOJIaCTBoe cpHHaHCOBOe YlIPaBJIeHHe. - 145- BIO,WI(eTHbIH npouecc 7.45 Orrpe,ueJIeHHe paCCMOTPeHHOH Bbnrre CTPYKTYPbI pas,ueJIeHHH HaJIOrOBbIX nOCTYTIJIeHHH H onpe,ueJIeHHH pasMepoB ,uOTaIUlH - o,uHa H3 :u;eJIeH OIO,ruKeTHOrO npo:u;ecca; BTOPaH - onpe,ueJIeHHe pa3MepOB pacxo,uOB OIO,ruKeTHbIX yqpe:>K..D;eHHH. Kopoqe rOBopH, :!)TOT rrpo:u;ecc npOBO,llHTCH no BceH CTPaHe O,llHHaKOBO H OCHOBbIBaeTCH Ha CHCTeMe HOPM H KO:!)K..D;e Bcero, B xo,ue K.,D;Y OOlr(HMH nOTpeoHocTHMH paCXO,llHOH qaCTH H HMeIOIll,HMHCH pecypCaMH H (ii) Me:>K.,D;Y YTBep:>K..D;emn.IM ,IlJIjI Kax,r(OH oT,ueJIbHOH OOJIaCTH OO'beMOM pacxo,uOB H ee "coocTBemn.IMH" rrpOrH03HpyeMbIMH ,uOXo,uaMH. CJIe,uoM 3a :!)THM Ha~HaeTCH rrpo:u;ecc nOHCKa B3aHMorrpHeMJIeMbIX pemeHHH, KOTOpbIii BKJIIOqaeT B ceoH CJIe,IJ;YIOIll,He MOMeHTbI: (i) CBe,ueHHe rrpe,llIIOJIaraeMbIX paCXO,llHbIX nOTpeoHocTeH Ka:>K.,D;OH oOJIacTH B pa.MKH HMeIOm;HXCH B paCnOpjI}KeHHH pecypCOB; (ii) pacrrpe,ue;:reHHe no OOJIaCTHM CHaqaJIa nocTYTIJIeHHii OT peryJIHpyroIll,HX HaJIOrOB, a 3aTeM o6'beMa pecnyOJIHKaHCKHX ,uOTaIUlH. B pe3YJIbTaTe :!)TOro npo:u;ecca K.,D;OH OOJIaCTH, (ii) rrpo:u;eHTbI O~CJIeHHH peryJIHPyIOm;HX HaJIOrOB, (iii) pasMep ,uOTa.IJ;HH (eCJIH OHH BbI,lleJIjIlOTcH) ,IlJIjI Ka:>K.,D;OH oOJIacTH. 3aTeM MHHHcTepcTBo CBO,llHT YTo~eHHble oOJIacTHbIe OIO,ruKeTbI H CBOH npoeKT pecrryOJIHKaHCKOrO OIO,ruKeTa B npoeKT rocy,uapCTBeHHoro OIO,Il}KeTa. 7.47 IIoCJIe :!)Toro YTBep:>K..D;eHHbIH 61O,IlJKeT COrJIaCOBLlBaeTCH C IIpe3H,1leHToM H COBeToM MHHHCTPOB, H MHHHcTepcTBo K..D;aHHbIH 06'beM pacxo,uoB MeX,llY PecrryomlKoH H pasJIH~ OOJIaCTHMH. OHO TaK.JKe rrpHHHMaeT OKOE:qaTeJIbHOe pemeHHe no rrpo:u;eHTaM o~CJIeHHii OT qeTbJpex BH,IlOB HaJIOrOB, nO,llJIexaIll,Hx pacrrpe,ueJIeHHIO Me:>K.,D;Y pecnyOJIHKOH H OOJIaCTHMH, H no pasMepaM ,uOTaIUlH C TeM, qTOObl ooecne~Tb ,IlJIjI Kax,r(OH OOJIaCTH o6'beM cpe,uCTB, HeOOXO,llHMbIH ,IlJIjI K..D;eHHbIX pacxo,uOB. OOJIaCTHble a.,IJ;MHHHCTPaIUlH, B CBOIO oqepe,llb, pacrrpe,ueJIjIlOT OIO,Il}KeTbI Me:>K.,D;Y COOCTBeHHO OOJIaCThIO H nO~HeHHbIMH eH paiiOHaMH. 3,ueCb OIIHTb, OOJIaCTb rrpHHHMaeT OKOE:qaTeJIbHOe pemeHHe no rrpo:u;eHTHbIM OT~CJIeHHHM nO,llJIexalr(HX pa3,ueJIeHHIO HaJIOroBbIX nOCTYIIJIeHHH H no pasMepaM ,uOTaIUlH - q'J'0 ,uOJIJKHO ooecne~Th HeOOXO,llHMOe K:,:J;eHHbIX pacxo,uOB ,IlJIjI Ka:>K.,D;Oro paiioHa. 7.48 IIpo,uoJDKaIOIll,HHCH l- KypraacKall: 30.4 78.3 102.0 91.4 TypraHcKall: 31.8 81.9 114.7 102.8 IOJKHo-Ka3axCTaHCKall: 27.8 71.6 99.0 88.7 r. AJIMaTb! 84.5 217.6 122.6 109.9 Cpe,IUIee 3Ha'leHHe 38.8 111.6 AonyCTHMOe OTKJIOaeHHe 12.9 12.5 K03q,q,IIl{HeHT OTKJIOHeHRll 33.2 11.4 HCTO'lHHK: PernOHaJIhHhIH CTaTHCTH'leCKHH exero,nHHK Ka3axCTaHa, 1993 r. (1994 r., crp.248, 250) 7.52 TOT cPaKT, ~O He Bce K03cPcPHD;HeHTbI OTKJlOHeHH.SI B illOTmlH,I~HH Bbnne COOTBeTCTByIDID;HX nOKa.3aTeJIeit: B Ka3axCTaHe, n03BOJI.SleT npeAIIOJIO}KHTb, ~O pa3JIH"'ilUI B ypOBHe OKa.3aHH.S1 yc.rryr no Ka3axcTaHY He TaK yx BeJIHKH. B Ta6JIHD;e 7.15 rrpeACTaBJIeHbI AaHHble no MeAHD;HHCKHM ycnyraM B OKPyrax illOTJIaHAHH. K03cPcPHD;HeHT OTKJIOHeHH.SI AJI.SI o6r:u;ero KOJIwreCTBa BpaqeH H AJI.SI o6r:u;ero KOJIwreCTBa rrpaKTHKYJOID;HX MeAHD;HHCKHX pa6oTHHKoB o6r:u;ero rrpOcPHJI.SI - 19 H 25 COOTBeTCTBeHHo; 3TH D;HcPPbI 3HaqJITeJIbHO HJl)Ke, qeM COOTBeTCTByIDr:u;He nOKa3aTeJIH AJI.SI Bpaqeit: B Ka3axcTaHe. 