Fundamentals of strategic planning for territory development. Free library - textbooks, cheat sheets, candidate minimum

Strategic planning for sustainable socio-economic development of territories is a new, but already widely popular management practice. This is the process of forming, adjusting and implementing a strategy, which represents a certain goal and a mechanism for achieving this goal. Each territory - region or city - will seek its own direction for implementing strategic planning, based on the specific economic, social, cultural and managerial situation. The development and dissemination of strategic planning methods involves the modernization of existing forms and mechanisms of interaction between regions and municipalities. At the same time, not only their business activity increases, but also there is a gradual transition from directive to indicative methods of territorial management. In this regard, the role of strategic planning for regions and cities, as “points of growth,” will increase, since its application allows for the most optimal use of resource flows in priority areas for the development of the territory. The article defines the place of territorial planning in the strategic management system, identifies modern development trends and approaches to the typology of cities, and proposes a methodology for strategic planning for the development of large cities.

strategic management

strategic planning methodology

sustainable territorial development

big cities.

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STRATEGIC PLANNING OF SUSTAINABLE TERRITORIAL DEVELOPMENT

1 Volgograd State Technical University

Abstract:

Strategic planning of sustainable socio-economic development of territories is a new but popular practice of managerial activities. It is a process of formation, correction, and implementation of strategy that is a certain goal and mechanism for its achievement. Each territory – region or city – will look for its direction of implementation of strategic planning, based on specific economic, social, cultural, and managerial situation. Acquisition and distribution of methods of strategic planning supposes modernization of existing forms and mechanisms of cooperation between regions and municipal entities. At that, not only their business activities increase but there is a gradual transition from directive to indicative methods of territorial management. Therefore, the role of strategic planning for regions and cities, as “growth points”, will grow, as its application allows using resource flows in top-priority spheres in the most optimal way. The article determines the place of territorial planning in the system of strategic management, determines modern tendencies of development and approaches to cities classification, and offers methodology of strategic planning of development of large cities.

Keywords:

strategic management

methodology of strategic planning

sustainable territorial development

Introduction

Modern trends in economic development - globalization, decentralization, liberalization, increased competition, innovation orientation, changes in social needs in the direction of increasing the level and quality of life - determine the macroeconomic dynamics of economic activity, which is fully characteristic of the socio-economic space of Russia. The main challenges that the Russian economy will face in the long term are related to the expected new wave of technological changes and their active use; exhaustion of the potential of the raw materials export model of economic development; the increasing role of human capital as the main factor of economic development.

The sustainable innovative development of a country is determined by the effective functioning of its economic entities - regions and large cities, ensuring an influx of investment into the territorial budget; high level of employment, social stability; decent quality of life. The innovative orientation of state policy requires methodological support for the process of developing long-term territorial plans and strategies, and the development of strategic provisions of documents that ensure territorial management in this aspect. The achievement of effective changes in the national economy as a whole depends on the degree of perfection of the methods used for strategic management of territories.

The existing quantitative and qualitative parameters of the socio-economic space of the city characterize the main directions of use of the territory, which serves as the living environment of people with their social, cultural, national, spiritual interests, with their needs and preferences. The evolution of urban space, determined by constant adaptation to changes in environmental parameters, involves the transformation of functions and forms of social, economic and spatial organization of Russian cities, methods of management and self-government. In this regard, the issues of formation, transformation and strategic planning of sustainable development of large cities in accordance with the needs of the population and the search for ways to get as close as possible to the identified priorities are currently becoming very relevant.

The existing quantitative and qualitative parameters of the socio-economic space of regions and cities characterize the main directions of use of the territory, which serves as the living environment of people with their social, cultural, national, spiritual interests, with their needs and preferences. The evolution of the socio-economic space, determined by constant adaptation to changes in the parameters of the external environment, involves the transformation of functions and forms of social, economic and spatial organization of Russian regions and cities, methods of management and self-government. In this regard, the issues of formation, transformation and strategic planning of sustainable development of territories, especially large cities as historically established centers of concentration of economic activity, people and material objects, in accordance with the needs of the population and the search for ways to get as close as possible to the identified priorities are now becoming very relevant.

Conceptual framework for the strategic development of large cities

Modern large cities are centers in which the main production, financial, intellectual, and cultural potentials of modern civilizations are concentrated. As forms and methods of territorially organized socio-economic space, large cities represent a complex set of mechanisms for coordinating the multidirectional interests of citizens, government and business, which provide, on the one hand, the spatial conditions for the existence of social and production systems, on the other hand - methods and forms their interaction (production, social sphere, political and cultural institutions, etc.).

The formation of a model of sustainable development of Russian cities necessitates the development of a territorial planning mechanism that makes it possible to predict and plan the development of large cities as open economic systems with the ability to preserve identity, on the one hand, and quickly adapt to changes in environmental parameters, on the other. This will allow us to acquire new competitive advantages and achieve a qualitative improvement in the parameters of socio-economic development at the municipal level in the long term.

In this regard, the current goal of regional economic science is the development and constant operational review of strategies, plans and programs for the territorial development of a large city, algorithms and mechanisms for their implementation, the creation of new, universal indicators aimed at overcoming the dependence on the trajectory of previous development, by which the effectiveness and effectiveness of management decisions. At the same time, an analysis of the existing territorial strategies of various regions of the country confirms the fact that they have developed socio-economic development strategies that do not adequately meet modern requirements and conditions for the development of territories and are aimed, rather, at increasing the level of economic development of the region as a whole. The lack of detailed plans within the framework of development strategies indicates the need to develop a mechanism for implementing strategies for the sustainable development of a separate territory, paying special attention to the dynamism and flexibility of the developed strategic plans, based on updated universal tools that can be effectively transformed as external and internal conditions change, and constant monitoring and monitoring the main indicators of the plan and its subsequent adjustment become the most important stages in the structure of the developed territorial development strategies.

Factors in the institutionalization of strategic management of large cities are: strengthening the role of specialized structures that implement the function of developing targeted programs for the development of local communities; development of strategic plans for the development of local communities as a necessary component of municipal governance; development of an integrated approach to the formation of programs and evaluation of their effectiveness; application of a new approach to the organization of territorial planning, which is based on technology that ensures the integration of strategies that are developed at each level (municipality, region, federation); setting new tasks and priorities in the strategic development of the territory’s resource potential; updating and adjusting the composition of indicators used in planning and monitoring; extension of the planning horizon; updating the invariant aspect in the content of territorial development strategies and developing legislation on urban development planning; development strategies based on the full implementation of local governance.

Large cities of the world have a communicative and multifunctional nature of complex, open dynamic systems, the regulation of which involves choosing the optimal management solution from a variety of possible ones, and their structure is a highly diversified system of intersecting business clusters or territorial production complexes. Cities with a population of over a million can also be considered as holding companies or quasi-corporations, independently competing in the market, producing economic goods and public goods, the consumers of which are the population, local and foreign businesses, external investors, tourists and potential new residents, forming sales markets for the “territorial goods".

The most important characteristics of the economic development of a city, in addition to its continuity, include the direction of development (the development vector, which shows the nature of the changes taking place in the city’s economy - progressive or regressive, innovative or traditional, etc.) and the speed of development (the pace of development gives an idea about the speed of the onset of a new state of the city’s economy).

The fastest growing cities were in the mid-20th and early 21st centuries. zoning aimed at four categories of service consumers: citizens, investors, entrepreneurs, tourists. In some cases, growth arose at the intersection of four environments with different target groups and functions: “city for citizens”, “city for investors”, “city for entrepreneurs”, “city for tourists”, in others - growth arose in one of priority sectors, less often - in two, even less often - in three and four. The above spheres can exist either in parallel (as a result of zoning) or interpenetrate (overlap each other). They determine the choice, quantitative and qualitative assessment of indicators of sustainable development of the city.

The lack of a unified methodological and methodological basis for strategic planning of large cities forces researchers to turn to the neoclassical, institutional and evolutionary paradigms of modern economic theory, however, the heterogeneity of the elements of the strategic process makes it difficult to describe the components of strategic planning within the framework of any of the listed theoretical models, which creates the preconditions for turning to the systemic paradigm economic theory as the basis for building a unified theory of the strategic process. The evolution of the systems approach, which determined the transition from an endogenous to an exogenous interpretation of the system, made it possible to form a unified view of the strategic process as a system of strategic planning for the development of a large city.

Solving the problems of strategic development of regional systems and large cities, with any conceptual approaches, must ensure sustainability and balance of territorial changes, reducing the level of interregional differentiation, increasing the level and quality of life, the independence of regions and the city in choosing a strategy mechanism based on an objective assessment of their resource potential and its rational use

The main problems of the development of large cities are that management influence on the problem situation is often ineffective, since all changes or deviations in their social and economic parameters, external targeted or random influences that can lead the system to a position of instability are not taken into account. In order to make effective management decisions on issues of sustainable territorial development, local governments must carry out an objective assessment of the existing situation in the city, determine the relationship between the internal state, external influence and the influence of natural factors, as well as at what stage of the life cycle the city is currently located. moment. Analysis of methodological approaches to assessing the level of competitiveness of a city, as one of the most important indicators of sustainable development of an urban area, made it possible to put forward grounds for classifying the criteria and factors of a city’s competitiveness.

Particular scientific interest in cities with a population of over a million (global cities and large administrative centers) is due to their potential for further active economic development and the ability to become engines for improving the socio-economic level and quality of life in the regions and in the country as a whole. At the same time, large cities need support not only from federal and regional authorities, but also from public organizations and business communities, and also objectively need to be awarded special powers and special status, since they represent a complex social an economic system, the development of which should be carried out in the interconnection of all spheres of life of the territory.

In this regard, the paradigm of sustainable development is being updated as a new ideological model that combines the environmental, social and economic dimensions of the environment in a global perspective. In the process of co-evolution of economic, ecological and social systems, the development of relationships between them plays a decisive role, and to ensure sustainability, connections must be equally beneficial for each of them. This model is focused not on the consumer needs of individuals, but on the common good of present and future generations, and the main goal of society is to reduce resource consumption and change the consumption structure to improve the quality of life of people.

To identify the potential and most fully assess sustainable development, various methods and techniques are widely used to assess the state of territories (region, city) according to various categorical criteria: level of development, competitive status, attractiveness of the living environment, etc., including sustainability), which can be applied to any territorial entity in the process of analyzing the current situation within the territory under consideration in relation to other regions or cities. Summarizing their shortcomings, it should be noted the problem of the lack of reliable statistics, the subjectivity of expert assessments, and the incorrectness of comparing territories (for example, large and medium-sized cities). In addition, the variety of factors influencing the functioning and development of territories does not allow us to give them universal recommendations for achieving sustainable development. Among such factors, first of all, it is necessary to highlight: geographical location, industry specialization, historical and cultural characteristics, institutional environment, administrative status, etc.

The concept of calculating the index of sustainable development of a large city makes it possible to more realistically characterize the dynamics of its socio-economic development, evaluate key changes in its various indicators during the period of time under study, including competitiveness potential, and carry out a comparative analysis not only with the past period, but also with other territories (city), as well as with norms, plans and forecasts, etc. The use of such an indicator as the index of sustainable development of a large city is advisable for studying the role of external and internal factors that have a significant impact on changes in a particular phenomenon in the urban environment. The method of expert assessments makes it possible to conduct a comprehensive analysis of the territory according to leading socio-economic indicators, identify the conditions in which they are located, determine competitive directions in the development of the city, which will allow correctly drawing up a strategic development plan.

So, sustainable development of a large city is a complex concept that includes the most complete provision of the needs of its population; development of the industrial “locomotive” of the city in order to improve the level and quality of life of its population; harmonizing the lifestyle of citizens with the environmental capabilities of the territory; certain restrictions on the use of natural resources; minimizing the negative impact of economic and other activities on the urban system.

The core of the conceptual model of sustainable development of a large city is the core industry (sectors) of the city's economy, which contributes to the development of other industries and spheres of the urban socio-economic system; the “locomotive” is the development of labor and intellectual capital, and the coordinating body is the administrative complex of city government and enterprises of core industries; priority directions and factors determining the vector of core formation: favorable environment; social cohesion, level and quality of life of the population; economic efficiency and industrial potential; conditions for sustainable development: creation of a legislative framework at the federal, regional and municipal levels, information support, formation of civil society, greening of all areas of human activity and all needs; The “pivot points” of sustainable urban development can be several basic areas in which the city has natural competitive advantages (for example, one or more industries, tourism business, logistics center, etc.).

It is proposed to include the organizational and economic forms and methods of ensuring sustainable territorial development of large cities: legislative definition of sustainable development of the territory as the main goal of the functioning of cities in general and million-plus cities in particular; development and approval at the federal level of a unified methodology for determining the degree (index) of sustainability of large cities; formation of associations and funds for sustainable development of large cities; development of municipal-private partnerships, etc. The introduction of such organizational and economic forms and methods of ensuring sustainable territorial development of large cities will increase the level of socio-economic development of the group of cities under consideration and form them into “growth zones” of the national economy.

Indicative planning for sustainable development, as an evolutionary approach, is an effective means of developing interaction between federal, regional and municipal authorities in the interests of improving the economic system as a whole and its individual elements in accordance with the strategy for sustainable development of territories. Existing differences in scientific and methodological approaches to the development, methods of organization and forms of implementation of the indicative planning model determine its special, unique nature, which acts as a limiting factor in the dissemination of positive management experience, ensuring the consistency of plans for the socio-economic development of individual territories at various levels, since in these conditions in each territorial entity requires an individual approach to the development of indicative plans for territorial socio-economic development, its own indicative management model.

The universal indicative management model differs qualitatively from existing approaches by the system of indicators used, the main characteristics of which are completeness, flexibility, simplicity, representativeness of the situation, as well as the ability to “measure” positive and negative changes in the urban environment and take into account the existing comprehensive and sectoral statistics systems. Changing the system of indicators represents a specific strategy, since it takes into account all previous experience and, based on the system of the three most informative and interconnected blocks of indicators (economic, social and environmental), allows us to assess trends and propose mechanisms for state regulation of socio-economic development that ensure the achievement of target indicator values.

To meet the information needs of different categories of users, it is possible to use an organizational and economic algorithm for monitoring territorial indicative planning for the sustainable development of a large city. The composition of users of the results of monitoring the development of a large city can be determined by five dominant groups with an individual set of information needs - civil society, government agencies, the business community, investors and tourists. For the effective functioning of these groups within the urban socio-economic system, each individual subject must make the optimal decision from many alternative ones. At the initial stage of making strategic decisions, the designated user groups will use a different set of elements of the information base, both in qualitative and quantitative terms, which necessitates the differentiation of methodological approaches and the development of an organizational and economic algorithm for monitoring territorial indicative planning for the sustainable development of a large city.

The concept of territorial planning in the strategic management system

From the end of the 20th - beginning of the 21st centuries. In Russia there is an increased interest in strategic territorial planning. This concept is found in the legal framework, scientific literature, as well as in political programs and development strategies. Currently, there is an active process of developing strategies and strategic plans for the socio-economic development of cities and regions, forming a set of urban planning documentation at various territorial levels and other strategic planning documents.

The current stage of social development is characterized by the increasing role of research into the evolution of space and territory. Therefore, before moving on to the analysis of the concept of territorial planning in the strategic management system, we will consider the interrelated categories of “territory” and “space”.

The general scientific interpretation of the concept of “space” is close to the philosophical one, within which it is understood as a universal form of the existence of matter, inseparable from another form - time. However, the understanding of space that exists today is much broader than the philosophical approach, and many sciences actively use this general scientific concept in their research. In this regard, today economic, geopolitical, social and other approaches to the interpretation of space appear and are used in research.

Thus, economic space is a territory saturated with mutually located and interconnected elements (objects). The existing quantitative and qualitative parameters of economic space - density, location, connectivity, capacity, territorial gaps - characterize the main directions of use of the territory.

Space consists of various territories (geographical localities, zones) functioning in a single national organism, which have different spatial activity and degrees of accessibility. Territory, as a geographical object, is a special type of spatial grouping of material resources and, unlike natural resources that can be replaced or compensated for their loss, is irreplaceable.

However, at present, the concept of “territory” no longer has only a narrow geographical meaning, but can be presented as a socio-economic category. As it develops, the space (territory) is gradually filled with various objects - settlements, industrial enterprises, transport and engineering infrastructure, and connections between them are strengthened. The saturation of space (territory) with mutually located objects of various kinds and the deepening of their interaction is due to objective factors - natural, technological, economic, social, political, among which the determining one is economic. The territory is the arena of life for people with their social, cultural, national, spiritual interests, with their needs and attachments. Thus, at a certain stage of the formation of such a space (territory), the prerequisites and possibilities for its management appear.

In this regard, the works of Rokhchin V.E. are indicative. and Limonova L.E. who view territory primarily as an important economic category. So, Limonov L.E. in his works he focuses on the need to stimulate the development of urban areas, which he understands as “parts of urban space” that need to be turned into a financial asset. In this regard, the author proposes a set of measures aimed at creating attractive conditions for investment in urban areas. At the same time, the investment strategy, which should include both measures that create generally attractive conditions for the development of real estate, and measures of a special nature for particularly complex and important areas in urban planning, according to Limonov L.E., will allow attracting a sufficient amount of extra-budgetary, in including private investments.

V.E. Rokhchin, in his research, focuses on the division of the Russian Federation into subjects, considering each of them as a separate territory with individual characteristics, advantages and disadvantages, which are advisable to use when developing the strategic management of a certain territory. Despite the fact that in his works the author has a negative attitude towards the existing system of dividing the country into subjects, speaking about the need for its significant improvement, Rokhchin V.E. recognizes that this is a long process, and the need to develop each individual territory and all economic entities together does not allow wasting time.

We propose to consider the concept of “territory” as a complex category, including geographical, economic, socio-cultural and political interpretations (Table 1).

Based on this, we can derive a general, comprehensive definition of the concept of “territory”. Territory is a part of the geographical space of the land, which has resource potential and a certain set of anthropogenic properties and qualities; the economic activity of the society is carried out, including a set of relations developing in the system of production, distribution, exchange and consumption; the most complete development, self-affirmation and self-realization of society is provided; there is a power-political organization of society that has a certain apparatus of management and control that establishes a special legal order.

Table 1

Components of the concept of “territory”

Moving further to the analysis of ideas about territorial planning in the strategic management system, it should be noted that a detailed analysis of the documents currently being developed in the Russian Federation leads to the conclusion that some concepts have been replaced. The term “strategic territorial planning” in most cases hides a socio-economic plan for the development of a territory at a certain level - a municipality or a subject of the Federation without taking into account the territorial component. However, there is a fundamental difference between strategic territorial planning and the socio-economic strategy for territory development and urban planning. Strategic territorial planning is a set of strategies and concepts for the socio-economic development of an object, directly implemented in a specific territory, based on strategic goals, in a competitive environment, to achieve the best results in a certain period of time. Based on the territorial planning strategy, urban planning documentation should be developed in the future. In other words, territorial planning is the direct implementation of socio-economic policy measures in a specific territory.

In approaches to strategic planning, there are two opposing views on understanding strategy. In the first case, strategy is considered as a specific long-term plan for achieving a certain goal, while strategy development is the process of finding a goal and drawing up a long-term plan. This approach makes changes predictable, and the processes occurring in the environment are deterministic and amenable to complete control and management.

In the second case, strategy is understood as a long-term, qualitatively defined direction of development of an object, relating to the scope, means and form of its activity, the system of relations inside and outside it, as well as its position in the environment. With this understanding, strategy can be characterized as a chosen direction of activity in changing conditions, the functioning within which should lead the object to achieve its goals. The second approach to defining strategy seems to be the most accurate.

There are also a huge variety of definitions of the concept “development strategy”. In particular, strategy can be defined as the choice of main long-term goals, which reduces this concept to the method and process of choice; accordingly, the existing goal after the choice becomes strategic. The strategy also includes the need for an evaluative approach to the effective selection of a goal and directions of movement towards its achievement.

The category of “development” can be considered as an irreversible and natural process aimed at changing material and spiritual objects with the aim of changing them, forming new features and improvement, establishing new structural characteristics of the system, its growth and expansion. Territory development is a process of diversification, increasing economic and social activity, through the mobilization and coordination of its material and intangible resources of the territory. It involves both the improvement of economic activity, the use of organized production systems and centralized institutions, and the manifestation of the initiative of the local population.