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HMeHHO Te rrpaBHTemcTBa, KOTophle OT,n;aIOT Ha MeCTa HaH60JIhillHH 06'heM rrOJIHOMOtIHH rro rrpHIDITHIO pemeHHH, KaK CJIe,n;cTBHe, HMelOT 60mme B03MOXHOCTeH CKOHneHTpHpOBaTbcx Ha rrpoBe,n;eHHH ycrreIIIHoH MaKP03KOHOMH'IeCKOH rrOJIHTHKH!!. 7.57 Kor,n;a He06xo,n;HMOCTh ,n;eneHTpaJIH3anMH Y:>Ke rrpH3HaHa, rrpe:>K,IJ;e 'IeM rrpHCTynaTb K C03,n;aHHIO MecTHhIX OpraHOB BJIaCTH, em;e Hy:>KH0 peIIIHTh MHoro a,n;MHHHCTpaTHBHhIX BOrrpOCOB. IIepBbIM ,n;eJIOM, CJIe,n;yeT orrpe,n;eJIHTb a,n;MHHHCTpaTHBH)11O 6a3Y ,n;eXTemHOCTH MeCTHhIX OpraHOB BJIaCTH, XapaKTep HX ,n;eneJIbHOCTH, ypoBeHh rrpe,n;cToxm;eH ,n;eneHTpaJIH3anMH, c¢>epy rrOJIHOMOtIHH MeCTHhIX BJIaCTeH, rrOJIO:>KeHHe HX COTPy,n;HHKOB H ¢>oPMY rocy,napCTBeHHoro Ha,IJ;30pa 3a ,neXTeJIhHOCTblO MeCTHhIX OpraHOB BJIaCTH. H rrOCJIe orrpe,n;eJIeHHX 3THX rrapaMeTpOB l' ,I4uJ: 60nee .IleTam.BOro paCCMOTpeHlUi COOTBomellllll Me:ll'OlY .Jl.en:eBTPa.JIH3~eH nOJlBOMO"lRii: B cq,epe BaJ1oroo6JIo:zellllll H llOCTKlKeBHeM MaKpO:9KOBOMlfYH,IJ;aMeHTaJII:.HbIe npHHIJ,HIIbI, YCTaHOBJIeHHl>Ie KOHCTHTYIJ,HeH, npe,n;nOJIaraIOT, lITO (i) .rryqnmH MeTO,n; HallaTb a,n;MHHHCTpaTHBHYIO ,n;eIJ,eHTpaJIH3aIJ,HIO - TPaHCI: nocpe,n;CTBOM ~eJIerHpOBa.HHJI IIOJIHOMOllHH; H nocpe,n;CTBOM IIepe~a9H BJIaCTH Ha MeCTaY. ,ueJIempOBaHHjJ: IIOJIHOMOllHH - :!ITO HHCTpYMeHT a,n;MHHHCTpaTHBHOH OpraHH3aIJ,HH. B 3TOM cnyqae, rocy,n;apCTBO ,n;eJIempyeT lIaCTb CBOHX C06CTBeHHl>IX IIOJIHOMOllHH TeppHTOpHaJII:.HbIM opraHaM, B TOM lIHCJIe, B03MOXHO, BbI60pHbIM. IJPH :!ITOM TeppHTOpHaJIbHbrH OpraH, KOTOPOM)' ,n;eJIempyroTCg IIOJIHOMOqug rocy,n;apCTBeHHOH BJIaCTH - B PaMKax ,n;eJIempOBaHHbIX nOJIHOMOllHH - HMeeT onpe,n;eJl:eHHY.!O CBo6o,uy ,n;eHCTBHH B BbIIIOJIHeHHH CBOHX 06g3aHHOCTeH C006Pa3ygCb C MeCTHbIMH YC;JIOBHgMH. CaMOCTOjITeJII:.HOCTb, nonyqaeMag B pe3YJIbTaTe ,n;eJIempOBaHHg IIOJIHOMOllHH,. HeH36e:JKHo OrpaHHlIeHa IIO, KaK MHHHMYM, lIeTbIpeM c006pa:JKeHHjJ:M: (i) ,n;eJIer'HpyeMble IIOJIHOMOqug rocy,n;apcTBeHHoH BJIaCTH lIeTKO OrpaHHlleHbI; (ii) OpraHbI, IIonyqaIO~e ,n;eJIempOBaHHbIe IIOJIHOMOllHg, OCTaIOTCg B CTpYKTYpe rocy,n;apcTBeHHoH BJIaCTH - lITO IIo,n;pa3YMeBaeT IOpH,n;HlleCKyro OTBeTCTBeHHOCTh 3a HX ,n;eHCTBHg; (iii) 3TH OpraHbI IIOCTaBJIeHbI B HepapmllecKyro 3aBHCHMOCTb OT HCTOllHHKa ,n;eJIempyeMbIX IIOJIHOMOllHH; (iv) IIoCJIe,n;HH:H, npH onpe,n;eJIeHHbIX o6crogTeJIbCTBax, MO:JKeT OT03BaTb ,n;eJIempOBaHHbIe paHee IIOJIHOMOllHg H OTMeHHTb pemeHHe, IIpHRjITOe nO,IJ;llHHeHHhlM eM)' OpraHOM. 7.60 IJPH l1epe,I{aVe BJIaCTH Ha MeCTa IIo,n;o6HOH HepapmllecKoH CBg3H He cym;ecTByeT. OpraHbI, IIOJIyqaIOIIJ,He BJIaCTb B pe3YJII:.TaTe 3Toro npOIJ,eCca (T.e. "MeCTHhle OpraHbI BJIaCTH"), nonyqaIOT HCKJIIOlIHTeJIbHble nOJIHOMOqug B BOIIPOCax, KOTopbIe nepeBo,n;gTCg B HX KOMneTeHIJ,HIO. B npe,n;eJIax CBOHX IIOJIHOMOllHH OHH HeCYT OTBeTCTBeHHOCTb KaK IIOJIHTHlieCKyro - nepe,n; rp~aHaMH COOTBeTCTByroIIJ,eH TeppHTOpHH - TaK H IOpH,n;HlIeCKyro - IIepe,n; TpeTbHMH '5:.' B OCROBe ooem: npogem - ,I(eJIernpOBaHIDI nOJIBOMO'IHH II nepe,l\8."ffi s.nacm - MO:lKeT lIexaTh KaK TepPllTOpHaJIbRLtii, TaK II Ie nOJIBOMO'lWl CaMOCTO.IITeJIhHOM'Y lOplI,I(If'leclCOM)' opraHY, KOTOpLtii OHO caMO C03,I(aeT lIJIH OpraHH30BhIBaeT (HanpHMep, nocpe.rtCTBOM npeBp8lI(eHWl Be.rtOMCTBeHHoro npe.rtIIPlI.IITWl B lIlmHOHepHoe oOm;eCTBO). B :!!TOB 'Iacm HaCTO.llIItero OT'leTa paCCMaTpHBalOTCli C.JIY'IaH TOlIhKO TeppllTOpHam.aoro ,I(eJIernpOBaHIDI nOJIBOMO'lHH lIJIH TepPllTOpHaJIbEOH