Territorial development should include not only improving economic well-being, but also environmental, social, cultural and psychological well-being. It also implies research, discovery and innovation in all systems: social, economic, political, environmental, etc. It is the process of creating and strengthening human values. Development is the ability to see everything from a new point of view, as well as predict changes. Territorial development represents the change, improvement and vitality of a territory, an increase in the number of local residents involved in solving its problems, an increase in the number of business structures operating in a given territory, etc.

Accordingly, “development strategy” is a fairly capacious and at the same time multifaceted category. It is proposed that development strategy be understood as a dynamic set of interconnected management processes affecting various aspects of the life of the entire society, its individual subsystems and structural elements, within the framework of which goal setting, selection of priorities and strategy takes place, determination of optimal ways to achieve it, ensuring the effective use of all resources required for this. .

In order to implement a development strategy, successfully manage the national economy, constituent entities of the Federation, local governments, regulate various processes and phenomena occurring in society, all subjects of the management process need to accurately and correctly outline the goals they are pursuing, define a mission, prepare scientifically based measures, ensuring their achievement, evaluate and monitor their implementation. When implementing strategic management, the main emphasis is on the planning stage. Let us define planning, which is one of the functions of management, as a specific form of practical activity of people, consisting in the phased implementation of the preparation of management decisions in the form of forecasts, draft programs and plans, justification of the optimality of their resource provision, assessment of the implementation potential and verification of their implementation.

It should be noted that the strategic plan does not always ensure the successful implementation of the set goals, therefore the most important component of strategic management is the implementation of the strategic plan itself. At the same time, the process of its implementation has an active reverse influence on planning, which significantly increases the importance of implementing the plan.

Since the dynamism of the surrounding world is constantly increasing, it can be assumed that the strategy as a document revealing the company’s actions in the long term may lose relevance. Moreover, some authors believe that today, in conditions of a very unstable external environment, the development of a strategic plan is generally inappropriate. This appears to be a misconception; a strategic plan is necessary, and its implementation can be ensured by a combination of factors and a sequence of steps. It can definitely be said that the strategy itself largely depends on the methodological approach on the basis of which it was formed. The scientific literature identifies the following stages in the development of theoretical and methodological approaches to planning: functional; rational complex; gradual (step by step); strategic; planning based on social communication and cooperation; post-modern planning modernism.

So, strategic management is the management of an economic entity that relies on human (intellectual) potential as a basis, focuses its production activities on the needs of consumers, reacts flexibly and carries out timely changes that meet the challenge from the external environment and allows one to achieve competitive advantages. All this together makes it possible to function effectively in the long term, while achieving your goals. We believe that the goal of strategic territorial planning as a process of managing territorial development is to develop a development strategy, expressed in a certain documentary form (for example, a strategic plan), which includes a set of specific management decisions that are coordinated spatially, economically and organizationally.

The object of strategic territorial planning is an administrative-territorial unit of a country of one rank or another (region - subject of the Russian Federation, group of regions, municipality, etc.). And the subject of strategic territorial planning is largely determined by the specifics of its object and is multi-level in nature: in relation to a city, the basis of the subject of strategic planning for its development are municipal government bodies. In some cases, the state component may include representatives of regional and federal government bodies, as well as representatives of other management and business entities with strategic interests in the development of the city.

When identifying the basic principles and concepts of territorial strategic planning, it is of great importance to take into account its main differences from strategic planning at the level of enterprises and corporations. These differences are manifested in the following:

The autonomous position of regions and cities as objects of strategic planning and management is limited, both in economic and legal aspects. A firm, company or organization is autonomous in nature;

Firms and companies are clearly structured organizations designed on the principle of “unity of command”, where the influence of “interest groups” is minimized. The region as a complex socio-production system is represented by various kinds of “interest groups” that fight for power by legal means or informal methods;

The ultimate goal of the firm and the company is to maximize profits, and the regional system is to improve its well-being, quality and standard of living of its population. This determines the specifics of goal setting in territorial or corporate strategic planning;

Territorial systems have greater inertia than firms, companies, and corporations. This influences the use of strategizing models in them: in territorial strategic planning, predictive models are more popular than in the strategic planning of firms.

However, the transformation of economic conditions in Russia has determined a new status role for the region as an independent economic entity, a bearer of special interests distinct from the interests of other territories and the country as a whole, designed to ensure its competitiveness, innovative development and investment attractiveness. The change in the role of regions in the economic practice of the Russian market space has determined a new situation for it, independent competitive-oriented economic development and entrepreneurship.

In this regard, the objective consequence of the rational behavior of an economic entity is the search for a preferred type of economic activity, or business, that forms its competitive position in the market space. However, the developed system of positions regarding such management is presented in the economic literature only in relation to the enterprise level. Thus, J. Sapir points out that “the theory of preferences, at first glance, is an area that seems very narrow, often limited to microeconomics.” At the same time, as a result of market transformations, a new institutionalized, independent economic entity was formed, represented by the meso level - the regional level.

If previously the region was not considered as a subject of economic relations and acted as a spatially limited territory of concentration of natural resources, population, production and sales of goods, and services, then the new role of the region defines a whole system of logically interconnected theoretical and practical tasks of ensuring the effective management of this specific subject.

According to the legal framework, as a business (economic) entity, a region is a body that conducts business, carrying out certain economic (business) operations on its own behalf. A competitive regional position is understood as a set of competitive advantages determined by factors that create a favorable position for the region in the corresponding competitive field (market of goods and services, investments, capital).

Carrying out market activities, the region as an economic entity is faced with the problem of limited resources and limitless needs that determine the rational behavior of this entity. At the same time, being a standard situation for a company or corporation, the effective management of which is consistent with the methodology of economic theory, for the region such a methodology is still poorly developed.

In this regard, it seems that some of those indicated by Seliverstov V.E. The distinctive features of strategic planning at the regional level from strategic planning at the level of firms and corporations are common and the region can be considered as an economically sovereign entity that independently forms the criteria for choosing a sound business development strategy, interacts with national and transnational corporations operating on its territory, and has the ability to for self-development and ensuring their competitiveness in the market space.

In recent years, the role of cities in the development of regions and the country as a whole has been constantly increasing. One cannot but agree with the general position that large conglomerations with geographical centers - cities - should become new points of sustainable development of the country. Cities should be “relays” of a new culture, based not on social consumption, but on the development of the “city dweller” mindset, increasing the level of business and social activity of people and, as a result, improving the quality of their life. Taking into account the dynamism of the urban environment and external conditions, we believe that ensuring comprehensive sustainable development of the city and further improving the mechanism of urban management is impossible without the use of effective strategic planning tools that determine the level of institutionalization of territories. To substantiate the directions and solve problems of the development of territorial planning in the system of strategic management of cities, it is advisable to record a number of fundamentally important trends, including those that have appeared in recent years.

Modern development trends and approaches to the typology of large cities

The city is a complex mechanism capable of providing spatial conditions for the existence of elements of production and social systems, as well as aggregates of these systems - i.e. ways and forms of their interaction. In this regard, it seems that any large city should be considered not only as a set of functions, but also as a set of relationships that arise in the process of interaction between production, the social sphere, cultural, political institutions, etc.

The structure of a large city as a system lies in the ability to describe this system by establishing its composition, that is, the connections and relationships of the elements of the system; the conditionality of the behavior of the system by the action of its elements and the properties of its structure. For example, D. Zaripova proposed the structure of the city as a management system, including the interconnection of such elements as local society, ecosystem, city infrastructure and economy. The interdependence of these elements represents a cycle where each structural unit influences all the others. However, such structuring of the city in an enlarged form does not make it possible to identify all the elements of its subsystems, their internal and external connections, relationships and dependencies. The importance of such a decomposition of the urban socio-economic space is determined by the need to model the city and its subsystems. This will allow us to form not only a certain idea of ​​the city, but will also contribute to the rational organization of its sustainable development.

Socio-economic systems develop under the influence of exogenous, in relation to the system under consideration, and endogenous factors. The city, being an open system, can exist only if it interacts with the external environment, and since there is an interdependence of the system and the environment, the system forms and manifests its properties precisely in the process of interaction with the environment.

At the same time, the leading and most active element of interaction is the system, that is, the city. If we consider the Russian territorial structure as a system, then a system of a higher order consists of municipalities - the subject of the Federation and the Russian Federation as a whole, cities being the most active component, the centers of these systems.

It is advisable to identify a number of subsystems that demonstrate the hierarchy of the city as a system:

1) local community, differentiated by belonging to social groups (workers, employees, entrepreneurs, etc.); ethnic (nations, nationalities, ethnic groups, etc.), professional (representatives of certain professions), gender-demographic (men, women, children, youth, mature people, old people); territorial (residents of districts and microdistricts of the city); religious (representatives of various faiths), etc. Although some of the groups are not clearly expressed, their presence and composition also determine the potential and determine organizational measures for the sustainable development of the city;

2) city infrastructure, which includes life support systems, residential and non-residential buildings, commercial and non-commercial structures, industrial and social complexes, roads, bridges, overpasses, park areas, recreational areas for citizens and other objects;

3) urban ecosystem, including habitat (atmosphere, hydrosphere, lithosphere), subsystems of living organisms (humans, animals, fish, birds, other fauna and microorganisms) and plants (trees, shrubs, grasses and other flora);

4) city government system (bodies of direct, indirect government and local self-government);

5) the economic system of the city, in which subsystems of business entities can be distinguished according to a number of characteristics:

a) homogeneity of production across industries and sub-sectors;

b) the form of ownership of the enterprise (state, municipal, private, mixed, etc.);

c) spheres of activity (production, financial and credit, service sector, etc.);

d) location in the city;

e) size of enterprises (large, medium and small);

f) organizational and legal form of enterprises (commercial and non-profit organizations, joint stock companies, etc.);

g) market structure (labor market, goods market, capital market, etc.).

Of course, this is only one of the possible approaches to characterizing the properties of the urban economy and their rational consideration in the process of further development of the city. Depending on what goals and objectives are set for the development of the city, its economy, like other subsystems, can be considered according to other system-forming characteristics.

The most common basis for the typology of cities in modern geo-urban studies is a division based on any one criterion. Today, this is, for example, the size of the territory, population, economic and geographical location, period of origin, national economic functions, etc. Let's look at some existing classifications.

To date, in urban geography and urban planning, the classification of cities presented below by size depending on the number of inhabitants has been accepted:

Small towns - up to 50,000 inhabitants (Kurilsk, Ples, Vysotsk, etc.);

Medium-sized cities - from 50,000 to 100,000 inhabitants (Belovo, Vorkuta, Magadan, etc.);

Large cities - from 100,000 to 250,000 inhabitants (Ramenskoye, Zhukovsky, Pyatigorsk, Yuzhno-Sakhalinsk, etc.);

Large cities - from 250,000 to 500,000 inhabitants (Sochi, Belgorod, Bryansk, Cheboksary, etc.);

The largest - from 500,000 to 1,000,000 inhabitants (Saratov, Togliatti, Ulyanovsk, etc.);

Cities with a population of more than 1,000,000 inhabitants (Moscow, St. Petersburg, Novosibirsk, Yekaterinburg, Nizhny Novgorod, Kazan, Samara, Omsk, Chelyabinsk, Rostov-on-Don, Ufa, Volgograd, Krasnodar, Perm, Voronezh).

It should be noted that in accordance with the Constitution of the Russian Federation (Article 65) and taking into account the amendments introduced by the Laws of the Russian Federation on amendments to the Constitution of the Russian Federation dated December 30, 2008 No. 6-FKZ, dated December 30, 2008 No. 7-FKZ, dated February 5, 2014 No. 2-FKZ, dated July 21, 2014 No. 11-FKZ, three Russian cities are independent subjects of the Russian Federation: Moscow, St. Petersburg and Sevastopol.

We also note that in the framework of this study, the concepts of “million-plus city” and “large city” are used as identical ones.

It is necessary to note the typology of cities according to such a criterion as economic-geographical location (EGP). This typology seems to be the most complex and least developed. A number of characteristic types of EGP can be identified:

Cities that are located directly near deposits of fossil raw materials and fuel, in large mining areas, and are also connected to the entire country by the railway network (Moscow, Norilsk, Surgut, Solikamsk, Yegoryevsk, Novokuznetsk, Prokopyevsk, Tomsk, etc.);

Cities that are located in areas with developed manufacturing industries (Yaroslavl, Ivanovo, Serpukhov);

Port cities of several subtypes (Azov, Novorossiysk, Vyborg, Vladivostok, Tver, Yaroslavl, Kazan);

Industrial and transport cities that are located at railway junctions and other junctions of transport routes, which determines their functional structure (Moscow, Nizhny Novgorod, Novosibirsk, Krasnoyarsk Volgograd, Rostov-on-Don, Yekaterinburg), etc.

Cities located in areas of intensive agriculture (Krasnodar, Stavropol).

The national economic functions performed by cities include:

a) economic, including industrial, trade and distribution, transport and logistics, etc. functions;

b) non-economic, including military, administrative, recreational, cultural, etc. functions.

Cities are primarily engaged in one or more functions, the determination of which takes into account the population size of the industry. If there are several functions performed, cities are defined as multifunctional. In Russia, the functions of administrative centers are performed by the largest industrial cities.

Single-industry towns that perform primarily one function, for example, industrial, but have a diverse industrial structure, have favorable development prospects. This development depends on the ratio of economic sectors: new, promising and obsolete. And of course, not least about the ability of municipal administrations to carry out effective management and implement strategic planning.

Let's consider another classification of cities, the basis of which is their specialization, which determines the employment structure and production activities of city-forming enterprises. This classification basis was first used by Charles Harris in 1943. He developed classifications for American cities and, as a result, 377 cities were classified using his method.

Based on his developments, 9 categories can be noted. They are represented by industrial cities, cities with minor industrial functions, cities of the mining industry, retail and wholesale trade, communication cities, university cities, resort and multifunctional cities.

In Russia, according to functional characteristics, we can distinguish:

Administrative centers of territories (Novosibirsk, Vladivostok, Khabarovsk, Omsk, Perm, Ufa, Chelyabinsk, Volgograd, etc.);

Industrial cities (Tolyatti, Novokuznetsk, Lipetsk);

Resource-producing cities (Norilsk, Magnitogorsk, Yakutsk, Yuzhno-Sakhalinsk);

Agro-industrial cities (Stavropol, Altai Territory, Arkhangelsk Region, Bashkortostan, Belgorod Region);

Transport hubs and ports (Tuapse, Nakhodka, Kazan, Samara, Volgograd, Azov, Yeisk, Temryuk);

Resort cities (Sochi, Anapa, Gelendzhik, Pyatigorsk);

Science cities (Biysk, Obninsk, Dubna, Zhukovsky, Korolev, Reutov, Troitsk, Pushchino, Michurinsk);

Closed administrative-territorial entities (ZATO) (Zheleznogorsk, Zarechny, Zelenogorsk, Novouralsk, Ozyorsk, Seversk, Snezhinsk).

One can also distinguish such a classification basis as a professional sign. In this case, we can talk about military camps (Noginsk-9, Anadyr-1, Gorodok-17, Rzhev-3, Sklad-40), garrisons (Steppe, Domna, Kropotkin, Drovyanaya, Chernigovka, Kyakhta, Vozzhaevka), rotation camps and etc. These are small urban settlements.

The genetic classification of cities includes a group of characteristics such as, for example, the genesis of functions, the territorial organization of the city - appearance layout, geographical location, etc. The need for this classification is primarily due to the needs of urban planning, as well as the prospects for planning the development of entire networks of urban settlements. Using this classification basis, we can talk about cities that arose as the center of the principality, a factory center, a trading point, a transport hub, etc. One can note the differences in the layout of cities that arose in different eras. Their territorial organization consisted of a fortified city, comfortable suburbs, settlement centers for the poor, etc.

One can distinguish such a classification basis as a place in the territorial division of labor. Cities can participate primarily in the following types of division of labor:

a) local connections, administrative, economic and cultural centers of rural areas;

b) intra-district division of labor - by economic regions;

c) inter-district division of labor;

d) international division of labor.

This typology was proposed by Yu.G. Saushkin in 1960. It complements the most common functional typology. All differences indicate the scale of city-forming functions that the city performs.

It seems that the geographical classification of cities, in addition to size, functions, and place in the division of labor, should also include economic and geographical location. This is a specific resource for the city’s development, indicating both its implementation and yet unused opportunities for the city’s development.

There are also other classifications of cities. For example, such a classification basis as the life cycle of a city. In accordance with this classification, the following cycles can be distinguished: initial phase; phase of stable development; decay phase.

Classification according to the general vector of socio-economic dynamics includes the following categories:

- “dying”;

- “shrinking”;

Cities with stable development prospects that require increased operational efficiency;

Cities with potential for new strategic development.

Based on the type of ownership, state and market cities are distinguished.

G. Alexandersen developed a classification based on the choice of a certain criterion, denoting it as the share of average employment in the country among all employees in any sector of the economy on a certain date. Using this criterion, you can measure the importance of a certain city function.

M. Borshchevsky identifies three main approaches to the classification of cities: economic-geographical; regional economic; sociological. B. Khorev presented the point of view according to which the following classifications are most important for solving urban problems: functional; dynamic; hierarchical. Using an economic-functional approach, B. Khorev identifies the following types of cities: single-industry; with a predominant importance of industrial centers; with a predominant importance of transport centers; transitional cities; industrial cities without a clearly defined functional dominant; industrial cities-new buildings; cities with a predominance of health centers; other cities.

Economically and functionally, small towns can be divided into three groups:

Cities with a relatively large and developed economic base - industrial, transport, highly specialized;

Cities with a relatively small economic base are local centers;

The rest are new cities, scientific centers, and recreational centers.

Since the peculiarities of the functioning of small cities are determined mainly by the degree of adaptation to the market, the following types of cities can be roughly distinguished:

Cities adapting to market conditions: with enterprises focused on exporting products that are competitive in foreign and domestic markets; with enterprises producing competitive products on the domestic market, including those with foreign participation; cities of tourism and recreation; border cities; cities located in the zones of influence of the largest agglomerations.

Cities that are difficult to adapt to the market: cities that require radical conversion; cities in need of government support and the creation of conditions for the functioning of city-forming enterprises.

Cities that are degrading and stagnating due to various reasons: cities that are collapsing as a result of environmental factors, man-made impacts; due to geopolitical reasons; having no potential for economic development.

Today, there is the concept of a “global city (world city),” that is, one that has a direct and tangible impact on global processes, using economic, social, cultural and political means. The main characteristics of such cities are: international fame; active influence or participation in international events and world affairs; millionaire city; presence of a large international airport; developed transport and infrastructure systems; presence of international financial institutions; vibrant cultural life; globally influential media outlets reaching international audiences; strong sports community. In our opinion, these characteristics need to be expanded by the presence of a metro (high-speed tram), a crematorium, a waste processing plant, and a 5-star hotel.

Among Russian cities, Moscow and St. Petersburg can be classified as “global (world) city”. World cities with a full range of services include Milan, Chicago, and San Francisco.

Speaking about Russian large cities, it is worth noting the centers of the Federal Districts, the so-called interregional capitals. Examples of such capitals are: St. Petersburg in the north, Yekaterinburg in the Urals, Novosibirsk in Siberia, etc.

It should also be noted that informal centers have gained their fame due to urban specialization, historical past, special geography, as well as other reasons by which a city can easily be defined. Such centers are well known - these names are often used in informal communication. The most famous informal name of the center is the cultural capital of Russia - the city of St. Petersburg. There are less well-known, but nevertheless used names, for example, Belgorod is considered the sugar capital, Astrakhan - the fishing capital, Vladivostok - the seaside capital, Yekaterinburg - the engineering capital, etc.

Administrative centers (regional capitals) can also be divided into large ones (with a population of more than 1 million people, for example, Volgograd, Kazan, Yekaterinburg); medium (with a population from 500,000 people to 1 million, for example, Astrakhan, Ryazan, Yaroslavl) and small (with a population of less than 500,000 people, for example, Belgorod, Magas, Elista).

In addition, it is proposed to classify all Russian cities not only on the basis of population, but also on the basis of significance in the process of increasing the socio-economic level and quality of life in the country as a whole. This approach allows us to assess the zone of influence of Russian cities in the world community. Figure 1 shows the proposed hierarchy of Russian cities.