nepe,I(a'lH s.nacm Ha MeCTa. - 152 - CTOPOHaMH, BKJIIO'laJI CaMO rocy,n;apCTBO. IIoCKOJThKY nOJIHOMO'lH.sI MOryT ,n;eJIernpOBaThC.sI OpraHaM BHe 3aBHCHMOCTH OT TOrO, BhI60pHble OHH HJIH HeT, TeppHTOpHaJIhHaJI IOPHC,n;HKIUi.sl, OpraHH30BaHHaJI KaK MeCTHbm opraH ynpaBJIeHH.sI, ,n;OJDKHa HMeTh CJIe;o;yromee: (i) IIpe,n;cTaBHTeJThHbm opraH, KOTOphIil ,n;O.l'DKeH npHHHMaTh pemeHH.sl H KOHTpOJIHpOBaTh HX BhllIOJIHeHHe, H HCnOJIHHTeJIl>H:&IH opraH, KOTophm ,n;O.l'DKeH 3TH pemeHH.sI BhllIOJIH.slTh; (ii) IOpH;o;H'leCKHH CTaTYC, KOTophm n03BOJI.sIeT HeCTH IOpH;o;H'leCKYIO OTBeTCTBeHHOCTh 3a npHIDrrhle pemeHH.sI, 3anr;HmaTh HHTepeChI 3Toro opraHa B cy,n;e, 3aKJIIO'laTh KOHTPaKThI, BJIa,n;eTh HMYID;eCTBOM H ocynr;eCTBJI.slTh npaso co6CTBeHHOCTH, H T.,n;. IIOJIHOMO'lH.sI rocy,n;apCTBa B OTHomeHHH 3THX OpraHOB OrpaHH'lHBaIOTC.sI 'leTKO onpe,n;eJIeHH:bIMH 06CTO.slTeJIhCTBaMH: B OCHOBHOM - 3TO KOHTPOJIh 3a 3aKOHHOCThlO npHIDrrhIX Ha MeCTHOM ypOBHe pemeHHH, HO TaIQK.e - 'lTO HaMHOrO 60JIee cnopHO - C06JIIO,n;eHHe "o6mero 6JIara". 3TH nOJIHOMO'lH.sl ocynr;eCTBJI.slIOTC.sI He no HepapXH'leCKHM KaHaJIaM, a nocpe,n;CTBOM "oneKH". 7.61 KOHCTHTYnH.sl Ka3axcTaHa npe;O;YCMaTpHBaeT HCn0JI:b30BaHHe 060HX MeXaHH3MOB: CTaThH C 45 no 88 onpe,n;eJI.slIOT CHCTeMY ,n;eJIernpOBaHH.sl nOJIHOMO'lHH rocy,n;apCTBa HJIH "MeCTHoro rocy,n;apCTBeHHOrO ynpaBJIeHH.sI", Tor,n;a KaK CT.89 onpe,n;eJI.sleT YCJIOBH.sI ,lUUI nepe,n;a'lH BJIacrn MeCTHbIM opraHaM ynpaBJIeHH.sI HJIH "MeCTHOMY CaMoynpaBJIeHHIO •.. [ocynr;eCTBJI.sleMoMY] HaCeJIeHHeM Henocpe,n;CTBeHHO nyTeM BhI6opOB, a TaIQK.e 'lepe3 Bhl60pHbIe H ,n;pyrne opraHhl MeCTHoro CaMoynpaBJIeHH.sl .•• YCTaHOBJIeHHbIe 3aKOHOM". O;o;HaKO, Ha cero;o;H.sl, KaK OnHChlBaeTC.sI B pa3,n;eJIe B, ,n;eHCTByeT TOJIl>KO nepBhIH MeXaHH3M. B HaCTo.s:nr;eM pa3,n;eJIe BhI;o;BHralOTC.sI npe;o;noxeHH.sI no pecPOPMHPOBaHHlO TeppHTopHaJThHOro ynpaBJIeHH.sl, KOTophIe ,n;OJIXHbI npHBeCTH B ,n;eHcTBHe o6a KOHCTH~OHHbIX MeXaHH3Ma. YposeHh ,neQeOT:p3JIH3a:QHB 7.62 IIepBhm Bonpoc, KOTOphIil Heo6xo,n;HMO peIllHTh npH pa3pa6oTKe nOJIHTHKH ,n;eIleHTPaJIH3~H - onpe,n;eJIeHHe Heo6xo,n;HMoro KOJIH'leCTBa ypoBHeH. Bo Bcex CTpaHax 03CP npHIDIT, no KpaHHeH Mepe, O,IUlH 6a30Bhm ypoBeHb MeCTHbIX OpraHOB ynpaBJIeHH.sI; B HeKoTophIX CTPaHax TaIQK.e eCTh H BTOPOH YPOBeHb - nocpe;o;HHK Me:>K,Dy rocy,n;apcTBoM H 6a30BhIM ypoBHeM. B HeKoTophIX CTPaHax, O,n;HaKO, cynr;eCTByeT 60JIee ;O;SYX YPoBHeH (HanpHMep, B lieJThrnH), H Tor,n;a B 3THX CTPaHax (HanpHMep, B lieJThrnH) Be,n;eTC.sI nOCTO.sIHHaJI 6oph6a C npo6JIeMaMH KOHcPJIHKTa nOJIHOMO'lHH, nepeH36hITKa cPYHKIUiH H cnyx6, H T.,n;. ,n;Ba ypOBU npe,n;cTaBJI.sleTC.sI npe,n;eJIhHbIM KOJIH'leCTBOM ,lUUI Ka3axcTaHa. IIpaKTH'lecKH, 6hIJIO 6hl 60JIee pa3YMHO Ha'laTh TOJIl>KO C O;o;Horo. 7.63 H ,n;eHcTBHTeJIl>HO, CT.89 KOHCTHTY~H npe;o;Ha3Ha'laeT MeCTHhle opraHbI CaMoynpaBJIeHH.sl TOJIhKO,lUUI "CeJThCKHX H ropo,n;CKHX MeCTHbIX c006mecTB, oxsaThlBalOI!OIX TeppHTopHH Ha KOTOPhIX KOMnaKTHO npOJKHBaIOT rpymIhI HaCeJIeHH.sl" (T.e. ,lUUI HaCeJIeHHbIX nyHKTOB, onpe,n;eJIeHHbIX B nap. 7.4). B IleJI.sIX co6JIIO,n;eHrul MHHHMaJIhHOro pa3Mepa IOPHCJlHKIUiH, MoxeT 6:bITh, 6hIJIO 6hI Pa3YMHO - no KpaHHeH Mepe, Ha nepBOHa'laJIhHOM 3Tane - C'lHTaTh npmo,n;m.IMH ,lUUI nepecrpoHKH B MYHH~naJIHTeThI TOJIhKO HaCeJIeHHbIe nyHKT:bI I· - 153 - pecrry6JIHKaHCKOrO (KpynHble rOpO,Il;a), 06JIaCTHOrO (ropO,Il;a) HJIH paHOHHOrO (He60JIbume ropo,Il;a HJIH Kpymn.le nOCeJIKH) 3Ha'leHHH. HaCeJIeHHble rryHKThI 60JIee HH3KorO YPOBHH OCTaBaJIHCh 61.1, KaK H cero,Il;HH, Ha cy6-a,IJ;MHHHCTpaTHBHoM ypOBHe. ,IVuI Toro, 'IT06hl He JIHiliaTh CeJIhCKOe HaCeJIeHHe npaBa Ha MeCTHoe CaMoynpaBJIeHHe, 6hIJ1o 6hl pasYMHO nepeCMOTPeTh CyIII;eCTBYIOID;HH CTaTYC ceJIhCKHX PaHOHOB C TeM, 'lT06hl onpe,Il;eJIHTh, MHorne JIH H3 HHX He,Il;OCTaTO'IHO HaCeJIeHhI ,II;JIH Toro, 'lT06hI KBaJIHtPH~pOBaThCH KaK HaCeJIeHHble rryHKThI H CJIY:>KHTh 6asOH ,II;JIH C03,I1;aHHH CeJIhCKHX MYHH~naJIHTeTOB. 7.64 C 3KOHOMH'leCKOH TO'IKH 3peHHH, MoxeT OKa3aThCH, 'ITO CaMoe CyIII;eCTBeHHoe BJIHHHHe MeCTHhIX opraHOB ynpaBJIeHHH ,Il;OJI)KHO O)KH,IJ;aThCH HMeHHO Ha 3TOM ypOBHe. 3TO TOT YPOBeHh, Ha KOTOPOM roCY,Il;apCTBeHHble CnyX6hI HaxO,IUlTCH B HenOCpe,Il;CTBeHHOM Ka)K,II;O,Il;HeBHOM KOHTaKTe C HaCeJIeHHeM ('Iepe3 IIIKOJIhl, CHCTeMY OKasaHHH 06IIIeH Me,Il;H~HCKO:H nOMoID;H H T.,II;.), H B CHny 3TOro, TeM ypOBHeM, Ha KOTOPOM OHH MOryT CtPOpMHpOBaTh ,Il;OCTaTO'IHO 060CHOBaHHyIO CTPYKTYPY npe,Il;nO'ITeHHH: B OTHOIlIeHHH XapaKTepa H YPOBH51 OKa3hIBaeMhIX ycnyr; 3TO TOT ypOBeHh, Ha KOTOPOM OHH MOryT aKTHBHO yqacTBoBaTh B onpe,Il;eJIemm OCHOBHhIX BOnpOCOB HJIH B M06HJIH3~ Cpe,Il;CTB ,II;JIH HX peIlIeHHH. 7.65 3Ta CHCTeMa oKaxeT onpe,Il;eJIeHHOe BJlHHHHe Ha reorpatPH'IeCKYIO OpraHH3a.n;HIO CTPaHbI - 'ITO ,Il;OCTaTO'IHO 'IaCTO BCTpe'laeTCH B CTPaHax C 06umPHoH H cJIa60 HaCeJIeHHOH TeppHTopHeH. B TaKOH CHTY~H IOPHC,Il;HKD;HH MeCTHhIX OpraIlOB ynpaBJIeHHH 'IaCTO MOryT He OXBaThlBaTh BCIO TeppHTOpHIO CTPaHbl; OHH MOryT orpaHH'lHBaThCH TeMH MeCTaMH B pecrry6JIHKe, r,Il;e ,Il;OCTaTO'IHOe KOJIH'IeCTBO HaCeJIeHHH OnpaB,II;hIBaeT C03,I1;aHHe onpe,Il;eJIeHHhlX CJIY)K6 06IIIero nOJIb30BaHHH H n03BOJIHeT reHePHPOBaTh tPHHaHCOBhle B03MO)KHOCTH, Y,II;OBJIeTBOpHTeJIhHhle C TO'IKH 3peHHH 06eCne'leHHH ,Il;eHTeJIhHOCTH 3THX cnyx6 (HanpHMep, 06CJIY:>KHBaHHe ,Il;opor B CeJIhCKOH MeCTHOCTH MoxeT OCyIII;eCTBJIHThCH 3a C'IeT Cpe,Il;CTB ,Il;OCTaTO'IHO HaCeJIeHHOH IOPHC,II;H~H, HO ero BPH,Il; JIH MoxeT n03BOJIHTh ce6e IOPHC,II;H~H C HeMHOrO'IHCJleHHbIMH H ,Il;aJIeKO OTCTOHIIIHMH,IJ;pyr OT ,Il;pyra nOCeJIeHHHMH). B TaKOH: CHCTeMe HaCeJIeHHhle rryHKThl BKJIIO'tfalOTCH B COCTaB MYHH~naJIHTeTOB H KaK 6hl Bhlpe3a1OTCH H3 CTPYKTYPhl 60JIee KpynHhIX IOPHC,Il;HKD;HH:. HanpHMep, B CJ1Y'iae COe,Il;HHeHHbIX lliTaTOB (r,Il;e MYHHIIHIIaJIHTeThI Bhl,Il;eJIHIOTCH B COCTaBe OKpyroB IIITaToB), B TyHHce (r,Il;e MYHHIIHIIaJIHTeThI Bhl,II;eJIHJOTCH B COCTaBe TeppHTOpHH: delegation generales, KOTophle, B CBOIO o'tfepe,Il;h BKJIIO'tfaIOTCH B gouvemorats), B MapoKKo (communes B COCTaBe cercles), B AmKHpe (communes B COCTaBe willayas). 7.66 Ha onpe,Il;eJIeHHOM 3Tane 3Toro nponecca KasaxCTaH MoxeT paCCMOTpeTh BOnpOC BBe,Il;eHHH BToporo YPOBHH MeCTHhIX OpraHOB ynpaBJIeHHH Ha ypoBHe pernOHOB (onpe,Il;eJIeHHhIX B nap. 7.4). KOHCTH~ He HCKJIIO'tfaeT B03MO)KHOCTH nepe,Il;a'IH nOJIHOMO'IHH: no BhmOJIHeHHIO Tex HJIH HHhIX tPYHKItHH: MaCJIHXaTaM 06JIaCTeH: (HJIH CeJIhCKHM paHOHaM) (CTaThH 86). O,IUiaKO TaKM ,Il;eneHTPaJIH3a.n;HH MoxeT 6hITh JIHilih orpaHH'tfeHHOH:, nOCKOJIhKY 3TH npe,Il;CTaBHTeJIbHhIe OpraHbI He 6y,IJ;YT HMeTh B CBoeM COCTaBe HCnOJIhHHTeJIbHhIX OpraIlOB. OHH MOryT nepe,Il;aTh MeCTHhIM opraIlaM nOJIHOMO'IHH no BhlIIOJIHeHHIO 3a,n;a'l B KOMlleTeHD.HH MaCJIHXaTOB (CTaThH 89), O,IUiaKO 3TH OpraHhI nOJIHOCThIO OCTaHYTCH B Be,Il;eHHH 