There are other classifications. Taking a specific indicator as a basis, cities can be classified in different ways. Classification or typologization makes it possible to find in each city the most significant, created by general patterns. Table 2 presents some approaches to the typology of cities.

Rice. 1. Hierarchy of Russian cities (done by the author)

table 2

Basic approaches to typology of cities

Evgeniy Georgievich Animitsa

Doctor of Geographical Sciences, Professor, Honored Scientist of the Russian Federation, Head of the Department of Regional and Municipal Economics of the Ural State Economic University

Strategic planning for territorial development: essence, basic principles, problems

Heated discussions about the relationship between the plan and the market, about the role of the state and collectivist forces in regulating the processes of social development are of a fundamental nature. Both in the world and in our country, scientific schools and individual scientists have been opposing each other for decades in the interpretation of these fundamental issues, in the search for ways to resolve contradictions in this area.

It should be emphasized that the desire for macroeconomic state planning was not a specifically Russian or Soviet feature. By the beginning of the 20th century, the idea of ​​conscious regulation of the national economy was, without exaggeration, central to the development of economic thought.

For the first time, domestic economic science faced the problem of combining planned and market methods of regulating economic activity in the 20s of the twentieth century. One of the largest economists of that time, professor of Moscow State University L.N. Yurovsky emphasized: “The normal planned elements of our economy do not at all liquidate the commodity economy and do not displace it.” He argued that there would be both a market and a plan together, but it would be “not the planned economy that takes the place of the market, but something else.” Outstanding economist, Nobel Prize laureate F.A. von Hayek, a fierce opponent of totalitarian, “large-scale” planning, wrote: “The popularity of the idea

“planning” is associated, first of all, with a completely understandable desire to solve our common problems as rationally as possible, so that we can foresee the consequences of our actions. In this sense, everyone who is not a complete fatalist is a “planned” thinker. And every political action is an act of planning (at least it should be such), good or bad, smart or stupid, far-sighted or short-sighted, but planning.”

J.K. Galbraith, one of the famous American economists, especially developed problems related to

"the nature of industrial planning". He noted:

“The state regulates the aggregate demand for the products of the industrial system, which is an integral condition for its planning.”

Weaknesses and strengths of the territorial planning system in the USSR. As Professor Yu.Ya rightly notes. Olsevich, the planning experience of the Soviet economy has not yet found a comprehensive analysis and assessment.

We do not set out here the task of giving a comprehensive analysis of the system of directive planning, identifying its positive and negative aspects. We will focus our attention on some fundamental aspects of the development of territorial planning, which was a relatively independent form of national economic planning.

The objects of territorial planning in the USSR were various types of territorial combination of productive forces - territorial production complexes, industrial hubs, meso-districts

(economic regions within a region, territory, autonomous republic), large economic regions, union republics, macrozones.

Critically assessing the experience of territorial planning

and forecasting in the former USSR, we will highlight

following.

Firstly, the regions and especially the cities of the country did not have the necessary rights and opportunities to independently develop and especially implement territorial plans. Only plans for the development of the urban economy were made, the activities of enterprises and organizations were planned at industry and departmental levels. The adopted planning documents were for the most part not a “guide to action”, not the core of an active regional and local economic policy, but only a set of numerous indicators and forms reflecting departmental studies of individual areas of development of a region or city. Despite the name, the comprehensive nature of planning documents was practically not respected. The situation was even worse with the implementation of planned tasks. Only those that were provided with resources and responded to the initiative of departments were implemented.

The reason for this is not only in the methodology and organization of planning, but also, most importantly, in the general conditions for the functioning of the region in the command-administrative system.

Secondly, many pre-planned and planned

documents at the regional level were not coordinated with each other, and often simply duplicated each other. At the same time, a scientifically based concept for the development of the territory was not developed in most regions and cities, which hindered the construction of a targeted and coherent system of integrated regional development.

Thirdly, one of the main reasons for planned deficiencies was the objective rejection of any territorial (local) initiatives by the departmental structure of the national economy, and it was not possible to reverse this trend within the framework of the command-administrative system.

Negative aspects of directive planning and forecasting can also include: excessive bureaucracy in the organization and formalism in the content of planning;

often unjustified centralism in making planning decisions;

lack of coordination of economic units; ignoring the interests of enterprises and territories, the predominance of a departmental approach to the development and implementation of plans;

orientation towards orderly, directive forms of implementation of planned targets and the absence of an economic mechanism for planned regulation;

formal use of scientifically based principles and methods of planning and their reduction to the principle “from what has been achieved” and to the “incremental” method of determining planned indicators and standards.

In general, the existing system of directive planning was fully consistent with the ideology of command-administrative management and management. Under certain historical conditions and a certain focus, directive planning has proven effective. In particular, it was characterized by integrity, focus, organization, and attachment to the existing structural links of the management apparatus, thanks to which directive plans became an integral element of the command and administrative system. The methodology of directive planning was distinguished by the depth of elaboration and breadth of coverage of many aspects and aspects of the formation of planned

documents. Such declared planning principles as variability, optimality, prospects, continuity, resource availability, and complexity had scientific and practical significance. Scientific planning methods were used: normative, balance sheet, program-target, comparison of options, economic-mathematical, statistical, game simulation modeling. These and other positive aspects of the Soviet planning system could be used in the new conditions of the transition period.

However, in the early days after the start of radical economic reforms, any attempts to apply even individual elements of programmatic, planned ideology to the emerging market economy in Russia were met with hostility, because they were interpreted as a return to the communist (socialist) past.

The need to develop a new planning ideology in modern conditions. The collapse of the methodology and practice of strict directive planning systems in the conditions of so-called real socialism, the rapidly developing processes of globalization and the intensification of international competition, the increasing orientation in almost all countries towards market mechanisms of self-regulation, the desire to advance in solving classical social problems have sharpened the attention of scientists and politicians to the problem of planning .

In September 1992, the World Conference on Planology was held in the city of Palermo, on the initiative of UNESCO and other organizations. Many conference participants interpreted planology as a single trans-discipline that integrates concepts, theories, scientific approaches of macroeconomic planning, social design, planning operations and decisions, etc.

This conference emphasized that the destruction of a centrally controlled economy does not mean an absolute negation of the planning role of the state. Only the nature of the institutional organization of planning is changing, as the need for control and monitoring of socio-economic and other processes, the need for foresight is intensifying.

There is an urgent need to create a new ideology, a new philosophy, a new paradigm

planning What is fundamentally new and radical in the content of planning? What is its essence?

Let us highlight the most important, in our opinion, points.

1. Planning is an increasingly recognized in the world as one of the foundations for making political decisions at different levels of the hierarchy, characterized by a long-term orientation in time and space.

2. One of the most important principles of planning in a new way is deep complexity, complexity of diversity, multidimensional complexity associated with the variability of socio-economic development, using a combination of different approaches, methods, orientations, tools, images, taking into account diverse factors and conditions.

3. The most important methods of new planning are the construction of scenarios “from the future to the present” (and not “from the present to the future,” as was often done before) and social design, which provide long-term guidelines and targets.

4. The super-rationality of new planning presupposes a refusal to absolutize past historical experience, from outgoing ideas and patterns that are inadequate to modern requirements and trends.

5. One of the requirements for the new planning process is the mandatory consideration of moral and ethical standards, value preferences and orientation of society. Moreover, the field for choosing value and moral orientations of society can be structured (differentiated) depending on the “specific” weight of a particular ethical approach.

6. Concentration of attention on the decisive (critical) links in the system of sequential actions is a necessary condition for new planning. In this case, it is necessary not only to find and highlight critical points of development, but also to select, even if not the most optimal ones,

but the fastest, preferred options for overcoming them.

7. Current planning is predominantly indicative,

advising, a character that allows power structures and economic entities to navigate current events and determine a set of conditions that ensure the achievement of goals.

8. Flexibility in choosing different forms of planning approaches, linking them to specific conditions of place and time is an essential specificity of the new planning. Distinctive features and features of strategic planning. Strategic planning is one of the relatively new forms (types) of planning. In Western European countries, interest in strategic planning on the part of state and local governments has emerged since the mid-1980s, and in the United States, strategic planning methods have been used since the early 1970s.

Unlike Western countries, strategic planning in Russia began to take shape as an institution since the late 1990s, and in conditions of a borderline state of order and chaos, a complex interaction between old and new, and a constant search for methods and approaches that are unconventional for our country to resolve contradictions. It was only in 1997 that Russia's first urban strategic plan was developed - the Strategic Plan of St. Petersburg. In the course of this work, a methodology was formed, which was then developed and applied in dozens of cities. The strategic plan of St. Petersburg became widely known and stimulated many cities and regions of the Russian Federation to begin similar developments [see, for example: 24; 25].

The ineffectiveness of developing serious measures aimed at improving affairs in the economy and social sphere, without a vision of prospects for at least 10-15 years, is becoming increasingly obvious.

Strategy in our understanding is a generalized, sustainable scheme (model) of active actions necessary to achieve set long-term goals based on selected criteria and effective use of resources.

Strategic planning has the same characteristics as new planning in general.

At the same time, strategy is a specific type of planning, which is distinguished by a number of features. Let's highlight the most important of them.

Strategic planning in the spatial dimension is focused primarily on the regional and local levels, because territorial communities represent certain economic, cultural, historical and spatial-geographical entities with common structural connections, and in the organization and implementation of strategic plans, in the implementation of assigned tasks, the decisive role belongs to both local authorities authorities and the local population.

In addition, the field of political and economic risk at the regional and local levels is much smaller than at the national level, and the unpredictable consequences of decisions made may not be so destructive in scale.

Risk taking is the most important feature of strategic planning. Given the uncertainty of future socio-economic and political development, planning a strategic decision will inevitably be risky. In this regard, it is necessary to develop a new understanding and new heuristic approaches to uncertainty, to select new predictive procedures that reduce uncertainty.

A territorial development strategy is a modern type of so-called development planning, focused on the priority use of internal material, financial, labor and other resources and potential, increasing the competitive advantages of territories, and increasing their attractiveness for investors, firms, organizations, and the population.

Strategic planning is the main function

directions

(paths) of the desired future development of the object. If long-term planning is a function of time, then strategic planning is a vector of movement towards a pre-created image of the future; it is a line (not necessarily a straight line) of behavior that ensures the most effective achievement of the goal.

In particular, strategic planning at the city level should be viewed in two interrelated aspects: a) as a process and b) as an activity. Strategic planning is a process in which a city as a holistic system positions itself in relation to other cities, creates an image of its future and develops the necessary actions to achieve it. This image of the future determines the main goals, the main directions of movement and gives impetus and energy to this movement.

Strategic planning simultaneously acts as a practical activity related to the development of strategic decisions for the development of individual areas and objects of forecasting, the implementation of which ensures their effective functioning in the long term. The result of this activity is a strategic plan, which is a document complex in structure that integrates into a coordinated whole the interdependent general plan, mission, main development goals, internal resources, methods, methods and organizational actions that ensure the achievement of the desired milestones and goals and advancement in the chosen direction.

In connection with the identification of the strategic direction of development of the territory, the establishment of its mission (purpose, vocation) or, in other words,

strategic status of future development.

For example, the mission of Yekaterinburg in the foreseeable future is seen as turning it into a multifunctional center with elements of a world city, the core of which will be a scientific, production and financial information complex capable of integrating Yekaterinburg into

global economy, integrate into the latest national and regional processes and create a comfortable environment for the living (life) of its inhabitants.

A successful mission statement is very individual and suitable only for the city for which it is developed. The mission of a city is a unique form of “response” of each city (territory in general) to the “challenges” of society (mesosystems, external environment), initiating the implementation of certain basic functions, taking into account its role in the local, regional, national and global development space. It is the “challenges” that have roots in the external (in relation to the city) multi-level environment that are the driving force for the dynamic development of the city.

One of the principles of strategic planning is a focus on achieving fundamental (nodal, key) targets on which the survival and development of the planned object depends. Therefore, it is necessary to set scientifically based clear goals (stages), as well as to determine the time frame for their achievement.

In particular, the main strategic goal of the development of Yekaterinburg is to ensure a sufficiently high quality of life for current and future generations of citizens and its further sustainable improvement based on the effective use of internal resources, the development of the multifunctionality of the city, integrated into the regional, Russian (national) and world economy.

The end result of strategic planning for the development of territories is the achievement of precisely social goals, which consist in improving the quality of life of the population living in a given territory.

The mission and the most important goals for the development of the territory form a strategic vision that allows us to determine in the most concise form what kind of territory (city, region) can become in the surrounding world at a certain stage

evolution.

Taking into account the peculiarities of the current stage of the country’s development, and the current level of domestic scientific thought, strategic plans for territories cannot be strictly categorical in their form and content. They are largely conditional. Nevertheless, strategic plans for the development of territories must be scientifically based. This means that, firstly, they must be based on certain theoretical premises and patterns, on the postulation of certain conditions. Secondly, strategies must be realistic, plausible, i.e. There should be no ambiguity in the concepts used for foresight in relation to the time or time interval to which the strategy relates, and the background information must be reliable.

Thirdly, at the strategy level, predicted events and processes are not characterized in precise quantitative form. Only approximate quantitative boundaries of the development of socio-economic and other trends, the patterns of their occurrence, can be given, especially since the diverse characteristics of human behavior and many elements of the quality of life do not lend themselves to strict formalization.

Fourthly, strategic territorial planning is in many ways an art, because it also includes an element of creativity, combines insight and intuition with a deep analysis of real processes, and involves a choice between necessity and chance, rationality and irrationality.

Fifthly, strategic plans and strategic decisions are inertial in nature, which does not allow them to be radically changed immediately after decisions are made.

Sixth, methodological techniques, procedures, reasoning, as well as the strategy itself in general, must be verified by experts, understood by other people, and not just

by the developers themselves.

Strategic plan for the territory, characterized by

democratic openness, must pass through the “sieve”

collective dialogue processes and interactions,

through the free choice of various groups of the population.

Therefore strategy is a social contract

(agreement, contract) based on new forms

communication, partnership of the main actors

development - state bodies, local bodies

self-government, economic entities, most

influential institutions, organizations, associations,

public, population groups.

The basis for the implementation of the strategic plan is strategic projects. In particular, the strategic plan of Yekaterinburg identifies 8 strategic directions that determine the vectors of development of individual areas or subsystems of the city, 27 strategic programs representing a system of interrelated measures aimed at solving social, economic and other problems, and more than 100 strategic projects.

If the strategic plan provides a scientific basis for the directions of activity, then it is the system of strategic projects that is designed to implement them in practice.

Each project is a set of specific activities, provided with resources (including financial ones) and designed to solve some particular or local issue. A fairly fractional division of projects makes it possible to increase their manageability and the feasibility of the strategy as a whole.

In conclusion, it should be emphasized that the decisive role in the development and implementation of strategic plans for territories belongs to government bodies, local governments, and the first leaders (officials) of the corresponding territories. In Art.

Federal Law “On General Principles of Organization of Local Self-Government in the Russian Federation” (2003) among the powers of local government bodies in paragraph.

6 highlights “the adoption and organization of implementation of plans and programs for the comprehensive socio-economic development of the municipality.”

In order for strategic plans for the development of territories to become an effective tool for making long-term decisions, the political will of regional and local authorities is required first of all.

Literature

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The development of a territory can only be realized through systematic activities that are focused on achieving specific advantages of the territory in the market compared to competitors. An important tool for territory management is strategic marketing planning, which has recently begun to be used in the concept of spatial development.

Strategic marketing planning for local development is defined as a systematic and clear decision-making process that shapes priorities and allows for appropriate choices to be made regarding the allocation of limited resources (i.e. time, money, skills) to achieve agreed goals that reflect local social values. It is also a process of finding and creating coherence between the territories' goals, market opportunities and the territory's available resources, with a focus on long-term goals.

Strategic marketing planning for a territory is based on the assumption that the future of a territory is highly uncertain, but the territory must be a flexible system that can accept potential environmental changes and adapt to them quickly and effectively. This means that the territory must create systems that are able to control changes in the environment and constructively use its capabilities. They include planning, implementation, control, and information systems.

Target Strategic marketing planning of a territory is to meet the commercial and non-commercial needs and expectations of the territory's stakeholders through restoration and (or) optimal use of its potential. At the same time, it is necessary to take into account changes in the market, in the external and competitive environment, opportunities for promotion in the national and international space and the interests of the population of the territory.

To accomplish this task, it is necessary to analyze the current situation of territorial development, the strengths and weaknesses of the territory, competition and global trends, the market, target segments and their needs, as well as determine the compliance of territorial production and exports with the needs of the market.

All this is a necessary condition for creating an optimal strategy for the development of the territory.

Basic principles strategic marketing planning in the context of territory management and development is as follows:

• complexity territorial and spatial development, which implies coverage of economic, social, cultural and environmental aspects of the territory;
• focus, allowing the strategic and political goals of the territory to be determined for optimal response to current needs and problems;
• orientation to needs and problems residents, businesses, tourists and investors as stakeholders of the territory;
• creation of a single platform for various forms of partnership between stakeholders and groups in the territory.

There are various approaches to highlighting stages strategic marketing planning process. However, they all boil down to the fact that strategic marketing planning of a territory includes five stages: the conceptual stage, the stages of analysis, strategy development, implementation, control and evaluation.

The stages are interconnected, and each of them is the subject of assessment and control (Table 4.2).

Table 4.2

Territory marketing strategic planning process

In the process of strategic marketing planning for territorial development, the prerequisites for creating various options for spatial development in the future are determined, as well as methods and tools that are effective in specific conditions.

Conceptual stage. Modern territorial development indicates that if the territorial planning process does not begin with the formulation of vision, mission and goals, then it is not possible to make an effective analysis and then create a quality strategy. This reduces the chances of beneficial influence on the development of the territory and creates confusion for all interested parties.

At the conceptual phase, the values ​​and highest goals of territorial development, taking into account long-term consequences, are determined taking into account the following factors of the territory:

• the policies being pursued;
• visions;
• missions;
• the main goal of territorial development;
• marketing goal of spatial development.

Policy covers the underlying attitudes, beliefs and values ​​that influence the long-term thinking and actions of the territory's key players. The principles of the chosen policy influence the way of creating a spatial development strategy, the nature of the vision, the development of the territory, the quality of territorial products, prices, marketing communications, personnel policies, public relations, relations with employees, etc. From the point of view of public administration, this means state policy based on territorial self-government or regional policy.

Vision- this is an idea of ​​the future of the territory over a long period. The most general vision for a territory may be to achieve its prosperity. It can be implemented directly or indirectly. An indirect way to achieve this goal is to increase the attractiveness of the environment, which not only has its own significance, but is also a factor influencing the decision to locate companies in a given area. Attractive conditions may represent one of the sources of a territory's competitive advantages.

Formulating a vision for the development of a territory means creating brief but objective assumptions about how the territory should look in the future from the point of view of its consumers and their real priorities.

The iron ore industry occupies a special place in the economy of the Central Black Earth region of the Kursk Magnetic Anomaly (KMA). Thus, the volume of iron ore reserves in this region is about 60% of all identified iron ore reserves in Russia. At the same time, a significant share of the identified iron ore reserves is located in the Belgorod region.

The development vision for this region is focused on the development of the mining cluster that has developed in the Belgorod region. At the same time, it unites enterprises engaged in the extraction and primary processing of minerals (iron ore and related products of stripping operations), and metallurgical production.

A direct way to increase territorial prosperity is to increase the attractiveness of the territory as a location suitable for modern companies to operate.

Mission contains the purpose of development of the territory, a clear general goal of activity that expresses why a specific territory exists, who are its main consumers, what is its basic philosophy, what are the main territorial values ​​and norms, what are the basic principles of the functioning and development of the territory, management by her. The mission of the territory takes into account the strategic options for its development and the status of the territory within the macroenvironment.

The concepts that form the mission should be expressed in writing - this allows you to extract new ideas from them and revise them in case of sudden changes.

The mission of the territory is translated into spatial development goals that serve to measure the success of the mission.

Under purpose Territorial development is understood as a desired position, the achievement of which is planned in the future. Goals should be “smart” (from English SMART):

S- specific- specific;

M - measurable- quantitatively measurable;

A - achievable/acceptable- achievable/acceptable;

R- realistic / relevant- realistic/appropriate (to resources);

T - time-specific / trackable- limited in time.

The best goals that reflect the vision and mission can be formulated as general qualitative goals without an emphasis on quantitative assessment.

For London in Canada:

• vision: leader in trade, culture and innovation - connecting the region with the world;
• mission: partnership of respected public services, building a better city for all;
• Goals: personal responsibility, collective responsibilities, collaboration, innovation.

Analysis of consumer demand. Analysis of consumer demand involves the study of factors of spatial development, namely the analysis of:

• marketing environment;
• demand in one or more markets;
• competitors;
• quality of territorial management.

Each of these types of analysis, except for the analysis of the quality of territorial management, is a separate part of this stage. Analysis of the quality of territorial management can be a separate part, but most often it is a component of the analysis of the internal environment.

The source of information for analysis and subsequently for development strategy, implementation and control are marketing information systems - an internal information system, a reporting and marketing research system.

Marketing environment analysis. Analysis of the marketing environment covers the internal and external environment of the territory.

Internal environment analysis is intended to describe and characterize the current state of affairs, to discuss the features, benefits and problems associated with current and future trends. It is based on knowledge of territorial significance and assessment of one’s position.

Location analysis evaluates the position of a territory in relation to:

• territory development;
• size of space (macro, meso and micro space);
• transport accessibility;
• the nature of socio-economic changes in the territory.

Analysis of the current state of affairs is an analysis of the size of the territory (area, population), tangible and intangible elements of the environment.

The image of the territory, its attractiveness, charm and aesthetic values ​​are assessed qualitatively. The general appearance of the territory is defined as its visual and mental perception. The charm, attractiveness and aesthetic value of the territory are understood as recognition of the quality of the natural and built environment. These characteristics are difficult to define or measure. They consist of a set of qualities that may be part of the territorial space or reflected in the physical characteristics, symbols or associations associated with the territory. These parameters are also active factors in the success or failure of a territory in the market and determine its competitive advantage.

The term “external environment” includes the surroundings of the study area. External environment analysis reflects positive or negative information influencing the given territory from the outside and reflecting possible changes in the external environment.

Such information combines the influence of a combination of the following factors:

• economic;
• social;
• demographic;
• political;
• legislative;
• technological;
• environmental;
• global trends.

The development of the external environment must be analyzed not only in the past and present tense, but also in the future. Thus, it is necessary to monitor the most important trends in the world in various areas of life that can have an impact on the territory under study. This is especially important when looking for options for potential areas of development of the territory, its competitive advantages, potential markets and promising innovations.

In this regard, among the leading global trends it is necessary to highlight the following:

• long-term trend of increasing environmental awareness (residents, businesses, tourists show no interest in places where pollution levels have been exceeded. On the contrary, there is a growing interest in less polluted natural environments, which can be places for housing, recreation, etc.) ;
• changes in family composition (there is a change in the typical family model, the number of one-person households is growing, the birth rate is decreasing, the age structure of the population is changing);
• changes in lifestyle (prevailing tendencies to “escape from daily stress”, “voluntary self-restraint”, growing desire to learn, independent decision-making, increased opportunities for communication, etc.).

These facts have a significant impact on changing the needs of the territory's stakeholders, which influence the formation of the territory's competitive offers, using its existing or potential advantages.

Market analysis. An important part of consumer demand analysis is market analysis. It is clear from marketing philosophy that the key to success in the market is to understand the needs of current and potential customers (customer, buyer and consumer). Since territory as a product satisfies different customer groups, it is necessary to consider customer markets at the point of sale.

In its most general form, the market is divided into the consumer market and the organizational market. Consumer Market consists of all persons who use the product to satisfy their own or household needs. Market of organizations consists of all individuals within an organization who purchase or use a product that meets their needs.

Place marketing theory identifies four target markets: visitors; residents and employees of companies; entrepreneurs and investors; export markets.

In market analysis in area marketing, target markets may be represented by one or more customers. So, they distinguish:

• residents market;
• visitor (tourist) market;
• employment market (highly skilled labor force, skilled labor force or labor force without special skills);
• market of entrepreneurs and investors (manufacturers of goods, service providers, agricultural producers, industrial companies, mining companies, high-tech enterprises and organizations, investors, representatives of large corporations, trading companies);
• market of organizations (self-government bodies, public administration, public and private commercial or non-profit organizations);
• export markets (capable of producing goods and services of interest to other territories in domestic and international markets).

Each of these markets has its own structure. Markets of residents, visitors, consumer markets and industrial markets, export markets are markets of organizations.

Success in competition with other territories depends on the ability to analyze the behavior and changing needs of current and potential customers in the market, as well as the ability to meet their needs and expectations better than competitors.

Territorial customers include current or potential customers who live in, visit the territory, or satisfy their needs through various activities. In order to identify customers whose needs and territory requirements can be best met, it is necessary to analyze the market using market research. These can be implemented by collecting primary and secondary data. Given that market needs are constantly changing and evolving, it is most effective to implement primary market research.

Most of the various studies assessing the development of a territory divide consumers into the following groups: demographic, social, functional, which do not reflect consumer behavior.

The current consumption pattern, which depends on the process of globalization, increasing flexibility, mobility, individualism, competition, substitution products and market saturation, requires a flexible approach to consumer and organizational markets. Current or potential customers of a territory have more than one consumption motive, use more than one function of the territory, equipment, services, etc., and their consumer behavior is determined by their attitude towards the territory's products used.

To determine a high-quality marketing strategy, it is necessary to adjust the offer of the territory taking into account the needs, requirements, motivations of customers, based on detailed knowledge of their socio-economic, demographic, geographical, psychological and behavioral characteristics. For marketing decisions, ego means the need to form a demographic profile of the territory’s clients, including their social status, needs, interests, motives, ways of obtaining information about the territory, etc.

Territory as a multi-functional product satisfies different needs of diverse customers, which increases the need for proper segmentation of the market. For each territory, it is important to identify groups of customers whose needs and expectations can be best met. The strategic success of a territory depends on market segmentation, targeting and placement of the territory's offer in certain parts of the market.

Currently, the most preferred approach for carrying out market analysis is known as targeted marketing, where the key steps are:

• 1) market segmentation;
• 2) selection of the target segment and segments of responsibility;
• 3) determination of market position.
• 1. Market segmentation. At the first stage, the market is divided into segments, then profiles of the latter are developed. Market segmentation is the process of allocating heterogeneous markets to various homogeneous groups, each of which can be described as a target market/segment. A specific marketing mix is ​​developed for each individual group.

Territory segmentation is effective if criteria are applied that allow it to be quantified and measured.

In territorial marketing, there are two effective ways to identify and quantify market segments:

• segmentation based on the relationship of the market to the product,
• segmentation based on consumer characteristics.

In the analysis of territorial marketing, you can use both methods simultaneously or one of them.

The first type of product-focused segmentation helps identify consumers who prefer a particular territory or certain products of a territory.

Cheese, watches, Swiss chocolate - these are the country's brands by which Switzerland is recognized throughout the world. The presence of many counterfeits only confirms the high demand for chocolate of Swiss origin. After all, only thanks to the ingenuity of this nation, Swiss chocolate, whose brand names are well-known to many, acquired its unique taste. The Swiss made discoveries not only in the field of chocolate recipes. Many patented ideas were born on this soil - for example, a mixer for mixing dry cocoa powder and sugar.

Segmentation, based on the market's relationship to the product, consists of two stages:

• 1) definition of the product under study;
• 2) analysis of aspects that distinguish consumers of territorial products from those consumers who do not consume them. This approach can be used as a basis for research into how consumers perceive various territorial offers and what arguments are of particular importance to them. Analysis of existing proposals of the territorial market allows us to determine the competitive position of the territory, and the proposals put forward can become a potential competitive advantage of the territory.

Segmentation, based on consumer characteristics, is carried out as follows.

First of all, to identify and quantify market segments, the territorial market is divided into segments according to certain criteria. When a wide range of criteria is used, we can talk about multidimensional segmentation.

All criteria for assessing the territorial market can be divided into two main segment types: consumer market or producer market (Table 4.3).

Table 43

Characteristics of consumers

At points of sale geographical segmentation is of particular importance. In terms of the function of the territory (trade, housing, work, leisure, etc.), it can be divided into five main segments of existing and potential consumers:

• local consumers;
• consumers from the surrounding area;
• consumers from more remote areas/regions;
• national/domestic consumers;
• foreign consumers.

In order to form a profile of a typical consumer of an area, it is important to combine geographical characteristics with other characteristics. Customer needs and preferences are significantly influenced by demographic characteristics (age, marital status, education, etc.). Thus, another commonly used criterion is demographic a criterion whose characteristics are easily measured and defined.

Psychological criteria quite often make it possible to determine the reasons for preferences for a particular territory. An important factor in this is lifestyle.

Thanks to its small population, Iceland is one of the least polluted countries in the world. But clean air is not the only reason Icelanders are healthy. They also excel in gymnastics. Due to the cool weather for much of the year, Icelanders exercise, partly to beat the winter blues. The country has one of the highest life expectancies (72 years for men and 74 for women). It also has one of the lowest child mortality rates (2 deaths per 1,000 children). Magazine Forbes rated Iceland as the healthiest country in the world.

Behavioral The criterion is used to segment in detail the consumers who use the offer in the territory and those who do not use it, for example, general customers, products, prospects who do not show interest in the territory. This makes it possible not only to identify loyal customers and create a special offer for them, but also to find out why some customers do not return to the territory. Such results can be a source of suggestions and ideas, which are the starting point in creating a territory's competitive advantages, which can help attract customers from other territories.

By intensity of consumption consumers are divided into those who have repeatedly expressed interest in the territory, and those who have expressed interest in the territory once, as well as those who quickly or slowly adapt to new offers of the territory.

Behavioral analysis also includes customer satisfaction analysis, which can determine the dominant factors in the decision-making process for site preference. It focuses on parameters such as reasons, length of stay in the territory, and frequency of visits.

The trend of population migration from cities to nearby settlements has contributed to the formation of a certain group of clients with higher requirements for quality of life. A typical example is the construction of rural settlements in the suburban area.

This group is characterized by higher needs for public services, the natural environment, etc. The increased demands of the “new” citizens of the territory create significant problems associated with financing these needs and the lack of funds necessary for this.

Some communities are trying to meet the needs of displaced people by creating new social and cultural opportunities. In particular, by opening new stores and creating a variety of services.

The purposes of arrival to the territory can be: business, investment, work, trade, housing, free time, recreation, education, etc.

For each segment that is identified based on the selected criteria, it is necessary to develop a consumer profile.

2. Selecting the target segment and responsibility segments. The second step of target marketing is to select a target segment or specific target segments. For an effective segmentation process, the selected segments must be evaluated in terms of attractiveness and the nature of the products.

In scientific literatureterritory attractiveness criteria include:

• quantity (segment size);
• profitability (the ability of a territory to generate profit for economic growth);
• operational potential (the ability to carry out effective marketing for the target segment);
• stability (the ability to resist changes in the external environment and competitors’ proposals);
• feasibility study (ability to bear acceptable costs);
• profitability (the ability to offer a specific marketing mix, unique offers, competitive advantage for the selected segment);
• purchasing power (the ability of the selected segment to consume the proposed product currently and in the future);
• timeliness (the ability to meet the needs of the segment at the present time).

Each segment must be clearly defined, large enough, accessible and measurable. Territorial leaders must decide how many and which segments are targeted for a specific territorial proposal.

Three approaches to the formation of a territorial strategy in the market can be distinguished: undifferentiated strategy, differentiated strategy and market concentration strategy.

Undifferentiated strategy applies if the selected market is more or less homogeneous. In an increasingly competitive environment, this approach is unsuitable because it ignores differences in customer needs and expectations.

The opposite of an undifferentiated strategy is concentration strategy. In conditions of limited opportunities for creating a territorial offer, it is necessary to focus on one segment. A concentrated strategy is usually based on a single marketing mix that meets the needs and expectations of customers in the target segment. It is suitable for areas with weak targeted marketing.

Differentiated strategy used in cases where competition is focused on all market segments. In such a situation, the territorial benefits of a particular proposal, based on one or more competitive advantages, will be targeted at several segments. The choice of these target segments should be treated with caution, since such a decision will have long-term consequences for the development of the territory. Typically, the costs of differentiated strategies exceed the costs of undifferentiated ones.

In an environment where a territory offers a variety of products satisfying different segments, area marketing uses all market coverage strategies.

3. Determination of market position. The third step of target marketing is to determine the market position of the territory (its positioning).

The starting point for deciding on the positioning of a territory in the market is the choice of the target segment or segments. Determining the current market position of a territory in the market and creating a new position based on a SWOT analysis of the territory are based on identifying the main criteria by which target segments are assessed and selecting the territory.

Market position often occupies one of the main places in the minds of consumers, which is an important criterion for distinguishing a particular territory from the offer of competitors; it reflects the perception of the target market's territorial offer. Establishing a position in the market is a very important step for long-term success. Segmentation is a prerequisite for determining the current market position and helps in developing a position in a new market by creating an offer that meets the expectations and increases the satisfaction of the target market or target consumers.

Market positions are based on such specific features of the territory as its uniqueness; the goals the proposal is aimed at; expansion of consumer groups and direct comparison of territorial offer with competitors.

Determining a current or creating a new market position can be based on a direct comparison of a given territory with competitor territories or without this comparison.

The existence of alternative competing territories on the market creates a need to understand the decision-making process of various subjects (residents, investors, tourists, etc.), to identify the tendency to transform the interest of these subjects into their activity (ability to act) in relation to territorial consumption. This activity is usually expressed in the following decisions:

• for an investor - to invest in territories;
• for a resident - to live on the territory;
• for a tourist - to visit the territory, etc.

Clients compare various alternatives and selection criteria to select the most suitable territory.

Among the criteria for decision-making, the following parameters stand out:

• attractiveness of the territory (natural, cultural and historical opportunities, attractiveness of the suburb, general appearance of the territory, climate, etc.);
• impressions of the territory (noise or silence, crowded streets, cleanliness, modern architecture, etc.);
• psychological and sociological aspects (sense of personal safety, family, friends, colleagues, crime, etc.);
• time aspect (time to travel to or from the territory, highways and other transport systems; time required to resolve issues with the administration, to obtain information, etc.);
• cost of living (cost of housing, services, transportation, the possibility of receiving various financial benefits; reductions in taxes or fees; return on investment, etc.);
• work, education, healthcare, culture, recreational opportunities, etc.

Competitor analysis. Successful spatial development strategies can be created by searching for unique opportunities that create a strong competitive advantage. Therefore, part of the marketing analysis of a territory is an analysis of competitors, which is based on a comparison of a given territory with other territories. Analysis of competitive territories allows you to use the strengths and specific advantages of the territory and eliminate potential threats.

In the past, marketing planning focused primarily on customer needs. The focus on competition only emerged in the 1980s. One of the reasons for the interest in competitors was the transition from peaceful coexistence of territories to aggressive competition.

Competition stimulates the growth of innovation and increases the efficiency and effectiveness of methods.

Territory marketing uses methods and tools that can facilitate significantly more effective methods of interaction, especially in the context of non-price competition.

For a systematic analysis of competition, it is appropriate to identify current and potential competitors, determine their missions, goals and strategies, their positions and attractiveness in the market, strengths and weaknesses, and much more.

The sequence of steps in competition analysis is as follows.

• 1. Identification of competitors. At the beginning of the analysis phase, it is necessary to determine whether it is a competitor analysis based on product or market availability. Subsequently, a decision must be made on the type of competition, which will be further analyzed in terms of time and geography.
• 2. Analysis of competition goals. Knowing the goals of competitors helps to find out whether the competitor is satisfied with the results achieved and what his plans are for the future. The goals of competitors are determined by many factors, such as the size of the territory, history, current management, and the economy.
• 3. Strategy analysis. Analysis of past and present competitors' strategies has a great influence on subsequent development. In addition to the basic strategy, a comparative assessment of competitors is necessary through strategies of marketing tools, such as comparing the offer of the territory with a competitor in terms of territorial potential, price, cost, financial background, accessibility, popularity of the territory, the relationship of competitors with other competitors. In the study of competitive attitudes, the behavior of each individual competitor must be analyzed separately.
• 4. SWOT analysis of competition. Based on the previous steps, the strengths and weaknesses of competitors are identified and supplemented. The information concerns, inter alia, competitors' market shares, the size of their budgets, debts, funds received from foreign sources, new investments and the use of production facilities. Information about competitors can be obtained from secondary sources, personal experience, and rumors.
• 5. Assessing the likely behavior of competitors and their response to changes in the market. It is important to consider how quickly and how intensely competitors will respond to the strategies of other competitors and how likely new competitors will be to enter the market.

Stage of developing a marketing strategy for the territory. The strategy sets out the goals, as well as the means and resources to achieve them.

A territory marketing strategy is an orderly marketing procedure that is expected to achieve marketing objectives. It includes specific strategies for target markets, marketing mix and level of marketing spend. The creation of a marketing strategy should be based on market needs and environmental influences.

In place marketing, the marketing strategy determines what should be done if the future of the territory is unclear and it is difficult to assess future events. If a territory wants to effectively cope with various changes and quickly adapt to new opportunities, then it is necessary to create a plan of procedures and activities that will provide solutions to issues related to services, production, and activities.

A spatial development marketing strategy presents directions for future development, tools and methods for achieving them. It is a plan for a longer period and therefore consists of several intermediate stages.

The overall goals set out in the conceptual stage are achieved according to the established time frames. Marketing objectives must be set for various areas that affect the prosperity and development of the territory. They determine mainly market position, the need for innovation, material and financial resources, increasing the level of productivity and qualifications of workers, public responsibility and municipal profit.

In the marketing strategy for spatial development, we take into account the fact that each territory has its own character and potential. Creating a marketing strategy for a territory requires a multidisciplinary team approach.

Each spatial development strategy answers the questions: how the territory will develop, how to gain a competitive advantage, what strengths and opportunities should be used, and whether there are resources necessary for the successful implementation of the strategy.

One of the important principles in territorial marketing is the analysis of several options for a marketing strategy. They must consider various options to fight for the development of the territory. Alternative marketing strategies must be supported by theory and conditions for implementation in practice.

There are four main types of marketing strategy for territorial development: growth, stabilization, decline, mixed strategy. Growth strategy is a progressive type of strategy aimed at increasing market share or entering new markets. Purpose stabilization strategies is to maintain the achieved positions in the market and make changes only when necessary. Decline strategy takes the form of consolidation or reduction if the current focus of development in an area has been unsuccessful in the chosen area. Combined strategy is a combination of two or three previous types of strategies. It is of particular importance because it solves problems in the long term and ensures adaptation to the current situation.

Based on the assumption that the formation of a marketing strategy for territorial development is based on the target segment, on using the strengths of the territory and eliminating risks, the creation of alternative options should be based on SWOT analysis (for more details on SWOT analysis, see Chapter 11).

Marketing strategies for territorial development are based on the current status of the territory in the market and differ depending on the purpose of the territory - expansion in a new market, gaining or maintaining its position in the market, etc. From various options of strategies, those that are best feasible at a particular time are selected.

Territorial development and creation of a competitive position through competitive advantage in the market can be achieved through five strategies for target markets:

• a strategy aimed at attracting tourists, businessmen and entrepreneurs in the tourism sector;
• strategy for attracting enterprises;
• strategy for supporting and developing existing business;
• strategy for developing exports and attracting foreign investors;
• strategy for increasing population size and changing population composition.

There is no universal strategy for a specific market situation. There are also no clearly defined laws that will help you build the best marketing mix. This fact was confirmed by research from Harvard Business School in 1929. Scientific methods help in analyzing the market, selecting target segments, measuring achievements, but marketing is still based on experience and intuition. Thus, marketing is often described as an art.

Marketing tools are very important for creating territorial offers and competitive advantages of the territory. Marketing integration ensures that the overall marketing strategy is aligned. Marketing allows you to determine which territorial offer, in contrast to competitors' offers, is best suited for target segments.

The meaning and use of various marketing tools varies depending on the specific situation; they are effective only when combined optimally. Creating an effective combination of different marketing tools is a prerequisite for creating a successful offer on the market and its implementation.

Implementation stage. Implementation of a territorial strategy means its application. At this stage, plans and strategies for implementation in the territories are prepared.

Action plans for implementation are required at all levels of territory management. Detailed budgets and timelines can then be set for all areas of marketing, including those outside the institution (eg, public-private partnerships, advertising agencies, etc.). We have so far emphasized the need for a detailed and thorough action plan, but it is important to note that this plan is action-oriented and contains programs designed to provide clear guidance for the implementation, ongoing assessment and control of territory marketing activities.