06meroCY,II;apCTBeHHOH HCnOJIHHTeJIbHOH BJIaCTH. Tor,Il;a MaCJIHXaThl OKaxyrCH B CHTYa.n;HH, nO,Il;06HOH: CHTY~H BO pamum ,Il;0 ,Il;eneHTPaJIH3anH:FI 1981 rO,Il;a, KOr,Il;a B COCTaBe ,Il;enapTaMeHTOB ,Il;eHCTBOBaJIH T.H. conseils generaux (reHepaJIhHhle coBenI). C03,I1;aHHe ,Il;eneHTpaJIH30BaHHhlX HCnOJIHHTeJIhHhIX OpraHOB B COCTaBe 06JIaCTeH, B03MO)KH0, nOTpe6yeT BHecemu H3MeHeHHH B KOHCTH~IO. - 154- 7.67 TIPH orrpe,I(eJIeHHH BToporo ypOBIDI ,I(en;eHTpaJIH3anHH, H)')KHO 6Y,I(eT TIII;aTeJIhHO orrpe,I(eJIHTh CPYHKIJ;HOHaJIhHYIO CneIJ;HaJIH3an;H1O KaJK,ItOrO YPOBIDI BJIaCTH. YHKIJ;HOHaJIhHruI POJIh 6asoBoro ypOBIDI COCTOHT B npe,I(OCTaBJIeHHH ycnyr, Tpe6Y1OIII;HX TeCHoro KOHTaKTa C HaCeJIeHHeM. 3,I(eCh HCnOJIh3yeTC.sI COIJ;HaJIhHO-3KOHOM1fl:leCKHH KpHTepHH: ,I(OCTYIT K ycnyraM. 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ECJIH cneKTp ,I(e.slTeJIbHOCTH MeCTHhIX OpraHOB ynpaBJIeHH.sI B KasaxcTaHe cOBepmeHHo TPa.I(HIJ;HOHeH, peBOJIIOIJ;HOHHruI pecpopMa MOrJIa 6bI npoH30HTH B cpopMe HeMe,I(JIeHHOH nepe,I(atIH Bcex MeCTHhIX CPY'HKI1;HH CKopee no,I( KOHTPOJIh MaCJIHXaTOB, HeiKeJIH n;eHTPaJIbHoro rrpaBHTeJIhCTBa, npHqeM CIO,I(a TaIOKe MOrJIH 6hI 6hITb BKJIIOqeHhI H ,I(oporn, a 60JIb1IIHHCTBO oTtlHcJIeHHil H Cy6CH,I(HH MOrJIO 6hI 6hITb OTMeHeHO. TeM He MeHee, MOiKeT 6bITb BbI6paH 60JIee OCTOPOiKHhIX no,I(XO,I(. HanpHMep, BeCb 06'beM ,I(e.slTeJIbHOCTH, KOTOPhIH cero.n:rur BbmOJIIDIlOT TeppHTOpHaJIhHhIe 8,I(MHHHCTPan;HH B HaCeJIeHHbIX nymcrax, MOiKeT 6hITb nO,I(eJIeH Ha ,I(Be rpynIIhI, rrpH 3TOM OTBeTCTBeHHOCTb 3a nepBYIO rpynny MOrJIa 6bI 6bITb B03JIOiKeHa Ha MaCJIHXaTbI MYHHIJ;HnaJIHTeTOB, 0 qeM rOBOpHTC.sI B naparpacpe 7.71. 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Ta6JlHua 8.2: YpoBeHb cMepTHoCTH B KaaaxCTaHe, 1990 H 1993 rr. 1990 1995 YpoBeHh CMepTBO<:TB (Hll Tl>lC '1eJ10BeX HaCeJleBBfl) 7.7 10.0 ,neTCKa.JI CMepTHOCTh (Ha Tl>lC POWCBWHXCII AeTeH) 26.4 26.4 HCTO'DIJIK: (}r-qeT IIPOOH 0 "IeJ10Be'lecKOM pa.3BBTBH B Ka.3aXCTllHe, 1995 r. - 182- BooJleiiCTBHe KPH3HCa B HaJIOroBO-6IOJI)JCeTHOii c4»epe Ha ceKTopa 8.7 focy,n,apCTBeHHLIe 3aTpaTbI Ha 3,Iij>aBOOXpaHeHHe H 06p3.30BaHHe yna..JIH ,n,o He:>KH3HeCnoco6Ho HH3Koro ypOBIDI. focy,n,apcTBeHHble pacxo,r.u.I Ha COIUlaJIbBl:.le c4»ephl, BbJpa)JCeHIl'bIe KaK ,n,OIDI BBIT, nmpOKO HCnOJIb3yroTCjI B Ka'lleCTBe CYMMapHoro nOK3.3aTeIDI ,n,OCTaTOl{HOCTH ypoBRjI COBOKynHoro p3.3Mem;eHHjI pecypCOB B cTPaHe. C 3TOH TO'llKH 3peHHjl, paCXO,n.l>I Ha o6pa30BaHHe yna..JIH C 7 npo:u;eHTOB BBIT B Ha'llaJIe 1990-x IT. ,n,o MeHee, 'lIeM 3 npo:u;eHTOB BBIT B 1994 r., Tor,n,a KaK pacxo,r.u.I Ha 3,n,pasooxpaHeHHe COKpaTHJIHCb C 3-4 npo:u;eHTOB BBIT ,n,o npHMepHO 2 npo:u;eHTOB BBIT B 1994 r. (CM. Ta6JIHIJ;Y 8.3). K 1994 r. npHTOK pecypcoB B 3.n.paBoOXpaHeHHe H o6pa30BaHHe B Ka3axCTaHe B npo:u;eHTax BBIT 6hIJI HaMHOrO HIDKe, 'lIeM B CTPaHax 03CP H HeKOTopbIX CTPaHax C HH3KHM ypOBHeM ,n,oxo,n,a B ,n,aHHOM pernoHe (Ta6JIH:u;a 8.4)1. I COIlOCTaBJIeHHe pacxo.u;OB Me~ P83JlH"fill>IMiI CTPaBaMH 3aTpY,lJ;HeHO H3-3a pa3JIH'Ulii: B neHaX B J,I.lIBlD:dX CTPaBax. HanpHMep. CTImCm. KOUTpOJIHpyeMoCTH 3apa6oTBOH IlJIaThI BO DeeM HapO,lJ;HOM X0311HCTBe, IiI, B '{aCTHOCTH, B 3,D;PaBOoxpaBemm II 06P830BalllUl, MOlKeT BaP&H}>OBaThCli. B p83HhIX CTPaBax. B YCJIOBKllX KaaaxCTaHa, OK II B OCTaJIhHhIX CTPaHax 6&IBIIIeI'O COBeTCKOro COlOla, '{pe3MepHOC HClIOJI&30BaHHe KOUTpOIDl 3a 3apa6oTBOH nnaTOH 1Il0lKCT SCCTH K HCKYCCTBeIlBOMY 3aHHlKCHHIO 4laxTH'{ecKoi nOxyIIaTeJI&soi CIlooo6HOCTH aCCHI'HoBaHHii: Ha 06p830BaHHe H 3,D;PaBOoxpaHeHHe. - 18~ - TaOJIHua 8.3: 3BOJIIOUHSI OIOJVI(eTOB 3LlPaBOoxpaHeHHSI H oOpa30BaHHSI 1990-1994 IT. 1990 1991 1992 1993 1994 06~ pacx~ 'l3.CTI> 6roJllkeTa KaJ( " BBn!' 36.20 44.20 31.4 23.7 19.2 KOBC01~BaHHNe JlOXOJlN H rpaHTJal J(aK " BBn 38.9 39.6 22.8 06pa30BaHHe KaJ( " K paCXOAHoH 'l3.CTH 6roJllkeTa 18 17 11 19 16 3JlpaBOOxpal{eHHe J(aK% K paCXOAHOH 'l3.CTH 6roJllkeTa 9 10 7 11 10 PaCXOJlN Ha 06pa30BaBHe J(aK " BBn 6.6 7.6 3.6 4.6 2.9 PacxoJlN Ha 3J;lpaBOOxpaHeHHe J(aK " BBn 3.3 4.2 2.1 2.5 2.0 PacxoAN MecTHNX 6ro~eTOB Ha o6paaoBaHHe B " 71 82 82 81 83 PacxoWol MecTHNX 6ro~eToB J(a 3JlpaBOOxpaHeHHe B "- 95 95 94 90 86 Hcl'o'IHHK: MHHHCTepcTBO cl>HHaHcoB. npaBBTemlCTBo Ka3aXCTaHa. pacqeTN BceMBPHOI'O 1ia.HKa.. !I 06~. J.acxo~ 'l3.CTI> 61O~eTa 3a HCK1JroQeHHeM BHe6rolllkeTIINX cI>ollJlOB H 6ro~Nx onepaqHii TaoJIuua 8.4. PacxoLlbl Ha OOpaaOBaHHe H 3JlpaBOoxpaHeHHe (KaK npoueHT BBn) Ka3aXCTaH KNpn.ll3CKaJI TyptpUI POCCHR CiliA BemlK06PBTaJlHR B cpeAHeM no 1994 Pecnyt).J1Hlta. 1992 1994 1992 1992 CTpaHaM 1994 03CP 1992 3JlpaBOOxpaaeHHe 2.0 3.9 4.1 4.0 13.6 8.1 06pa30BaHBe 3.0 3.4 5.5 5,3 (1992) 8.9 KapTHHa npe,IJ;CTaBJUIeTCH em;e 60JIee Mpa'DIOH, eCJIH paCCMOTpeTb 06'beM pecypcoB, BbJr,IJ;emreMLIX Ha ceKTopa 3,IJ;paBOOXpaHeHIDI H 06pa30BaBH.SI B nOCTO.SIHHLlX n;eHax B TeRre B pac"t£eTe Ha ,IUTIIIY HaCeJIeHIDI (CM. Ta6JIHI(Y 8.5). B 3TOM H3MepeHHH o6~a.JI C)'MMa rocy,!{apCTBCHHMX pacxo,!{oB B 1994 row COCTaBHJIa MCHCC o,lfHoii Tpcm YPOBHJI B 1ICPHO,!{,!{O 1990 ro,lfa. 06'LeM pecypCOB B paC"t£eTe Ha )UlIIIY HaCeJIeHH.SI. BbJr,IJ;emreMLIX Ha 06pa30BaBHe, COKpaTHJIC.SI Ha O,IUIY TpeTb no CpaBHeHHIO C nepHO,IJ;OM ,IJ;O 1990 rO,IJ;a, a otheM pecypcoB, BbJr,IJ;eJIeH.HbIX Ha 3,IJ;PaBOOXpaHeHHe - npH6JIH3HTeJIbHO Ha 40 rrpon;eHTOB. B TeKYIIUlx n;eHax B ,IJ;oJIJIapax CillA B 1994 ro,IJ;y B pac"t£eTe Ha)UlIIIY HaCeJIeHH.SI 6bIJIO BhJ,D;eJIeHO 22 ,IJ;oJIJIapa Ha 06pa30BaHHe H 15 ,IJ;OJIJIapOB Ha 3,IJ;paBOOXpaHeHHe, "t£TO .SIBJlSIeTC.SI KpaHHe HH3KHM rrOKa3aTeJIeM. ,J.Vr.SI CpaBHeHH.SI, B ErnIITe Ha 3TH u;eJIH BbmeJI.SIJIOCb 149 ,IJ;OJIJI. CTIIA. B TYPI(HH - 185 ,IJ;OJIJI. CIlIA, B HOp,IJ;aHHH - 374 ,IJ;OJIJI. CllA, a B CTPaHax 03CP - B Cpe,I(HeM 1 500 ,IJ;OJIJI. CIlIA 2. 2" A Survey of Health Refonn in Central Asia·, Jeni Klugman and George Schieber. mimeo, World Bank, 1996. - 184 - 8.10 Pe3Koe COKpameHHe pacxo,noB Ha o6pa30BaHHe H 3.npaBOOXpaHeHHe He 03HaliaeT, lITO 3TH ceKTopa CtrHTaJOTC5I MeHee npHopHTeTHbIMH, a 5IBJUleTC5I CJIe,nCTBHeM o6w;ero 61O,IPKeTHOrO KpH3Hca. B03,neHCTBHe nepexo,nHoro nepHo,na Ha COCT05IHHe 61O,IPKeTa BbIPIDKaeTC5I B COKpameHHH 06w;eH CYMMbI rocy,napCTBeHHbIX nOCTYITJIeHHH H pacxo,nOB, BbIpIDKeHHbIX npo:u;eHTOM BBII (Ta6JIH:u;a 8.3). Pe3Koe COKpameHHe ,nOJIH pacxo,nOB Ha o6pa30BaHHe H 3,npaBOOXpaHeHHe B o6w;eH CYMMe 61O,IPKeTHbIX pacxo,nOB Ha6JIlO,naJIOCb B 1992 ro,ny, nOCJIe npOB03rJIameHH5I CTPaHOH He3aBHCHMOCTH, O,nHaKO npe,nCTaBJUleTC5I, liTO HatrHHa5I C 1992 ro,na, 3THM CeKTOpaM y,neJI5IJIOCb Bce 60JIbmee BHHMaHHe. B pe3YJIbTaTe ,nOJI5I rocy,napCTBeHHbIX pacxo,nOB (H3 pecny6JIHKaHCKOrO 61O,IPKeTa H H3 61O,IPKeTOB MeCTHbIX OpraHOB) Ha 3,npaBOOXpaHeHHe H o6pasoBaHHe B 06meH C)'MMe rOCYl(apCTBeHHbIX paCXOl(OB OCTa.JIaCb IIpaKTHlleCKH 6e3 H3MeHeHHH B nepHO,n C 1990 no 1994 