Stage of control and feedback of the territorial strategy. The final stage of the planning process is the creation of an effective system for receiving feedback and monitoring the territorial development plan. The feedback and control system should be considered as an integral part of the entire planning process, since they play an important role not only in the implementation, but also in changing the conditions of marketing plans.

The marketing plan is the main marketing management tool, and its flexibility - the ability to quickly respond to a specific market situation - is one of the main principles. Some natural disasters, changes in exchange rates, prices or changes in consumer demand can either increase or decrease the attractiveness of an area. When this happens, you need to react quickly and make changes to the plan. A feedback system is used to monitor changes.

Exists three elements of the control process.

• setting standards. Standards must be clear, achievable and consistent with regulations in each territory;
• measuring performance against standards:
  • - obtaining measurements,
  • - providing quick feedback,
  • - the use of various territorial methods, including reports, meetings and special measurements of individual parts of the marketing program, for example, cost-benefit analysis for customers, marketing audits, etc.,
  • - comparative analysis, which allows comparison with competitors;
• Correcting deviations from plan: Perhaps the most difficult decisions that must be made are determining when performance has deviated sufficiently from plan to require corrective action.

• Shulgina N. Ya., Ermolaev D. V. Prospects for the development of the mining cluster of the Belgorod region based on the ore reserves of the Kursk magnetic anomaly // Modern problems of science and education. 2015. No. 1-1. URL: https://www.science-education.ru/ru/article/view?id=l 7661
• Swiss chocolate brands // AllChoco. URL: http://allchoco.com/interesnoe-o-shokolade/brendy-shvejcarskogo-shokolada.html
• Biktimirova N. 7 countries where the healthiest people live // ​​Facepla.net. 08/09/2011.URL: http://www.facepla.net/the-news/nature-news-mnu/1529-healthy-countries.html

MINISTRY OF AGRICULTURE OF THE RUSSIAN FEDERATION
FEDERAL STATE BUDGET EDUCATIONAL INSTITUTION
HIGHER PROFESSIONAL EDUCATION
"RUSSIAN STATE AGRICULTURAL UNIVERSITY -
Moscow Agricultural Academy named after K.A. Timiryazev"
(FSBEI HPE RGAU - Moscow Agricultural Academy named after K.A. Timiryazev)

Faculty of Humanities and Pedagogy
Department of State and Municipal Administration

COURSE PROJECT
Discipline "Sustainable development of territories"

Topic: Strategic planning of territory development (using the example of N. Novgorod)

Completed by: 4th year student, group 404
Faculty of Humanities and Pedagogy

Head: senior teacher

Defended Score
"___"___________ 20_g. ___________________

Moscow 2014

Table of contents
Chapter I. Strategic planning for territory development 5
1.1 Concept and essence 5
1.2 Territorial planning 8
Chapter II. Analysis of the Nizhny Novgorod region as an object of strategic planning for the development of the territory 10
2.1 General characteristics of the Nizhny Novgorod region 10
2.2 Characteristics of the main development risks of the Nizhny Novgorod region 12
2.3 Assessment of the implementation of municipal target programs of the Nizhny Novgorod region 19
Chapter III. Long-term development planning for the Nizhny Novgorod region 23
3.1 Strategic priorities of the Government of the Nizhny Novgorod region 23
3.2 Target structure of the economy and forecasts 34
3.3 Key areas of government activity 35
Conclusion 46
Bibliography 48

Introduction

The relevance of research. At the present stage of socio-economic development of the Russian Federation, regional problems are becoming increasingly relevant. Russia consists of 88 subjects, each of which, in turn, includes many municipalities - large and small cities, rural administrative districts, hundreds of settlements. Each of them is characterized by a unique economic structure, specific reproduction cycles, and its own social sphere. To achieve the goals of sustainable economic growth of the Russian Federation, it is necessary to ensure the overall development of each of the municipalities.
The Russian Federation has achieved some success in suppressing inflation, making social payments, and transitioning to a growing trajectory of economic development. However, these positive trends are not manifested evenly across the country. Many subjects continue the difficult “struggle for survival,” which allows us to put forward the thesis of growing regional asymmetry. In addition, increased regional differentiation has extremely negative consequences for the socio-economic development of the state as a whole.
Developing a development strategy for the Nizhny Novgorod region is the most important task both in regional science and in practical activities. The content of the city development strategy is determined by the specific socio-economic situation, and its development is impossible without taking into account and assessing the development prospects of leading enterprises located in the city.
Leading enterprises are city-forming enterprises that determine the profile or specialization of the city. Strategic choice of profile is the key to future success in developing competitiveness factors and attracting or retaining consumers.
It is achieved through strategic urban development planning using tools for developing and implementing decisions on a long-term vision of the future. In general, strategic planning is a special type of planning work, consisting in the development of strategic decisions in the form of forecasts, projects and programs that involve setting goals and development strategies, the implementation of which will ensure their effective and sustainable functioning in the long term.
The object of the study is a set of social relations that develop in the process of strategic planning for the development of a territory using the example of the Nizhny Novgorod region.
The subject of the research is strategic planning for the development of the Nizhny Novgorod region.
The purpose of this work is to characterize the essence and specific features of strategic planning for the development of the territory using the example of the Nizhny Novgorod region.
Achieving this goal seems possible with the help of the following tasks: 1) give a general description of the Nizhny Novgorod region; 2) study the problems of development of the Nizhny Novgorod region; 3) consider municipal and target programs of the Nizhny Novgorod region; 4) characterize the strategic priorities of the Government of the Nizhny Novgorod region; 5) analyze the key areas of activity of the Government of the Nizhny Novgorod region.
The structure of the work consists of an introduction, two chapters, a conclusion and a list of references.

Chapter I. Strategic planning of territory development
1.1 Concept and essence

Strategic planning at the municipal level can be defined as “a systematic process by which local communities (with the participation of all stakeholders) create a picture of their future, based on local resources, external and internal conditions, and determine stages and activities to achieve intended goals .
The strategic development plan can be considered as a reflection, presented in documents, of the desired future state of the economic and social structure of the region (goal) and the way to use available and realistically possible resources to achieve this.”
The initial principles of strategic planning for territorial development are:
1. Reliance on available resources. An objective accounting of material, financial, labor and scientific resources will make it possible to correctly assess the competitive advantages and capabilities of the territory and determine the main directions of its development.
2. Taking into account historical and spatial-geographical features and patterns of development of the territory. The natural economic and sociocultural course of events must not be disrupted, but it is necessary to creatively continue them.
3. Taking into account global development trends, as well as scientific, technical and socio-economic processes.
4. Search for allies. Territories alone, and especially individual municipalities, cannot cope not only with the implementation of their plans, but also with current problems. Allies should be sought in all instances and spheres: among higher authorities, in the business environment, the media, and science. One cannot do without positive public opinion.
5. Elimination of imitation. You should not strive to become a shadow of another territory.
To understand the problems that hinder the spread of strategic planning, it should be borne in mind that, firstly, it is not adequate to the establishment by society of a certain order and the unquestioning implementation of activities strictly in accordance with pre-determined tasks, i.e. is not built on the basis of command orders. Secondly, with strategic planning, achieving the future is not implemented as a rigid line of behavior, but acts as a vector of movement that can constantly adjust its direction under the influence of newly emerging conditions and factors. The main thing here is the implementation of the mission of developing the territory. Thirdly, strategic planning is not a self-regulating system that acts under the influence of external conditions and adapts to them.
When forming a strategic planning mechanism, one should proceed from the need to respect the interests of all participants in the development of the territory: government, business, and the public. But the driving force is always the government: it not only realizes its interest, but also creates conditions for the effective functioning of enterprises, improves the investment climate of the territory, and provides equal competitive opportunities for all partners.
Agricultural economists A.V. Merzlov, A.L. Novoselov and N.V. Chepurnykh note: “Attention should be paid to the fact that the strategic plan is not a law or a decree that must be observed by the administration, entrepreneurs and citizens. It is mandatory to the extent that the administration considers it the basis of its economic policy. A well-developed strategic plan is the basis for implementing more detailed plans for each year. It should be borne in mind that the strategic plan does not represent a certain guarantee of the implementation of the envisaged development strategies, but is only an important tool that helps in the implementation of the chosen areas of development. It is always based on information that was known when it was developed.”
According to the Ural economist V.S. Bochko, the positive aspects of strategic plans are:
systematic resolution of objective contradictions;
integrated use of resources available on the territory;
purposeful implementation of structural restructuring in the territory in the direction of diversification of the economy and services;
moving away from the “raw materials” focus of local economic development;
subordination of investment activities to the creation of comfortable production, cultural and living conditions for the population of the territories;
gradual approach of municipal economies to world-class development standards.
V.S. Bochko writes: “Since the economy of Russia, and therefore the regions, is catching up, it is impossible to get out of this state by gravity, without special organizational efforts. We need creative coordinated actions by the authorities, all structures and social groups. This opportunity is represented by the development and implementation of strategic development plans for territories, i.e. developing comprehensively and solving social issues not only on a residual basis, but on the basis of targeted programmatic development. In such conditions, the main results of the implementation of strategic plans will be:
increasing the competitiveness of the territory;
developing a new way of thinking about the forms and methods of territory development;
the formation of structures on the territory - locomotives of economic development;
synthesis of state municipal regulation and market self-regulation;
the formation in the territory of a new, corporate type of relationship between government, business, the public and other structures.
The end result of the strategic development of the territory is the achievement of a social effect from the activities carried out, which consists in increasing the well-being of the population living in this territory.”
1.2 Territorial planning
Until recently, there were no regulatory documents obliging regional and municipal authorities to use strategic planning when choosing prospects for the development of a territory. With the entry into force of the Town Planning Code of the Russian Federation, state authorities and local governments are obliged to carry out territorial planning. According to Part 1 of Article 9 of the Town Planning Code, “Territorial planning is aimed at determining in territorial planning documents the purpose of territories, based on a combination of social, economic, environmental and other factors in order to ensure sustainable development of territories (our italics - Author), development of engineering, transport and social infrastructures, ensuring that the interests of citizens and their associations, the Russian Federation, constituent entities of the Russian Federation, and municipalities are taken into account.”
Part 3 of Article 9 determines that “territorial planning documents are mandatory for state authorities and local governments when they make decisions and implement such decisions.”
According to Part 4 of Article 9, “It is not allowed for government bodies or local government bodies to make decisions on the reservation of lands, on the seizure, including through redemption, of land plots for state or municipal needs, on the transfer of lands from one category to another in the absence of territorial documents planning, except for cases provided for by federal laws.”
According to Article 30 of Chapter 4 of the Town Planning Code, to “create conditions for the sustainable development of municipal territories, preserve the environment and cultural heritage sites”, “create conditions for attracting investment, including by providing the opportunity to choose the most effective types of permitted use of land plots and capital construction projects" zoning is carried out.
Legislation on zoning of territories in our country is in its infancy. Legislative acts directly related to zoning of territories have yet to be adopted.
At the moment, zoning of territories is carried out in accordance with the norms contained in the Land, Forest, Town Planning Codes, federal laws “On Specially Protected Natural Areas”, “On Railway Transport in the Russian Federation”, “On Communications”, etc.
Chapter II. Analysis of the Nizhny Novgorod region as an object of strategic planning for the development of the territory

2.1 General characteristics of the Nizhny Novgorod region

The Nizhny Novgorod region is a subject of the Russian Federation in the center of the European part of Russia. It is part of the Volga Federal District. The administrative center is Nizhny Novgorod.
One of the largest regions of Central Russia. Area - 76,900 km², length from southwest to northeast - more than 400 km.
Population - 3,297.047 thousand people (2012). Population density: 43.44 people/km² (2011), share of the urban population: 78.9% (2011).
Borders: in the northwest with the Kostroma region, in the northeast - with the Kirov region, in the east - with the republics of Mari El and Chuvashia, in the south - with the Republic of Mordovia, in the southwest - with the Ryazan region, in the west - with the Vladimir and Ivanovo regions.
Rivers - Volga, Oka, Sura, Vetluga.
The Nizhny Novgorod region today is:
territory - 74.8 thousand square meters. km (0.4% of Russian territory),
population - 3524 thousand people (2.4% of the Russian population),
GRP - 222.4 billion rubles. (2012) (1.9% of Russia's GDP) .
In terms of revenue in the region, the leaders are the automotive industry (share of the sector in total revenue in the economy = 13.8%), transport and logistics (8.5%), food industry (7.4%), ferrous metallurgy (6.8%), At the same time, telecommunications (4.6%) and electricity (3.9%) are leading among the supporting sectors.
The largest employment of the population is provided by the automotive industry (93 thousand people), agriculture (73 thousand people), transport and logistics (64 thousand people), as well as the scientific and educational complex (55 thousand people). Among the supporting sectors, the leading sectors in terms of the number of employees are the housing and communal services sector and construction (62 and 34 thousand people, respectively).
The highest level of wages is in the information technology sector (more than 21 thousand rubles per month), fuel (14.33), chemical and pharmaceutical (11.4) and glass (10.28) industries, while in these sectors of the economy A small part of the working population is employed. The highest level of wages among supporting sectors of the economy is in the financial, telecommunications and electricity sectors - from 8 to 11 thousand rubles. per month.
The highest level of labor productivity (output per employee) in 2011 was achieved in the glass, fuel, food industries, ferrous metallurgy and information technology sectors. In recent years, significant productivity growth has been achieved in the shipbuilding, glass, iron and steel and fuel industries - based on price indices in 2012-2013. growth rate of more than 10% (CAGR). The electricity and telecommunications sectors lead the performance of supporting sectors.
In terms of the volume of contributions to the consolidated budget of the Russian Federation in the Nizhny Novgorod region, the leaders are the automotive industry, transport and logistics, the food industry and construction.

2.2 Characteristics of the main development risks of the Nizhny Novgorod region

External factors can be both a source of benefits, opening up new opportunities for growth, and a source of problems. The government of the Nizhny Novgorod region takes into account the following challenges:
Proximity to economically developed industrial centers
More attractive payment conditions and opportunities in the labor market, developed infrastructure and living conditions outside the Nizhny Novgorod region stimulate the outflow of the most promising and talented, especially young specialists, to other regions of Russia and abroad.
Industrial centers such as Moscow and St. Petersburg are today leaders in attracting investment. Including the headquarters of the largest financial and industrial groups are located in these cities.
By creating a developed transport and logistics center on its territory, the Nizhny Novgorod region is forced to compete with such historically established hubs as Moscow and St. Petersburg, through which the bulk of goods are distributed today in the central part of Russia. Due to Moscow's preferences in the field of customs clearance, a significant part of cargo flows passes through the capital. On the other hand, the unique geographical location of the Nizhny Novgorod region is a good prerequisite for the creation of a competitive transport and logistics infrastructure in the region.
At the same time, the population of nearby large industrial centers provides the highest level of consumption of consumer goods in Russia, and industrial enterprises in these regions are consumers of raw materials, equipment and other industrial goods. All this opens up significant additional opportunities for enterprises in the Nizhny Novgorod region.
Federal center policy
Long-term strategic priorities for the country's development are defined in the Concept of long-term socio-economic development of the Russian Federation for the period until 2020, approved by Order of the Government of the Russian Federation dated November 17, 2008 N 1662-r (hereinafter referred to as the Concept of Development of the Russian Federation).
The strategic goal of Russia's development is to achieve a level of economic and social development corresponding to Russia's status as a leading world power of the 21st century, occupying a leading position in global economic competition and reliably ensuring national security and the implementation of the constitutional rights of citizens.
The implementation of the Development Concept of the Russian Federation involves the formation of effective incentives and mechanisms for economic development at the regional level.
Globalization
Russia's accession to the WTO will lead to increased competition in a number of sectors associated with the entry of foreign companies into the Russian market. At the same time, competitive enterprises of the Nizhny Novgorod region will be able to take advantage of the benefits of joining the WTO, including new opportunities for access to international markets.4
In the context of the globalization of the world economy, the role of internationalization of enterprises in the region will increase: involvement in international labor cooperation, exchange of people, knowledge, technologies, know-how.
Strengthening globalization processes allows companies to take full advantage of outsourcing part of their production processes in order to concentrate in those parts of the industry value chain in which Nizhny Novgorod enterprises are most competitive.
The tendency to strengthen the “economic power” of large international and Russian corporations that are already operating or planning to invest in business development in the region will continue. Decision-making centers are shifting beyond the region and often the state.
Knowledge Economy
Over the past 30 years, the share of intangible assets in the asset structure of leading companies has increased to 70%.
The most dynamic growth over the next 20 years is predicted in high-tech industries such as information technology, biotechnology, nanotechnology, and health products and services.
The most competitive in the future will be regions and countries that are able to form, develop and retain qualified human resources, as well as those that have a developed research and production complex with high innovative potential.
The role of China and India
The economies of China and India are and will remain in the coming years the main competitors of Russian regions for attracting foreign investment.
Nizhny Novgorod producers of goods with low added value will not be able to compete on price with producers from China and India due to the low cost of labor and significant domestic demand, which ensures a large scale of production.
At the same time, the economies of India and China are opening up new opportunities. Firstly, these are new dynamically developing markets with high demand potential, in which efficient Nizhny Novgorod enterprises can successfully compete. Secondly, the developing industrial potential of these countries provides Nizhny Novgorod enterprises with the opportunity to gain a cost advantage by concentrating only on those elements of the value chain that create maximum added value, transferring operations with low added value to the territory of these countries.
Safety, environment and health
The increasing threat of terrorism in Russia and throughout the world will lead to a significant increase in countries' spending on national defense and security (over the past 5 years, the national defense budget of Russia and the United States has been growing steadily at an average annual rate of 7%). The Nizhny Novgorod region, with a powerful military-industrial complex and advanced scientific developments in this area, can qualify not only for a state order, but also for part of the international financing of security costs.
Strengthening security measures is associated with the threat of reducing the intensity of the exchange of people, knowledge, technology and information, which may limit the ability of Nizhny Novgorod enterprises to successfully compete in international markets. Security risks also have a negative impact on tourism development.
Strengthening environmental standards and requirements will lead to the need for significant additional investments in the modernization of environmentally problematic industries, including chemical, petrochemical, metallurgical, pharmaceutical, agro-industrial and other enterprises.
The threat of global epidemics, including bird flu, is a significant risk factor not only for the population, but also for certain sectors of the economy.
Changing consumer preferences towards increased demand for environmentally friendly products, growth and large-scale investments in R&D and the production of health products.
Energy prices
Despite the fact that the economy of the Nizhny Novgorod region does not directly depend on energy prices, changes in the price environment could lead to a deterioration in the economic situation in Russia as a whole. This circumstance will primarily affect those sectors of the regional economy, the potential of which will be primarily related to the level of consumption within the country.
Let's consider the key problems of the Nizhny Novgorod region.
Low level of labor productivity. Most sectors of the economy of the Nizhny Novgorod region demonstrate a relatively low level of labor productivity. Even in sectors that have seen rapid productivity growth in recent years due to the introduction of new production technologies, large gaps remain (in the glass industry, productivity levels are 25% of current US levels). On average, for the basic sectors of the economy of the Nizhny Novgorod region, the level of productivity today is about 6% of the current level of productivity in the United States. This situation causes the inability of companies to pay high wages and determines the ineffective structure of employment of the population.
Lack of modern logistics centers and an international-level terminal complex, including efficient customs and warehouse facilities.
Underdevelopment of transport and logistics infrastructure
Despite the relatively high density of roads and railways, the presence of an integrated transport hub, the region has a number of problems in the field of transport and logistics infrastructure, which limits the possibilities of realizing the potential determined by its favorable geographical location, including:
Limited access to the northern regions of the Nizhny Novgorod region and the northern regions of the Russian Federation from the center due to the “disconnection” of the region along the river (the only road-railway bridge on a 300-kilometer section of the Volga River is capable of providing no more than 50% of peak loads).
The road transport system of Nizhny Novgorod is overloaded with transit transport due to the lack of a convenient bypass route, which leads to forced transport downtime and deterioration of the environmental situation.
Undeveloped infrastructure for cargo and passenger transportation at Nizhny Novgorod airport.
Insufficient cargo terminal capacity, lack of conditions for international operators, lack of regular routes, need to reconstruct the runway.
Limited permeability of the Volga riverbed in the area due to the low level of the Cheboksary reservoir (5 meters below the design level).
Energy System Limitations
In the Nizhny Novgorod region, there are restrictions on ensuring sustainable energy supply, especially for newly created or expanding production facilities.
One of the main problems of the region's energy complex is the underdevelopment of transmission and distribution networks.
High degree of wear and tear of generating capacities.
The shortage of energy capacity is felt in Nizhny Novgorod and Dzerzhinsk; the problem is especially acute in the area of ​​the left bank of the Nizhny Novgorod region. For example, in the Bor region there is a shortage of energy capacity of at least 100 MW.
Further development of the gas supply infrastructure is necessary; the degree of gasification in the northern regions of the region is insufficient.
Most developing enterprises in the region face difficulties and delays in connecting to the power grid. Obtaining technical conditions for the allocation of energy capacity is associated with significant difficulties and unreasonably high costs.
Relatively low quality of living conditions
The quality of living conditions in the region is one of the significant factors in the investment attractiveness of the region, and is also often a critical factor in the struggle for talented and qualified specialists. The concept of “living conditions” combines a set of parameters: the quality of living conditions, safety, environmental conditions in the region, the presence and level of development of infrastructure for culture and recreation in the region, the quality of the healthcare system.
Relatively low life expectancy and high infant mortality rates are indicators of the low quality of the health care system in the region.
The quality of housing conditions in the region is at the Russian average.
The environmental situation in the region requires significant improvement; today the level of pollution of natural objects in the Nizhny Novgorod region is higher than the Russian average.
Limited opportunities to provide affordable housing hinder the retention of Nizhny Novgorod university graduates in the region.
The region's relatively high crime rate also reduces the region's attractiveness as a place to live and vacation.
Low degree of internationalization (international cooperation)
Despite its high place in the ranking of investment attractiveness (4th place in the Expert RA ranking, 20011) among Russian regions, the Nizhny Novgorod region is characterized by a low level of international cooperation and integration into the international system of division of labor, which is a significant obstacle to the development of the economy of the Nizhny Novgorod region. The closedness of the regional economy prevents the exchange of people, technologies, knowledge and limits the possibilities for productivity growth of enterprises in the region.
According to such an indicator as the share of foreign investments in the total volume of investments, the Nizhny Novgorod region ranks 29th among Russian regions and 44th in terms of foreign trade turnover per capita (for 2011).
Only a few Nizhny Novgorod enterprises are active participants in international professional communities, and also make full use of best practices and international expertise to increase their competitiveness.