ro,n. Ta6nHua 8.5: Pe3.JIbHbIii 06'beM pecypCOB, BbI,llenSleMbIX Ha 06paaOBaHHe H 3.l{paBOoxpaHeHHe, 1991-94a1 (B pac'Iere Ha JlYUIY HaceneHHSI B nOCTOSlHHbIX ueHax B TeHre KaK npoueHT OT nOKaaaTenSI 1990 r.) (% OT YPOBWl 1990 r.) 1991 1992 1993 1994 06~lUI cy-MMa 61O)l,}KeTHblX pacXo;n;oBbl 107 91 60 31 06pa30BauHe (Bcero) 101 57 57 29 3;n;paBOOxpaueHHe (Bcero) 111 66 62 39 06pa30BauHe (pecn. 61O)l,}KeT) 63 35 37 17 3;n;paBOOxpaueHHe (pecn. 61O)l,}KeT) 109 77 127 102 06pa30BauHe (61O)l,}KeTbI MeCTHbIX oprauoB) 117 66 65 34 3;n;paBOOxpaueHHe (61O)l,}KeTbI MeCTHblX oprauoB) 111 66 59 35 llCTO'IHHK: On;eHKH COTpy;n;HHKOB BCeMHpHOrO BauKa. llpHMe'lllHIDl: aJ nOKa3aTem. paCXO;n;OB ;n;ecPJIlfpoBau cpe;n;HHM llllU 3a ro;n;; 6a3HcHbIH ro;n; = 1990; On;eHO'IHbIe 3Ha'ieHIDI KaK npOIIeHT OT nOKa3aTeJIlI 3a 1990 ro,lJ;. bl o6~lUI Cy-MMa 61O)l,}KeTHblX paCXO,lJ;OB, 6e3 }"leTa BHe61O)l,}KeTHblX cPOH,lJ;OB H KBa3HcPHCKaJIbHblX OnepaIIHH. 8.11 B PaMKax 060HX ceKTopOB 61O,IPKeTbI no-pa3HOMY KoppeKTHpOBaJIHCb B yCJIOBH5IX COKpameHH.SI peaJIbHOrO 06'beMa pecypcoB (Ta6JIH:u;a 8.5). C 1990 ro,na paCXO,nbI Ha ytrpeJK)J;eHH.Sl 06pasOBaHH.SI pecny6JIHKaHCKoro 3HalleHH.SI B paClieTe Ha .nymy HaCeJIeHH.Sl nO,I(BeprrrHCb HaH60JIee 3HatrHTeJIbHOMY COKpameHHlO (COCTaBHB JIHillb 17 npo:u;eHTOB OT ypOBIDI 1990 ro,na). 06'beM pacxo,nOB Ha pecny6JIHKaHCKHe ytrpe)K)J;eHH.Sl 3,npaBOOXpaHeHH.SI, no BceH B~MOCTH, OCTaJIC.SI 6e3 H3MeHeHHH, B TO BpeM.Sl KaK COKpameHHe peaJIbHbIX pacxo,nOB MecTHbIX OpraHOB Ha 3.npaBOOXpaHeHHe OTPIDKaeT o6w;ee COKpameHHe rocy,napCTBeHHbIX pacxo,nOB. 3TO 03HaliaeT, lITO OTHOCHTeJIbHO MeHee 3HatrHTeJIbHOe COKpameHHe 06w;eH CYMMbI pacxo,nOB Ha 3.npaBOOXpaHeHHe HHaHCIlPOBaHHJI 8.12 Me.l~HI{HHCKHe H o6pasoBaTe.m.H1>Ie CJIy.>K.6bI B KasaxcTaHe npo.n;OJDKaIOT 4>HHaHCHpOBaTbCg H cHa6.>K.aTbCg, rJIaBHhIM 06pasOM, o6~eCTBeHH1>IM ceKTopOM. 06~eCTBeHH()e 4>HHaHCHpOBamle 3THX ceKTopoB B HaCTo~ee BpeMjl npOH3BO.n;HTCg C o6~ero .n;oxo.n;a OT C06paHm.IX HaJIOroB. lJacTb 3THX cpe.n;CTB nOJIHOCTbIO OCTaeTCg B paiioHe HJIH 06JIaCTH, r.n;e Oml 6bIJIH co6pamI, a OCTaJIbHble cpe.n;cTBa pacnpe.n;eJIjlIQTCg no 06JIaCTH Me~ MeCTH1>1MH H pecny6JIHKaHCKHM a.n;MHHHCTpaTHBH1>IMH YPOBRjlMH. 3 8.13 B6.m.masI QaCTb yc.rryr B ceKTopax 3,n;paBooxpaHeHluI H OOPa30BaHID! T.J:epe3 CHCTeMY OOm;ecTBeHHoro pacnpe,n;eJIeHHH ,n;oJIJKHa ObITb OeCnJIaTHOH ,n;JIJI nOJIb30BaTeJIH. Ha npaKTHKe, TeM He MeHee. OKa3aJIOCb, T.J:TO c~ecTByeT TP~H HecPopMaJIDHbIX nJIaTe}R:eH OOm;eCTBeHHbIM npe,n;CTaBHTeJIHM yc.rryr (BpaT.J:aM, YT.J:HTeJIHM). 3a nOCJIe,n;Hee BpeMH CPHHaHCOBOrO KpH3Hca, Kor,n;a 3apnJIaTa Me,n;HKaM H YT.J:HTeJIHM T.J:aCTO He BbmJIa'llHBaeTCJI B CPOK, HCCJIe,n;OBaHHH no pemOHa~ H cPaKTbI YKa3bIBaIDT Ha TO, T.J:TO TaKOH BH,n; 'tJaCTHbIX pacxo,n;OB 3HaT.J:HTeJIbHO B03pOC. BOJIee Toro, onpe,n;eJIeHHbIe yC.rryrH, KOTopbIe TeXHHT.J:eCKH ,n;OJIJKHbI ObITb OeCnJIaTHbIMH, TaKHe KaK TaOJIeTKH, YT.J:eOHHKH H e,n;a, 3aT.J:aCTYro nOJIHOCTbJO HJIH T.J:aCTHT.J:HO nOKYllaIDTCH OT,n;eJIbHbIMH JIH:u;aMH. C~ecTByeT Ta.K.JKe ,n;OKa3aTeJIbCTBO He,n;aBHero nOHBJIeHHH T.J:aCTHbIX YT.J:HTeJIeH H Me,lI;lI"UHHCKIIX paOOTHHKOB, paOOTa KOTOPbIX OnJIaT.J:HBaeTCH Henocpe,n;CTBeHHO H3 KapMaHOB KJIHeHTOB 5. Ho TaKaH npaKTHKa Bce em;e HeOObIT.J:Ha. 8.14 HeKoTopbIe Me,n;u:u:HHCKHe YC.rryrH H YC.rryrH ,n;eTCKHX Ca,n;OB Bcer,n;a cPHHaHCHPOBaJIHCb paooTo,n;aTeJIHMH (rocy,n;apcTBeHHbIMH npe,n;rrpHHTHHMH H KOJIX03aMH). B HeKOTopbIX ropo,n;cKHX MeCTHOCTHX, r,n;e npe,n;npHHTHe HBJIHeTCH e,n;HHCTBeHHbIM HJIH OCHOBHbIM MeCTOM paooTbI, cpe,n;CTBa npe,n;npHHTHH, BbI,n;eJIHeMble Ha YCJIyrH Me,n;H:u;HHbI H OOpa30BaHHH MOryT 3HaT.J:HTeJIbHO nOBJIHHTb Ha MYHH:u;mIa..JThHbIe HCTOT.J:HHKH. Ha npaKTHKe, npOHCXO,n;sIIIl;ee JIHilleHHe CO:u;HaJIbHOrO H~eCTBa T.J:aCTO HBJIHeTCH T.J:aCTHT.J:HbIM (T.e. npe,n;npHHTHe MO)l{eT npo,n;OJI.