2.3 Assessment of the implementation of municipal target programs in the Nizhny Novgorod region

Currently, in the Nizhny Novgorod region, programs are being developed, both comprehensive, covering all areas of the territorial economy, and sectoral, dedicated to any one industry. In addition, there are programs devoted to the problems of a group of industries (for example, sectors of social infrastructure), as well as programs aimed at solving problems within regional settlements.
Important factors determining the need for programmatic development of the problem at the regional level are:
strategic significance of the problem for the development of the region,
the impossibility of solving the problem without concentrating resources of various affiliations and targeted support from the Regional Administration,
the need to coordinate intersectoral connections to solve the problem,
high efficiency of technical, organizational and other measures proposed for implementation and ensuring structural changes in the economy,
Significant social, economic, environmental effect. The process of development and implementation of regional target programs involves: the initiator of the program development of the problem at the regional level, the state customer of the regional target program, the implementer of the regional target program. The initiator of the programmatic development of a problem at the regional level is any individual or legal entity who comes up with a proposal and justification for the programmatic development of a problem at the regional level; state customer of the regional target program - Administration of the Nizhny Novgorod Region; implementer of the regional target program - a committee, management, administration department, other organization that is responsible for the timely preparation and implementation of the target program, ensuring the effective use of funds allocated for the implementation of the program, the function of coordinating the actions of participants in the implementation of the approved program.
Currently, numerous development programs for various industries have been developed and are being successfully implemented in the Nizhny Novgorod region. Let us list, as an example, some programs that are currently operating in the Nizhny Novgorod region.
Regional target program "Creation of family kindergartens in the Nizhny Novgorod region in 2011-2020"
Regional target program "Energy saving and increasing energy efficiency of the Nizhny Novgorod region for 2010 - 2014 and for the future until 2020
Regional target program “Stimulating the development of housing construction in the Nizhny Novgorod region for 2011-2015”
Regional target program "Providing housing for young teachers of general education institutions in the Nizhny Novgorod region using a mortgage loan for 2012 - 2014"
Regional target program "On additional measures aimed at reducing tension in the labor market of the Nizhny Novgorod region in 2013."
Comprehensive target program for the development of small and medium-sized businesses in the Nizhny Novgorod region for 2011-2015
Regional target program "Development of social and engineering infrastructure as the basis for improving the quality of life of the population of the Nizhny Novgorod region for 2011-2014"
Regional target program "Youth of the Nizhny Novgorod region" for 2009 - 2011"
Regional target program "Development of social and engineering infrastructure as the basis for improving the quality of life of the population of the Nizhny Novgorod region for 2012 - 2014"
Regional target program “Development of domestic and inbound tourism in the Nizhny Novgorod region in 2012-2016”
Regional target program "Development of education in the Nizhny Novgorod region for 2011-2014."
Regional target program "Preservation, revival and development of folk artistic crafts of the Nizhny Novgorod region in 2012-2014"
Industry development program for the Nizhny Novgorod region for 2009-2014
Program "Providing housing for young families in the Nizhny Novgorod region" for the period 2011 - 2014
Program for modernizing the healthcare system of the Nizhny Novgorod region.
The “Buy Nizhny Novgorod” program for 2009–2014 is aimed at creating favorable conditions for the effective activities of local producers, stimulating the promotion of their products in the regional and Russian markets, and reducing consumer inflation in the Nizhny Novgorod region.
These and many other programs make it possible to more effectively organize the development of various sectors of the socio-economic sphere of the Nizhny Novgorod region.

Chapter III. Long-term development planning for the Nizhny Novgorod region

3.1 Strategic priorities of the Government of the Nizhny Novgorod region

The Nizhny Novgorod region is rightfully the business and political capital of the Volga region, occupying one of the leading positions in terms of development among Russian regions. The regional Government's focus on the modernization of existing enterprises and the active construction of new enterprises in the region in strategically priority sectors of the economy ensured a multiple increase in labor productivity in the region to 35% of the average level in the United States. The region's population is predominantly employed in sectors of the economy with relatively high wages. Real disposable income of the population is about 20,000 rubles per month, which corresponds to a growth rate of 8% per year.
GRP per capita is about 10 thousand US dollars, which corresponds to the level of Hungary and the Czech Republic in 2012.
Being a leader in the automotive industry, the region occupies at least 25% of the Russian market. Several leading international automakers have located their assembly plants in the region, followed by dozens of auto component manufacturers. As a result of restructuring, Russian enterprises have been transformed into assembly plants of mainly commercial vehicles, as well as modernized production of automotive components, which they successfully supply both to local consumers and for export.
Due to its unique geographic location, which provides access to the largest and most attractive consumer market in Russia, a large-scale center for the production and distribution of consumer goods (FMCG) has formed in the region. The established modern logistics centers ensure efficient transportation of raw materials and finished products.
The scientific and educational complex is not only a sector that provides a significant contribution to the economy of the region, but also one of the key factors in the competitiveness of the region, providing it with qualified labor resources and maintaining a high level of innovative activity in industry. The achieved level of development of science and technology has made it possible to significantly strengthen the competitive positions of such sectors of the economy as: information technology, radio electronics and instrument making, defense complex, aircraft and shipbuilding, medical and pharmaceutical industries. At the same time, effective mechanisms for the commercialization of scientific research have been created in the region; as a result, dozens of new enterprises with high growth potential that are attractive to venture investors are created annually on the basis of the scientific and educational complex. Modern educational programs that meet the needs of the economy and developed infrastructure have made it possible to significantly increase the export potential of Nizhny Novgorod higher educational institutions. By providing university graduates with opportunities for career growth and affordable housing, the Government of the Nizhny Novgorod Region has significantly reduced demographic risks.
Taking into account the heterogeneity of the region's territory in the northern regions, priority development, along with the food industry, was given to the timber industry and tourism. The growing need for raw materials for food producers was a catalyst for the development of the region's agro-industrial complex. At the same time, agricultural production was predominantly concentrated in areas located in the southwest and southeast of the region.
The region is an active participant in international economic relations. A high degree of internationalization, intensive exchange of knowledge, people, products and capital ensures a high level of competitiveness of Nizhny Novgorod enterprises in international markets and the attractiveness of the region for external and internal investors.
The Nizhny Novgorod region is one of the most attractive places in Russia for work, recreation and raising children, providing its residents with extensive opportunities for self-realization and unleashing creative potential, including the best career opportunities for the most gifted, educated and ambitious people. The region has created high standards and favorable living conditions, including environmental quality, level of social security, quality education and medical care, safety, as well as developed housing and communal infrastructure.
The main goal of the Government is that the level of well-being of the population and high standards of quality of life can be achieved in the presence of an effective and balanced economy, favorable living conditions, as well as an effective executive power.
In the process of strategic analysis, an assessment was made of the current state of key sectors of the regional economy and their development potential. At the same time, all sectors of the economy were divided into two groups: basic and supporting. The priority sectors of the economy, on the development of which the regional government should focus its efforts and resources, were identified on the basis of two groups of criteria: the attractiveness of the sector, as well as the presence in the region of prerequisites and necessary conditions for the successful development of the sector.
Criteria for determining industry priorities
As a result, the following industry priorities were identified:
1st priority group:
automotive industry, scientific and educational complex and new economy, information technology, food industry, radio-electronic industry and instrument making, chemical and pharmaceutical industry
2nd group of priorities:
ferrous metallurgy, fuel industry, aircraft manufacturing, chemical and petrochemical industry, glass industry, tourism
3rd group of priorities:
building materials industry, medical industry, timber industry and pulp and paper industry, light industry, shipbuilding, agriculture
The territory of the Nizhny Novgorod region is heterogeneous in terms of conditions for the development of certain sectors of the economy, therefore sectoral priorities were clarified taking into account the specific characteristics of individual municipalities. 4 main zones were identified, uniting areas with a similar current economic structure and characterized by favorable conditions for the development of certain sectors:
1. Forestry zone.
2. Industrial and scientific-educational zone.
3. Innovation zone.
4. Agro-industrial zone.
For areas classified as the Timber Industrial Zone, the following industry priorities have been identified:
food industry, timber industry, recreational and cultural-historical tourism, shipbuilding, agriculture, small business.
For the areas classified as the Industrial and Scientific-Educational Zone, the following sectoral priorities have been identified:
1st priority group:
automotive industry, scientific and educational complex and new economy, information technology, radio-electronic industry and instrument making, chemical and pharmaceutical industry.
2nd group of priorities:
ferrous metallurgy, fuel industry, aircraft manufacturing, chemical and petrochemical industry, glass industry, tourism.
In the Diveyevo, Arzamas and Pervomaisky districts, classified as the Innovation Zone, the following sectoral priorities have been identified:
1st priority group:
information technology, scientific and educational complex and new economy, chemical and pharmaceutical industry, radio-electronic industry and instrument making. Automotive industry, small business.
2nd group of priorities:
business and cultural and historical tourism.
In the agro-industrial zone, the focus of the Government of the Nizhny Novgorod Region will be on the development of the following industries:
food industry, agriculture, chemical and pharmaceutical industry, radio-electronic industry, recreational tourism, small business.
Taking into account the areas that form the main contribution to the sustainable development of the region, determining the main directions of development (specialization), 5 zones of priority economic development of the Nizhny Novgorod region (growth points) have been identified:
1. Large urban agglomeration. The zone specializes in the automotive industry, glass industry, information technology and telecommunications, chemical and petrochemical industries, pulp and paper industry, military-industrial complex, business and recreational sectors.
2. Metallurgy and metalworking zone. Specialization - metallurgical production and production of finished metal products.
3. Innovation zone. Specialization - information technology, energy saving and ecology, medical equipment.
4. Forestry zone. Specialization - timber industry complex.
5. Agro-industrial zone. Specialization - growing grain, producing milk, eggs, meat of all types of livestock and poultry, as well as their processed products.
Zones of rapid economic development of the Nizhny Novgorod region are of national importance
Taking into account industry priorities, as well as the key advantages and problems of the region, the following “directions of the main attack” of the Government were identified:
1. Providing leadership in the automotive industry.
2. Creation of Russia's largest center for the production and distribution of consumer goods (FMCG).
3. Realization of the potential of the scientific and educational complex and innovation. strategic planning municipal Nizhny Novgorod
The possibility of ensuring leadership in the automotive industry is due to the following prerequisites:
- steadily growing demand for sector products (motor vehicles and components) in the Russian and international markets;
- the high degree of development of the sector in the region today and the willingness of RUSPROMAVTO shareholders to invest in the modernization of their assets;
- the presence in the region of many machine-building, defense and instrument-making enterprises, many of which can become qualified suppliers of components for the automotive industry;
- the presence in the region of historically established technological traditions and a system for training qualified personnel;
- a high degree of influence of the sector on other sectors of the economy. Numerous examples from international experience confirm the sector’s ability to act as the main catalyst for economic growth in a territory;
- the unique geographical position of the Nizhny Novgorod region in relation to key automotive manufacturing centers in Russia;
- significant potential for growth in labor productivity in the sector, both through intensive modernization of existing automobile manufacturing enterprises and through the organization of assembly plants in the region by leading international automobile manufacturers (OEMs) and new manufacturers of automotive components;
- high export potential reduces risks and increases the stability of the regional economy, while the geography and export capabilities of manufacturers of automotive components are much wider than the export capabilities of car assemblers;
- the high strategic potential of the sector provides the opportunity to maintain and develop competencies in the field of mechanical engineering, materials science and electronics (up to 50% of innovations in the automotive industry today account for IT and electronics);
The regional Government’s focus on the production and distribution of consumer goods is due to the following factors:
- The market for the production of consumer goods is characterized by stability, sharp downturns and deep crises are unlikely: 70% of the FMCG market is occupied by food products, which are essential items, therefore such sectors of the economy as the food and chemical-pharmaceutical industries will serve as a kind of shock absorber for the risks associated with the market situation world markets or changes in government policy.
- Steadily growing and stable demand for food, medicines, household chemicals and other high-quality consumer goods.
- Related FMCG products can be various household goods, which will stimulate the development of the light, glass and petrochemical industries.
- Low investment and entry barriers, relatively fast return on investment and high growth potential make the sector attractive to investors.
- The unique geographical location of the Nizhny Novgorod region in terms of access to large-scale consumer markets.
- High degree of development of retail chains of modern formats in settlements located in the zone of transport accessibility for enterprises of the Nizhny Novgorod region.
- Significant export potential reduces the economy’s dependence on domestic market conditions.
- Currently, in the Nizhny Novgorod region there are developed industries specializing in the production of consumer goods, including food, chemical-pharmaceutical and light industry.
- Already today there is experience of successful placement of factories by foreign companies producing consumer goods in the Nizhny Novgorod region: Coca-cola, Gallina Blanca, Heineken, Wella.
- In some areas of the Nizhny Novgorod region with limited conditions for the effective location of enterprises in priority sectors of the economy, the food industry can become the main catalyst for growth.
- Relatively low requirements for production personnel, which makes it possible to provide the sector with the necessary resources and redistribute here released personnel from other sectors of the economy, including agriculture.
- The region has the opportunity to produce the raw material base necessary for the development of the sector.
- The development of the production of consumer goods will stimulate the growth of other sectors of the economy. For example, increasing demands on the quality of raw materials for the food industry will lead to increased efficiency of agricultural producers, and the need for packaging materials will stimulate the growth of the petrochemical, pulp and paper and glass industries.
In the era of the knowledge economy, science, education and innovation become the main driving force of the economy and a key factor in competitiveness. At the same time, the contribution of the scientific and educational complex to the regional economy should be assessed from the point of view of four components:
- As a promising sector of the economy, providing employment to the region’s population in enterprises with a high level of productivity and added value.
- As a source of innovation, enhancing the competitiveness of regional enterprises.
- As a growth factor that stimulates the emergence of new economy enterprises, formed on the basis of the scientific and educational complex and with high growth potential.
- As a factor of competitiveness, providing the regional economy with high-quality labor resources.
- On the territory of the Nizhny Novgorod region there are all the necessary conditions for the effective development of the scientific and educational complex, innovation activities and enterprises of the new economy:
- The Nizhny Novgorod region is historically one of the most developed scientific, industrial and educational centers of Russia, which during the period of reforms managed to largely maintain its potential.
- A developed defense complex, mechanical engineering (including aircraft and shipbuilding), radio electronics and instrument making, nuclear physics and energy, medicine, materials science and other areas of knowledge form the basis of the technological foundation formed in the scientific and educational complex of the region.
- Spending on science in both the private and public sectors is growing steadily.
- The high potential for the development of enterprises in the innovation belt, due to the improvement of the system of commercialization of the results of research and development work, will stimulate the development of sectors such as radio electronics and instrument making, information technology, innovative medicine and pharmaceuticals.
- Internationalization and international cooperation in the innovation cluster will provide access to best practices, which will contribute to the growth of labor productivity in the regional economy.
- The sector is export-oriented, which significantly reduces risks and increases the stability of the regional economy.
- Leading universities in the Nizhny Novgorod region are among the top ten universities. Russia in its category, including Nizhny Novgorod State University, Nizhny Novgorod State Medical Academy, Nizhny Novgorod Linguistic University, and the number of researchers per 10,000 population in the Nizhny Novgorod region exceeds the Russian average by 4 times.
- Historically established scientific schools, a high level of development of military science, which corresponds to modern world trends.
In 2012, Russia was recognized as one of the most attractive countries for investment in R&D and is ahead of countries such as France, Germany and Canada.
There is significant potential for growth in the export of educational services outside the region, which will not only bring additional income, but will also help solve the demographic problem by retaining university graduates in the region. However, the export potential of Nizhny Novgorod universities today is constrained primarily by the insufficient number of places in dormitories.

3.2 Target structure of the economy and forecasts

As a result of the modeling, forecasts of key indicators of the economy of the Nizhny Novgorod region in the period until 2020 were obtained.
The average per capita income of the population of the Nizhny Novgorod region, while maintaining the 47% share of the disabled population, will increase from 5.6 thousand rubles. ($195) per person in 2013 to 18.5 thousand rubles. ($650) per person in 2020 under the most likely scenario.
The average salary of those employed in basic sectors of the economy will increase almost 5 times from the current level of 6.8 thousand rubles. per month (USD 240) in 2013 to 26.8 thousand rubles. per month ($940) in 2020.
The total revenue volume in the economy of the Nizhny Novgorod region will grow at an average annual rate of 6.1% over the next 15 years and will amount to about 2 trillion. rub. in the most likely scenario.
At the same time, the region will reach a GRP per capita level of about 10 thousand US dollars in 2012 prices.
By 2020, the largest number of the working population of the Nizhny Novgorod region will be employed in the following sectors: automotive industry, scientific and educational complex and new economy, agriculture and food industry. The number of people employed in the information technology sector will increase significantly.
In the most likely scenario, in 2020 the following basic sectors will take the leading position in terms of annual income of employed people: the scientific and educational complex and the new economy, as well as the automotive industry.
The largest share in the total revenue in the economy of the Nizhny Novgorod region among the basic sectors will be occupied by the automotive industry, the fuel industry, ferrous metallurgy, the scientific and educational complex and the new economy, as well as the food industry.
Among the supporting sectors in terms of the number of employees, transport, logistics and housing and communal services will lead; in terms of annual income of employees - transport and logistics, housing and communal services and the financial sector. The largest share in the total revenue in the economy of the Nizhny Novgorod region among the supporting sectors will be occupied by: construction, transport and logistics, as well as retail trade.

3.3 Key areas of government activity

An efficient, dynamically growing and balanced economy. In accordance with the selected strategic priorities, the Government will act in three main areas: creating favorable conditions for the development of priority sectors of the economy, modernizing existing enterprises, and attracting investment to create new enterprises.
Creation of favorable conditions in the Nizhny Novgorod region for the development of priority sectors of the economy
Taking into account industry priorities, the regional government should first of all concentrate its resources on solving the most important problems that impede the successful development of priority sectors of the economy. At the same time, the Government will influence the following specific factors, thus creating favorable conditions for doing business in priority sectors:
Labor resources. Due to changes in the structure of the regional economy, the need for labor resources will change. Based on an analysis of the employment structure in developed countries and a long-term forecast of the structure of the regional economy, the structure of labor resources corresponding to the needs of the economy in 2010 and 2020 was predicted.
The government of the Nizhny Novgorod region, together with vocational education institutions, will develop and ensure the implementation of modern programs for training, retraining and advanced training of personnel.
Share of extra-budgetary sources in education expenditures, incl. student funds will increase. This will require expanding the practice of providing educational loans. The role of government funding (including the regional budget) will remain high, including in financing the construction of infrastructure, for example, training centers and dormitories.
Ensuring increased accessibility of higher education for residents of rural areas and small towns will require the development of modern (for example, distance) forms of education.
The implementation of educational services outside the region has high potential. This task will require the construction of dormitories and the marketing of the region's educational services to markets in Russia and abroad.
Internationalization. Internationalization will have the greatest impact on the development of the automotive industry, aircraft manufacturing, instrument making and electronics, the food industry, as well as the scientific and educational complex and enterprises of the new economy. The penetration of foreign players into the Russian market and the opening up of opportunities in foreign markets requires enterprises to bring their products and methods of doing business to international standards.
Access to consumers in Russian and international markets. Access to consumers in the Russian and international markets is a determining factor for the development of a number of priority industries. Large companies in the automotive, food, chemical and pharmaceutical industries can solve this problem on their own. Small IT companies and high-tech enterprises of the new economy should receive assistance from the Government of the Nizhny Novgorod region in organizing national and global marketing of their products. Such assistance may include:
Organization of a unified information space, presentation of materials on the Internet.
Organization of educational programs for business representatives to promote their products in international markets.
Providing support for the participation of the most promising enterprises in specialized exhibitions and conferences.
Buildings and structures, land plots. Conducting an assessment of the efficiency of use of exploited land plots and buildings, as well as an inventory of sites potentially suitable for attracting investors.
Improving the processes of interaction with investors, including the procedure for submitting information and procedures for obtaining permits.
Creation of a unified database on plots of land that are offered to potential investors, which will include comprehensive information about the possibilities and restrictions on the use of land plots and property complexes, as well as legal, production, technological, financial and other information important for investors.
Attracting independent developers to the territory who are interested in investing in industrial, logistics and office real estate.
Transport and logistics infrastructure. Attracting investors to the creation of modern logistics centers, construction of a modern terminal complex of an international level, including a railway junction, road infrastructure, and an efficient customs and warehouse complex.
Construction of a bridge across the river. Volga.. Construction of a low-pressure dam and a two-line sluice and a road crossing.
Construction of a bypass road in Nizhny Novgorod to relieve the city of transit traffic.
Providing conditions for customs clearance of goods comparable to those in Moscow.
Energy infrastructure. Construction of the main line LP-500 kV Kostroma State District Power Plant - Nizhegorodskaya substation, line LP-220 kV substation Nizhegorodskaya - Borskaya substation, which will allow efficient receipt of electricity from neighboring regions at the most favorable tariffs, and will also reduce the risk of blackout of more than 2/3 of the region in case of damage 500 kV lines.
Carrying out technical re-equipment of existing thermal power plants and replacing outdated low-power equipment will increase electricity generation within the region, which will require increasing the capacity of the gas infrastructure and gas limits.
Construction of new generating capacities is a longer and more labor-intensive process. The most significant projects here will be the construction of the Nizhny Novgorod Nuclear Power Plant, a combined cycle combined heat and power plant and a low-pressure dam built into the body in the area of ​​the working village of Bolshoye Kozino hydroelectric power station, which will help meet the future needs for electrical power in zones of rapid economic development.
Access to finance. Preparing enterprises for effective interaction with investors and financial institutions.
Assistance in financing by subsidizing loan rates for enterprises in priority sectors of the economy.
Stimulating the development of financial institutions in the region.
Assistance in attracting risk capital for high-tech enterprises and enterprises with high growth potential.
Creation of an information system that allows regional enterprises to obtain an adequate understanding of available financing opportunities.
Development of entrepreneurship and small business. Entrepreneurial activity of the population and willingness to take risks are important conditions for the emergence and development of high-tech enterprises in the innovation belt, as well as such sectors as tourism, light industry, construction, agriculture, trade and other services for the population. The development of small businesses will provide employment for redundant workers of modernized enterprises and conditions for employment of the population in areas with limited opportunities for attracting investment.
The regional government will create conditions for the development of small businesses through:
Removing administrative barriers.
Development of financing mechanisms for enterprises at an early stage of development.
Consulting support and training for entrepreneurs.
Active involvement of the population in business activities, including the formation of a favorable image of the entrepreneur.
Modernization of existing enterprises. The speed of modernization of existing enterprises is the most critical factor determining the growth potential of the region's economy. Not only the competitiveness of regional enterprises, but also the investment attractiveness of the region depends on the results of modernization. It should also be taken into account that the speed of modernization of existing enterprises is a critical factor compensating for the impact of demographic risks, as it stimulates the reduction of excess personnel and their redistribution to new jobs. By promoting the modernization of enterprises operating in the region, the Government will solve the following tasks:
Stimulating strategic planning at enterprises in the region, including initiating regular presentations to the Government of the region of development strategies by key enterprises of the region's economy and identifying measures of state support for them.
Carrying out activities aimed at increasing the productivity and management efficiency of enterprises in the Nizhny Novgorod region.
Creation of an operational database and monitoring of the financial and economic condition of large city-forming enterprises in the private sector, as well as enterprises with state ownership, and enterprises in the agricultural sector.
Development and formation of proposals for anti-crisis management of large “problem” enterprises, enterprises with a state share of ownership, enterprises in the agricultural sector, or initiation of bankruptcy procedures for ineffective enterprises.
Promotion of advanced training for enterprise managers. Development and implementation of mechanisms for retraining and employment of personnel of restructured or liquidated enterprises in accordance with the requirements of the labor market.
Attracting investments to create new enterprises. Ensuring the required economic growth and the pace of its modernization is possible only if new enterprises are created in the region in priority sectors of the economy. To ensure the declared rates of economic growth in the Nizhny Novgorod region, it is necessary to increase the volume of investment in fixed capital from the current 15% of GRP to 20-25%, typical for countries with rapidly growing economies.
In the region, it is necessary to improve factor conditions that are sources of sustainable competitive advantages to attract strategic investors. At the same time, it is also necessary to stimulate the activity of portfolio investors, which today is limited due to the lack of objects in the Nizhny Novgorod region that are attractive for investment - enterprises with ambitious growth plans and owners ready to cooperate with investors. The regional government will carry out targeted and systematic work to improve the investment climate, actively attract investors and prepare regional enterprises for effective interaction with investors. To increase investment activity, the regional government will focus on solving the following tasks:
Determining investment needs and priorities in accordance with the approved Development Strategy of the region, as well as assistance in the development of objects attractive for investment in the region.
Formation of the image of the Nizhny Novgorod region as a territory attractive for investment.
Preparing regional enterprises to attract investment.
Attracting strategic investors.
Attracting direct financial investors.
Development of investment infrastructure.
Involvement of financial resources of region residents in investment circulation.
Increasing the efficiency of government interaction with investors.
Implementation of measures to reduce investors' risks (administrative, legal, financial and political).
Quality human capital
The most important asset ensuring the competitiveness of the Nizhny Novgorod region in the long term is human capital. At the same time, the expected demographic decline is a serious problem, without which the region will not be able to compete successfully in the future. The government of the Nizhny Novgorod region will pay special attention to the development of existing human resources, educating the younger generation of region residents, attracting new qualified personnel to the territory and creating conditions for retaining the most talented and enterprising graduates of Nizhny Novgorod universities in the region. The priority objectives of the Government in the field of human capital management are:
Formation of personality and creation of conditions for creative self-realization of residents of the region.
Carrying out an effective demographic policy, including stimulating the birth rate, reducing mortality and ensuring the influx of qualified personnel into the region.
Monitoring the labor market and future personnel needs; training and retraining of personnel in demand by the new structure of the economy, by the educational complex of the Nizhny Novgorod region.
Creating conditions for retaining the most talented and enterprising graduates of Nizhny Novgorod universities in the region, including providing affordable housing and creating conditions for career growth.
Creating favorable conditions for living, working, relaxing and raising children
Providing comfortable living conditions for the population in the region is the absolute goal of the activities of the Government of the Nizhny Novgorod Region. At the same time, favorable living conditions increase the competitiveness of the region, making it more attractive for qualified personnel. Taking into account the limitations of the regional budget, the regional government will look for solutions that, as a result of their implementation, will achieve better results in the social sphere with comparable or lower budget expenditures. At the same time, the Government will focus on solving the following tasks:
Providing the population with comfortable and affordable housing, as well as high-quality housing and communal services.
Development of infrastructure and ensuring high standards in the social sphere (education, healthcare, culture and sports).
Formation of a single cultural space and ensuring equal access to cultural values ​​and benefits.
Improving the quality of the environment and creating the image of an environmentally friendly area.
Ensuring the safety of the population.
Development of service sectors for the population.
Formation, on the principles of social partnership, of mechanisms for interaction and social responsibility of government bodies, business and society for the preparation and implementation of social investment programs that ensure high standards of living standards for the population of the Nizhny Novgorod region.
Effective executive power of the region
The effectiveness of the executive branch is one of the most significant factors determining the competitiveness of the region. The most important goal of the Government is to transform the executive authorities of the region and municipalities into effective, strategically focused organizations focused on achieving their goals. To achieve this goal, the Government will focus on solving the following tasks:
Creation of a performance management system for executive authorities:
- Development and implementation of a unified planning system (strategic vision and priorities, medium-term strategic plan, operational plans of the Government of the Nizhny Novgorod region, departments, municipalities).
- Development and implementation of a system of benchmark indicators for all levels of executive power, reflecting progress in achieving set goals, satisfaction of target consumer groups, budgetary efficiency of the Regional Government.
- Development and implementation of a results-based budgeting process.
Improving key management processes and organizational structures in regional and municipal executive authorities:
- Planning and implementation of organizational changes.
Introduction of information technologies in regional and municipal executive authorities:
- Analysis of needs for information technology provision.
- Introduction of information technologies.
Formation and development of human resources potential of the executive authorities of the region and municipalities:
- Formation of a personnel reserve, development and implementation of a career planning system for employees of executive authorities.
- Development and implementation of criteria for assessing the performance of employees of executive authorities.
- Development and implementation of a motivation system for employees of executive authorities.
- Development and implementation of a program for advanced training of employees of executive authorities.

Conclusion

The Nizhny Novgorod region is one of the key regions for European Russia. It has great economic potential and is advantageously located at the intersection of major trade and transport routes. And the administrative center of the region - Nizhny Novgorod - is also the center of the Volga Federal District.
A regional development strategy is needed in order to look into the future with more confidence, have firm guidelines, clearly define the paths for the progressive development of the region, and ultimately, radically change the life of the entire region.
The main goal of the work of the Government of the Nizhny Novgorod Region is to improve the well-being of the region's residents. Solving the task of transforming the Nizhny Novgorod region into a prosperous region with a high level and quality of life for the population primarily depends on the ability of the authorities to build an effective economy that will provide people with the opportunity to receive a decent salary, and the budget with taxes sufficient to finance urgent social programs.
The greatness of Russia will grow by region. As a result of globalization, regions are becoming full participants in international economic relations. At the same time, they fiercely compete with each other for sales markets, investments, talents, budgetary and administrative resources.
Unlike other regions of Russia, the Nizhny Novgorod region does not have mineral deposits that could form the basis for economic prosperity. All the region can count on is its unique geographical location and human resources: talented, skilled, enterprising and well-educated residents of the region.
Today, the regional Government is forced to act in conditions of limited capabilities and resources, which means it is necessary to set priorities and concentrate on the most important. A large-scale study of the state of key sectors of the regional economy and the prospects for their development is necessary. An analysis of the collected facts will allow us to assess the current level of competitiveness of the region, opportunities for growth of its economy, and determine strategic priorities in the activities of the Government.

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Posted on Allbest.ru

Tatyana Vladimirovna Kramkova, Advisor to the State Legal Administration of the President of the Russian Federation, member of the Expert Council on Urban Development of the State Duma Committee on Construction and Land Relations, Candidate of Legal Sciences (Moscow).

The article discusses the formation and development of territorial and strategic planning institutions in the Russian Federation as the most important tools for managing the development of territories. The influence of territorial planning on investment and construction processes and the real estate market is analyzed. It is concluded that the transition period associated with the preparation of territorial planning and urban zoning documents has ended, and the main problems of their implementation are identified. The prospects for the development of legislation on urban planning activities are shown.

Key words: territorial development, territorial planning, strategic planning, urban planning activities, master plan, urban zoning.

Spatial and strategic planning: key issues and trends of the law

The article examines the emergence and development of the institutions of territorial and strategic planning in the Russian Federation as the most important instruments of development management areas. Analyzes the impact of spatial planning, investment and construction processes and the real estate market. The conclusion of the transition period associated with the preparation of territorial planning and zoning, identifies the main problems of their implementation. The prospects for the development of legislation on urban development.

Key words: regional development, territorial planning, strategic planning, urban development, the general plan, zoning.

In recent years, state authorities, local governments, as well as professional participants in the investment and construction process have been searching for effective strategies to ensure the development of territories, including cities and urban agglomerations. One of the main legal instruments for regulating territorial development activities (urban planning activities) is territorial planning. Today in Russia the institution of territorial planning is in its infancy, and issues of planning the rational organization of territories are given a new meaning.

As is known, in the Soviet period, the main functions of urban development and territorial planning were, first of all, the location of industrial enterprises and productive forces, solving the problems of the military-industrial complex, developing the natural resources of Siberia and the Far East, etc. The Soviet system of settlement and use of territories was mainly formed under the influence of these factors. As for the economically efficient use of territories, the quality of the urban environment, and taking into account public interests when using urban space, these issues were not considered a priority.

Nowadays, through territorial planning, the problems of creating a homogeneous and high-quality urban environment, modernizing infrastructure, reconstructing industrial areas, saving energy and resources, developing public and bicycle transport and various public spaces are being solved. Now the priorities are to abandon extensive urban development and create high-quality architecture and a comfortable human environment.

With the change in the economic and technological structure of the country, the involvement of land plots in market circulation, and the development of the real estate market, the transition from Soviet master plans and detailed planning projects to a new system of territorial development planning became inevitable.

A new system for managing the development of territories in the forms of territorial planning, urban zoning and territorial planning was enshrined in the Urban Planning Code of the Russian Federation (hereinafter referred to as the RF GRK), adopted in 2004.

An integrated and systematic approach to the spatial organization of territories should contribute to their sustainable development, that is, ensuring safety and favorable conditions for human life, limiting the negative impact of economic and other activities on the environment, ensuring the protection and rational use of natural resources in the interests of present and future generations. In this regard, during territorial planning it is necessary to solve difficult and large-scale tasks of reconciling economic, environmental, social and other interests, which often have the opposite direction. Of particular importance in this case is the search for a balance between the rights of owners of land plots and other real estate and the requirement to take into account public interests when using urban and other public space. Thus, the connection between the processes occurring in real estate markets and territorial planning and urban zoning is obvious.

The general approaches to planning the organization of territories used in the RF Civil Code were borrowed from international legal acts and legislation of economically developed countries (European Charter for Regional Spatial Planning (1983), Declaration of the European Parliament on Spatial Planning (1990), etc.). As is known, great importance is attached to issues of spatial planning abroad, and separate regulatory legal acts regulating these relations exist in most European countries, for example, in Sweden (The Swedish Planning and Building Act, 1987:210), Great Britain (Town and Country Planning (General Permitted Development) Order 1995, SI 1995/418) and other countries.

Following the example of the legislation of many European countries, the Civil Code of the Russian Federation provides for the identification of planning levels (national, regional, local), information openness and public discussion of urban planning projects; the types and purpose of urban planning documentation and the bodies responsible for planning are determined; a procedure for monitoring the implementation of plans and decisions is established, etc. At the same time, in Russia the establishment of the institution of territorial planning is very difficult. The legislation of the Russian Federation on urban planning activity has to not only solve problems common to countries of post-industrial society (accelerated urbanization and associated changes in the way of life, social transformation, structural changes in the economy and employment, technological revolution, etc.), but also overcome obstacles that are a legacy of the Soviet period (inconsistency of the existing land use structure with the demand for urban space from the population and business; obsolete architectural and planning solutions; technical imperfections and deterioration of communal infrastructure systems and housing stock, etc.). In this regard, the difficulties faced by state authorities and municipalities in implementing the norms of the Civil Code of the Russian Federation in practice are largely due to objective historical reasons.

The relationship between strategic and territorial planning

As a general rule, territorial planning should be preceded by strategic planning, the task of which is to determine the general directions, goals and objectives of the development of certain territories, to identify long-term development guidelines for authorities, municipalities, business and the population. The goals set during strategic planning are subsequently projected onto a specific territory that has an established land use structure, engineering and social infrastructure and other individual characteristics.

It should be noted that foreign tools for managing territorial development, carried out in the form of Comprehensive Planning in the USA and Canada or Spatial Planning in Europe, include elements of both territorial and strategic planning. As a result, documents defining the directions of development of territories for the long term (Comprehensive Plan, Spatial Plan, Community Plan, Municipal Development Plan, Master Plan, Strategic Master Plan, etc.) are complex, voluminous documents containing an analysis of natural, social, economic, environmental, demographic conditions of the territory, target indicators, strategic goals and development priorities, as well as relevant graphic documentation.

As for the Russian Federation, until recently, a sectoral approach was often used in territorial planning, which allowed state authorities and local governments to adopt territorial planning documents aimed at solving individual short-term economic problems to the detriment of the objectives of comprehensive sustainable development of territories. When using this approach, the possibility of planning the development of territories through the adoption of sectoral schemes based on the ideas of individual departments was also allowed.

It should be recognized that the issue of the relationship between strategic and territorial planning in the legislation of the Russian Federation is not actually resolved. An indication of the need to take into account the strategic goals and directions of socio-economic development, as well as the possibility of budgetary and other financing of relevant projects in territorial planning is contained in Part 5 of Article 9 of the Civil Code of the Russian Federation. It has been established that the preparation of territorial planning documents is carried out on the basis of strategies (programs) for the development of individual sectors of the economy, priority national projects, interstate programs, programs for the socio-economic development of constituent entities of the Russian Federation, plans and programs for the comprehensive socio-economic development of municipalities (if any) taking into account programs adopted in the prescribed manner and implemented at the expense of the federal budget, budgets of constituent entities of the Russian Federation, local budgets, decisions of state authorities, local governments, other main managers of funds from the relevant budgets, providing for the creation of objects of federal significance, objects of regional significance, objects of local importance, development of investment programs of subjects of natural monopolies, organizations of the public utilities complex and presentation of information contained in the federal state information system of territorial planning.

This norm seems to be insufficiently specific; the Civil Code of the Russian Federation does not contain real mechanisms for taking into account the named programs, strategies, projects and information.

According to some experts (see, for example,), with the adoption of the Federal Law of March 20, 2011 N 41-FZ “On Amendments to the Town Planning Code of the Russian Federation and certain legislative acts of the Russian Federation regarding territorial planning issues,” there was a blurring of the boundaries between status and content of territorial and strategic planning documents, the role of territorial planning documents has decreased, while the importance of documentation developed on their basis on territorial planning and land use and development rules has sharply increased.

An attempt to resolve the issue of the relationship between strategic and territorial planning was made in the draft Federal Law N 143912-6 “On State Strategic Planning”, which was adopted by the State Duma of the Federal Assembly of the Russian Federation in the first reading on November 21, 2012. This project is aimed at legal consolidation of the system of state strategic planning, including state forecasting, program-target and territorial planning, as well as monitoring the implementation of state strategic planning documents.

According to the bill, state strategic planning documents developed at the federal level include the general scheme of settlement on the territory of the Russian Federation, which, in particular, contains mechanisms for implementing the federal urban planning policy, and territorial planning schemes of the Russian Federation.

State strategic planning documents developed in the constituent entities of the Russian Federation include settlement schemes in the territories of the constituent entities of the Russian Federation and territorial planning schemes of the constituent entity of the Russian Federation.