>K.aTb nJIaTHTb 3a KOMMYHaJIDHbIe yC.rryrH HJIH 3apnnaTY). POJIb HopMaTIIBOB 8.15 IIpH cOBeTcKoH CHCTeMe nJIaHHpOBaHHH oJO,n;:.>K.eTa, cPHHaHcoBble cpe,n;CTBa pacnpen;eJIHJIHCb B CTporOM COOTHOmeHHH C cPH3HT.J:eCKHMH HopMaMH, TaKHMH ,KaK KOJIHT.J:eCTBO KoeK, nocem;eHHH, xyOHT.J:eCKHe pa3MepbI 3ase,n;eHHH H T .,n;. CHcTeMa J HeKOTophIe BTOpOCTeneHBAle Me;JJ,HIlHHCKHe YCJIYI1iI (HanpHMep, OPTO,n;OHT, aJCKYIIYHKTYPa, MaCCi!}K) IIJIaTBl>I. Am!,n;eTCKHX Ca,n;OB, OOII(ecTBeHHO-Q;>HHaHCHPyeMlde Y'lpeJIOleHHJI HMelOT npaBO YCTaHaBJIHBaT& IIJIaTY 3a IIOlI&30BaBHe. 4 eM n.rur npHMepa npoeKT OT'leTa 3,IIPaB PeQ>opM no pacxo,n;aM sa Me.wm.1IlIY B mHMKeHTe, IOx. Ka3axCTaH (MaR 1995). , 'tJaCTHoe:pHHaHCHPOBaBHe yc.rryr lI.BJllIeTC.IlnpJ1MlolMH Bi>lIIllaTaMH H3 KapMaHa. B 1992-93 I'O;I\ax B Me;I\HlIHHe O&IlI npOBe,n;eH 3KClIepHMeHT 'IaCTHOI'O Q>HHaHCHPOBllHWl 'lepe3 cxeMY 'IaCTHOI'O CTpaxOBaHHll B IOJKHOM Ka3axCTaHe. CxeMa 1I0TeplIeJIa HeY;I\a'{y H3-3a KOPPYMIlHPOBaBHOCTH CQTpY;I\HJlKOB, BldIIOn:wno~ !!IKCnepHMeHT. - 186 - OTt:leTHOCTII CBO.IUiJIaCh K c60py lIHcPOpMa~1I "0 S;n;aHIISIX II rrepCOHaJIe" B paHOHe (II Ha 06JIaCTHOM YPOBHe) , KOTOPaJI SaTeM B BH,ll;e cPOPMYJI OTpasllT KOJIlf'leCTBO IICTO'tfllllKOB B KaJK,ll;OM paHOHe (IIJIl1 06JIaCTH). 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KOJIHlleCTBO IlpeIlo.n;aBaTeJIeH B .n;neBHbIX mKOJIax cPaKTHlIeCKH yseJIHlIHJlOCb 3a IlepHO.n;, B TO BpeMH KaK 06'beM cpe.n;CTB pe3KO COKpaTHJlCH. O.n;nOH H3 IlpHllHH 9Toro YBeJIHlIeHHH KOJIHlleCTBa IlpeIlo.n;aBaTeJIeH 6bIJIa He.n;aBHHH IlOIlbITKa BBeCTH 06yqeHHe B mKOJIax Ha Ka3axcKoM H3bIKe. B pe3YJIbTaTe COOTHomeHHe yqaw;n:XCH H IlpeIlo.n;asaTeJIeH B HallaJIbHbIX/cpe.n;nHX mKOJIax OCTaeTCH HH3KHM. 3TO COOTHomeHHe B mKOJIax H BbIcmHX yqe6HbIX 3aBe.n;eHHHX HBJIHeTCH HH3KHM .n;a.xe 110 cpaBHeHHIO CO CTPaHaMH 03CP, paCIlOJIaraIOm;HMH 60JIee 3HallHTeJlbHbIMH cpe.n;CTBaMH (CM. 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B TO xe BpeMH, Heo6xo,IJ;HMO YBeJIHl:IHTh 3apa6oTHYIO lUIaTy npenO,IJ;aBaTeJIeH B COOTBeTCTBHH C YBeJIH'lHBmHMCH 061>eMOM pa60TbI H HOBbIMH TPe60BaHIDIMH. no::noMY nOKa HeH3BeCTHO, KaKHM 06Pa30M peq,opMbI nOBJIHHIOT Ha TeKyID;He paCXO,D;bI, O,IJ;HaKO 3tjJtjJeKTHBHOCTb 38TpaT Ha CHCTeMY 06Pa30BaHIDI, no BceH BepOHTHOCTH, nOBLICHTC.sI, 6JIaro,IJ;ap.sI TOMY, "ITO nporpaMMI:.I, npHHoc~e HaH60JThmyro nOJIb3Y, 6yAYT nO,IJ;,IJ;eplKHBaThC.sI nyTeM HCnOJIl>30BaHIDI 60JIee npo,IJ;yMaHHoro CO"IeTaHH.sI MeTO,IJ;OB 06y-qeHH.sI, y-qe6HOH npOrpaMMbI H y-qe6HbIX noco6HH. PetjJOPMhl B $pe a,npasooxp3.HeHHSI 8.50 B ctjJepe 3/WaBOOXpaHeHHJl PYKOBO,IJ;HTeJIH Y"IPe::lK,lJ;eHHH npe,IJ;npHHHMaIOT YCHJIHH, HanpaBJIeHHI:.le Ha COKpam;eHHe KOJIH"IeCTBa na~HeHTOB H KoeK. B 1993-94 IT. KOJIH"IeCTBO KoeK B paC"IeTe Ha 10 000 "IeJIOBeK COKpaTHJIOCL BO Bcex 06JIaCTHX, a 'lHCJIeHHOCTL Bpa"IeH (KOTOPa.s: HenOCpe,IJ;CTBeHHO CB.sI3aHa C KOJIH"IeCTBOM KoeK) TaKlKe COKpaTHJIaCI:.. 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