Considering that the current edition of the Civil Code of the Russian Federation does not provide for such documents as settlement plans, the adoption of the said bill will undoubtedly require adjustments to the norms of the Civil Code of the Russian Federation relating to territorial planning.

It should be noted that relations on strategic planning are regulated by this bill only in relation to the federal and regional levels of government, while issues at the municipal level of government go beyond the scope of its regulation.

In the absence of legal regulation of relations on strategic planning at the municipal level, some local government bodies are attempting to use elements of master plans, strategic master plans and other similar documents developed by in strategic and spatial planning of cities abroad.

The concept of “master plan” is unknown to Russian legislation, so its content can only be judged based on an analysis of foreign master plans, as well as a few domestic developments (currently the only entity that has developed a strategic master plan is the city of Perm). Unlike the master plan - a legally significant document, the master plan is actually a concept for the long-term development of the city, which links urban planning decisions and the economic basis with a set of basic ideas and principles of planned development, goals and strategies for achieving them.

Despite the uncertainty of the legal status of the master plan, the authorities of some cities are planning to develop such a document. In particular, the need to develop a master plan for the city of Moscow as an instrument of new spatial policy was stated by the Deputy Mayor of Moscow in the Moscow Government for Urban Development Policy and Construction M. Khusnullin and the Chief Architect of Moscow S. Kuznetsov at the Moscow Urban Forum, held on December 4 - 5 2012. In their opinion, the task of the Moscow master plan is to put urban planning decisions on an economic basis. It should contain the priorities for the development of the capital for the long term and ways to achieve the goals, that is, serve as a hinge between the city development strategy and graphic documentation. In preparing the master plan for Moscow, which, together with the updated master plan for Moscow, should be presented by the end of 2014, it is planned to use the experience of developing master plans for 14 large cities, such as Amsterdam, London, Paris, Chicago, Seoul, Shanghai, Vancouver and others .

We believe that in the case of the development of master plans, city authorities will inevitably face the need to determine their place in the system of documents that are already provided for by the legislation of the Russian Federation, in particular, to resolve the issue of the relationship between master plans and general plans.

Types and contents of territorial planning documents

The purpose of territorial planning is to determine in the relevant documents the purpose of territories based on a set of social, economic, environmental and other factors in order to ensure the sustainable development of territories, the development of engineering, transport and social infrastructure, ensuring that the interests of citizens and their associations, the Russian Federation, and constituent entities of the Russian Federation are taken into account , municipalities.

The importance of territorial planning documents lies in the fact that they are mandatory for state authorities and local governments when they make decisions related to the construction and other development of the territory, as well as when implementing such decisions. In addition, territorial planning documents are the basis for the development of land use and development rules, as well as territory planning documentation, in which territorial planning provisions are detailed in relation to specific zones and land plots. Essentially, the development and approval of territorial planning documents is a means of systematically organizing the territories of urban and rural settlements, districts, regions and the territory of the Russian Federation as a whole. In accordance with the Civil Code of the Russian Federation, territorial planning documents are divided into three levels:

1. documents (schemes) of territorial planning of the Russian Federation;
2. documents (schemes) of territorial planning of the constituent entities of the Russian Federation;
3. territorial planning documents for municipalities (territorial planning schemes for municipal districts, master plans for urban and rural settlements, master plans for urban districts).

Master plans of settlements, master plans of city districts, territorial planning schemes of the Russian Federation, territorial planning schemes of constituent entities of the Russian Federation, territorial planning schemes of municipal districts, providing for the placement of linear objects of federal significance, linear objects of regional significance, linear objects of local significance, are approved for a period of at least than twenty years. In other cases, the specified territorial planning schemes are approved for a period of at least ten years.

Requirements for the content, preparation, coordination and approval of territorial planning documents are established by Chapter III of the Civil Code of the Russian Federation. The territorial planning documents of the Russian Federation are the territorial planning schemes of the Russian Federation in the following areas:

• federal transport (railway, air, sea, inland waterway, pipeline) and federal roads;
• national defense and state security;
• energy;
• higher professional education;
• healthcare.

In other areas, territorial planning schemes of the Russian Federation can be developed on the basis of regulatory legal acts of the President of the Russian Federation or regulatory legal acts of the Government of the Russian Federation.

Lists of types of objects of federal significance to be displayed on territorial planning diagrams of the Russian Federation are defined in Order of the Government of the Russian Federation dated February 9, 2012 N 162-r.

In accordance with the Action Plan aimed at implementing the provisions of the Federal Law "On Amendments to the Town Planning Code of the Russian Federation and certain legislative acts regarding territorial planning issues", approved by Decree of the Government of the Russian Federation dated December 30, 2011 N 2463-r, all territorial schemes planning of the Russian Federation should have been developed and approved by August 2012. However, today, of all the listed schemes, only the territorial planning scheme of the Russian Federation in the field of healthcare has been approved (Order of the Government of the Russian Federation of December 28, 2012 N 2607-r); territorial planning scheme of the Russian Federation in the field of higher professional education (Order of the Government of the Russian Federation dated February 26, 2013 N 247-r) and territorial planning scheme of the Russian Federation in the field of federal transport (railway, air, sea, inland waterway transport) and federal highways values ​​(Order of the Government of the Russian Federation dated March 19, 2013 N 384-r).

Territorial planning schemes for the constituent entities of the Russian Federation are prepared as part of one or more documents and contain provisions on territorial planning and maps of the planned location of objects of regional significance related to the following areas:

• transport (rail, water, air), roads of regional or intermunicipal importance;
• prevention of emergency situations of intermunicipal and regional nature, natural disasters, epidemics and liquidation of their consequences;
• education;
• healthcare;
• physical Culture and sport;
• other areas (in accordance with the powers of the constituent entities of the Russian Federation).

According to information from the Ministry of Regional Development of the Russian Federation (hereinafter referred to as the Ministry of Regional Development of Russia), by the end of 2012, all territorial planning schemes for the constituent entities of the Russian Federation had been approved or were being approved.

Finally, the basic tools for regulating construction and other activities are the territorial planning documents of municipalities - territorial planning schemes for municipal districts, master plans for settlements and urban districts. The territorial planning scheme for a municipal district in accordance with Article 19 of the Civil Code of the Russian Federation contains:

1. map of the planned location of local facilities of the municipal district related to the following areas:

a) electricity and gas supply to settlements;

b) local roads outside the boundaries of populated areas within the boundaries of the municipal district;

c) education;

d) healthcare;

e) physical culture and mass sports;

f) disposal and processing of household and industrial waste;

g) other areas in connection with resolving issues of local importance of the municipal district;

1. map of the boundaries of settlements (including the boundaries of newly formed settlements) located in inter-settlement areas;
2. a map of functional zones established in inter-settlement territories, if it is planned to locate objects of federal significance, objects of regional significance, objects of local significance (with the exception of linear objects) in inter-settlement territories.

Preparation of a draft territorial planning scheme for a municipal district is carried out in accordance with the requirements of Article 9 of the Civil Code of the Russian Federation and taking into account regional and (or) local urban planning standards, as well as taking into account proposals from interested parties.

Requirements for the content, preparation and approval of master plans are established by Articles 23 - 25 of the Civil Code of the Russian Federation. The master plan must contain:

1. regulations on territorial planning;
2. map of the planned location of local facilities of a settlement or urban district related to the following areas:

a) electricity, heat, gas and water supply to the population, sanitation;

b) local roads;

c) physical culture and mass sports, education, healthcare, disposal and processing of household and industrial waste in the case of preparation of a master plan for the urban district;

d) other areas in connection with resolving issues of local significance of a settlement or urban district;

1. a map of the boundaries of settlements (including the boundaries of newly formed settlements) that are part of a settlement or urban district;
2. a map of the functional zones of a settlement or urban district, including the boundaries and description of the functional zones, indicating the objects of federal significance, objects of regional significance, objects of local significance (except for linear objects) planned for placement in them and the location of linear objects of federal significance, linear objects of regional significance, linear objects of local importance.

The preparation of the draft master plan is carried out in accordance with the requirements of Article 9 of the Civil Code of the Russian Federation and taking into account regional and (or) local urban planning standards, the results of public hearings on the draft master plan, as well as taking into account proposals from interested parties.

The master plan can be considered a tool for monitoring the compliance of investment projects with public benefits. Thus, the inclusion in the Civil Code of the Russian Federation of Article 28 on the mandatory nature of public hearings on draft master plans for settlements and master plans for urban districts is not accidental. Through such public hearings, following the example of the European Union and other foreign countries, public control is exercised over the compliance of urban planning decisions with public interests, and the basic principle of legislation on urban planning activities is implemented - the principle of participation of citizens and their associations in the implementation of urban planning activities, ensuring the freedom of such participation .

If city master plans are familiar documents, since they were developed during the Soviet period, then the requirement to develop territorial planning schemes for municipal districts and master plans for rural settlements is an innovation of the Civil Code of the Russian Federation. Previously, such documentation was not provided for by law. It is no coincidence that in practice the greatest difficulties arose during the development and approval of these documents.

According to information from the Ministry of Regional Development of Russia, posted on its official website (www.minregion.ru), by the end of 2012, out of 1,820 territorial planning schemes for municipal districts, 1,118 schemes were approved and 499 were at the stage of coordination and approval (which accounted for 89 percent of the total number) . Of the 516 urban district master plans, 364 plans were approved and 114 plans were at the stage of consultation and approval (93 percent of the total). Of the 1,709 master plans for urban settlements, 862 plans were approved, 418 were at the stage of coordination and approval (75 percent of the total). Finally, out of 18,784 master plans for rural settlements, only 5,085 plans were approved, while in 2,830 rural settlements, in accordance with Part 6 of Article 18 of the Civil Code of the Russian Federation, local government bodies decided that there was no need to prepare master plans.

As for the rules of land use and development, which must be approved taking into account the provisions on territorial planning contained in territorial planning documents, by the end of 2012 they were approved in 71 percent of urban districts, 45 percent of urban settlements and 30 percent of rural settlements.

In this regard, the most important task of state authorities and local governments is to complete the preparation and approval of territorial planning documents and land use and development rules. Only after the completion of the preparation of these documents can the principle be implemented, according to which, without a territory development strategy, without approved territorial planning schemes for the constituent entities of the Russian Federation, master plans for settlements, urban districts, land use and development rules, construction and other activities in the relevant territory would be impossible.

Implementation of territorial planning documents

In accordance with Article 26 of the Civil Code of the Russian Federation, the implementation of territorial planning documents is carried out:

1. by preparing and approving documentation on territory planning in accordance with territorial planning documents;
2. by adopting, in the manner established by the legislation of the Russian Federation, decisions on the reservation of lands, on the seizure, including through redemption, of land plots for state or municipal needs, on the transfer of lands or land plots from one category to another;
3. by creating objects of federal significance, objects of regional significance, objects of local significance on the basis of territory planning documentation.

Thus, in fact, the implementation of territorial planning documents are actions for the placement of objects through the preparation of territory planning documentation, as a result of which the boundaries of land plots for the corresponding objects are precisely determined, urban planning plans for land plots are prepared, which are subsequently used to prepare project documentation and obtain a building permit.

On April 1, 2013, Federal Law No. 289-FZ of December 30, 2012 “On Amendments to the Town Planning Code of the Russian Federation and Certain Legislative Acts of the Russian Federation” came into force, establishing requirements for programs for the integrated development of communal infrastructure systems and their relationship with general plans for settlements and urban districts. In accordance with the said Federal Law, programs for the integrated development of utility infrastructure systems (PKR) are documents establishing lists of measures for the construction and reconstruction of electrical, gas, heat, water supply and sewerage systems, facilities used for recycling, neutralization and disposal of solids. household waste, which are provided for, respectively, by schemes and programs for the development of a unified national (all-Russian) electric network for the long term, a general scheme for the location of electric power facilities, a federal gasification program, relevant interregional, regional gasification programs, heat supply schemes, water supply and sanitation schemes, programs in the field of circulation with waste. They are developed and approved by the local government bodies of the settlement, urban district on the basis of the master plans of the settlement, urban district approved in the manner established by the Civil Code of the Russian Federation and must ensure balanced, long-term development of communal infrastructure systems in accordance with the needs for the construction of capital construction projects and reliability that meets the established requirements, energy efficiency of these systems, reducing the negative impact on the environment and human health and improving the quality of goods supplied to consumers, services provided in the areas of electricity, gas, heat, water supply and sewerage, as well as services for the recycling, neutralization and disposal of solid household waste waste.

According to the said Federal Law, RPCs must be approved within 6 months from the date of approval of the master plans of the relevant settlements and urban districts. If there are master plans of settlements and master plans of urban districts approved before the date of entry into force of the specified Federal Law, programs for the comprehensive development of communal infrastructure systems of the corresponding settlements and urban districts must be developed and approved no later than January 1, 2014.

In the event that programs implemented at the expense of the federal budget, budgets of constituent entities of the Russian Federation, local budgets, decisions of state authorities, local governments, other main managers of funds from the relevant budgets, providing for the creation of objects of federal, regional and local significance, investment programs subjects of natural monopolies, organizations of the public utility complex, adopted before the approval of territorial planning documents and provide for the creation of objects of federal, regional and local significance, subject to display in territorial planning documents, but not provided for by the specified territorial planning documents, such programs and decisions within a 2-month period with the dates of approval of the specified territorial planning documents are subject to compliance with them.

If such programs are adopted after the approval of territorial planning documents and provide for the creation of objects of federal, regional and local significance that are to be reflected in territorial planning documents, but not provided for by these documents, in the specified territorial planning documents within 5 months from the date of approval of such programs and When making such decisions, appropriate changes are made.

These norms, it seems, will be adjusted taking into account emerging law enforcement practice.

Completion of the transition period associated with the preparation of territorial planning and urban zoning documents

When adopting the Civil Code of the Russian Federation (came into force on December 30, 2004), it was assumed that documents on territorial planning and urban zoning must be adopted without fail no later than a year after its entry into force - by January 1, 2006. Only after the established requirements were met, the norms of the Civil Code of the Russian Federation could come into force in full. However, these requirements have not yet been fully met. Federal laws have extended the deadlines for preparing documents several times. Accordingly, the temporary norms of the Federal Laws “On the Enactment of the Town Planning Code of the Russian Federation” and “On the Enforcement of the Land Code of the Russian Federation” were extended, allowing construction issues to be resolved in a “manual mode”, making “discretionary” decisions based on the facts of the appeal of legal entities and citizens, which leads to an imbalance in the development of the territory, in particular, to “infill development” and other negative consequences. The last time the deadlines for approval of territorial planning documents and land use and development rules were extended by Federal Laws of December 30, 2012 N 289-FZ "On Amendments to the Town Planning Code of the Russian Federation and Certain Legislative Acts of the Russian Federation" and N 290-FZ "On Amendments to the Federal Law "On Promoting the Development of Housing Construction" and certain legislative acts of the Russian Federation."

It should be noted that in this case the legislator applied a differentiated approach to the preparation of these documents. In particular, the established deadline for territorial planning documents of the Russian Federation and constituent entities of the Russian Federation was not extended. Thus, from January 1, 2013, in the absence of approved territorial planning schemes for the Russian Federation and the constituent entities of the Russian Federation, it will not be possible to make decisions on the reservation of lands, on the seizure, including through redemption, of land plots for state or municipal needs, on the transfer of land from one category to another, on the provision of state or municipally owned land plots for the purpose of locating the relevant facilities. Exceptions are made only for such constituent entities of the Russian Federation as Moscow and the Moscow region, which must adopt their territorial planning documents before December 31, 2014.

As for territorial planning documents at the municipal level, the ban on the disposal of land plots and the construction of local facilities in the territories of urban settlements comes into force on April 1, 2013, in the territories of rural settlements - from January 1, 2014

The named Federal Laws also extended the deadline for the preparation of land use and development rules for Moscow and the Moscow region until December 31, 2014, for municipal districts - until June 30, 2013, for urban settlements and urban districts - until December 31, 2013, for rural settlements - until June 1, 2014. In addition, until December 31, 2016, the specified period was extended in relation to ensuring the use for the purposes established by the Federal Law “On Assistance to the Development of Housing Construction” of federally owned land plots and land plots of the Federal Fund for Assistance to the Development of Housing Construction. At the same time, the requirement for the inadmissibility of issuing permits for the construction of capital construction projects in the absence of land use and development rules comes into force in relation to inter-settlement territories of municipal districts from July 1, 2013, to the territories of urban settlements and urban districts - from January 1, 2014, to the territories of rural settlements - from June 1, 2014.

An additional incentive to complete the preparation of territorial planning and urban zoning documents can be considered some provisions of the Action Plan ("road map") "Improving the business climate in the construction sector", approved by Decree of the Government of the Russian Federation of August 16, 2012 N 1487-r. In particular, it is planned to prepare a draft Federal Law “On Amendments to the Land Code of the Russian Federation on the issue of transferring state-owned land plots to the ownership of municipalities,” which provides for the transfer of state-owned land plots to the ownership of municipalities in the absence of documents territorial planning of the Russian Federation and constituent entities of the Russian Federation.

Thus, the authorities have clearly indicated that the transition period is ending and the deadlines established by the Civil Code of the Russian Federation for the preparation of territorial planning and urban zoning documents will no longer be extended.

The completion of the transition period will finally bring certainty to the management of spatial development of territories, which, in turn, should lead to more efficient use of territories and an improvement in the investment climate.

It seems that over the next years we will have to master new methods of organizing urban spaces, move to new types of land use, rethink the role and tasks of the state, municipalities, designers, architects, developers, investors and the urban community in the development of urban areas, as well as in related such development of investment and construction processes.

Literature and information sources

1. Town Planning Code of the Russian Federation: Federal Law of December 29, 2004 N 190-FZ.
2. European Charter for Regional Spatial Planning (adopted on May 20, 1983 in Torremolinos (Spain)).
3. The Swedish Planning and Building Act, 1987:210.
4. Town and Country Planning (General Permitted Development) Order 1995, SI 1995/418.
5. Federal Law of March 20, 2011 N 41-FZ "On amendments to the Town Planning Code of the Russian Federation and certain legislative acts of the Russian Federation regarding issues of territorial planning."
6. Draft Federal Law N 143912-6 “On State Strategic Planning” (adopted by the State Duma of the Federal Assembly of the Russian Federation in the first reading on November 21, 2012).
7. Order of the Government of the Russian Federation dated February 9, 2012 N 162-r “On approval of lists of types of objects of federal significance to be displayed on territorial planning diagrams of the Russian Federation.”
8. Order of the Government of the Russian Federation dated December 30, 2011 N 2463-r “On approval of the action plan aimed at implementing the provisions of the Federal Law “On Amendments to the Town Planning Code of the Russian Federation and certain legislative acts of the Russian Federation regarding territorial planning issues.”
9. Order of the Government of the Russian Federation of December 28, 2012 N 2607-r “On approval of the territorial planning scheme of the Russian Federation in the field of healthcare.”
10. Order of the Government of the Russian Federation of February 26, 2013 N 247-r “On approval of the territorial planning scheme of the Russian Federation in the field of higher professional education.”
11. Order of the Government of the Russian Federation of March 19, 2013 N 384-r “On approval of the territorial planning scheme in the field of federal transport and federal highways.”
12. Ministry of Regional Development of the Russian Federation // URL: www.minregion.ru.
13. Federal Law of December 30, 2012 N 289-FZ “On Amendments to the Town Planning Code of the Russian Federation and Certain Legislative Acts of the Russian Federation.”
14. Federal Law of December 29, 2004 N 191-FZ "On the implementation of the Town Planning Code of the Russian Federation."
15. Federal Law of October 25, 2001 N 137-FZ "On the implementation of the Land Code of the Russian Federation."
16. Federal Law of December 30, 2012 N 290-FZ "On Amendments to the Federal Law "On Promoting the Development of Housing Construction" and Certain Legislative Acts of the Russian Federation."
17. Order of the Government of the Russian Federation of August 16, 2012 N 1487-r “On approval of the action plan (“road map”) “Improving the business climate in the construction sector.”
18. Trutnev E.K. Commentary on the Town Planning Code of the Russian Federation regarding the institution of territorial planning, amended by the Federal Law "On amendments to certain legislative acts of the Russian Federation regarding issues of territorial planning dated March 20, 2011 N 41-FZ" // SPS "ConsultantPlus".
19. Zemlyakova G.L. Some problems of regulating territorial planning // SPS "ConsultantPlus".