Формы государственного управления

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Понятие и виды форм государственного управления

Процесс государственного управления имеет своим содержанием деятельность
субъектов административного права, которая осуществляется посредством
определенных административно-правовых форм, процедур и методов.

Формы государственного управления – это внешнее практическое выражение
управленческой деятельности в конкретных действиях, совершаемых
субъектами управления.

Другими словами, административно-правовая форма – это юридическое
выражение конкретных действий и решений органов государственной
администрации и иных субъектов административного права в процессе
осуществления исполнительной и распорядительной деятельности. Она
представляет собой юридически значимые способы реализации субъектами
административного права своих полномочий, прав и обязанностей,
отражающих особенности их правового статуса.

Сказанное свидетельствует о том, что форма управленческой деятельности
выражает её содержание. Фактически речь идёт о том, как осуществляется
сама управленческая деятельность. Все формы управленческой деятельности
прямо или косвенно предопределены в своей основе нормами, с помощью
которых государство регламентирует деятельность государственного
аппарата. Закон “О Правительстве РФ” в деталях регламентирует все формы
и методы управленческой деятельности.

Форма государственного управления есть объективированное выражение
сущности деятельности органов и должностных лиц, которые осуществляют
управление. Так как посредством форм практически реализуются задачи и
функции управления, то в зависимости от того, какие формы использованы,
в значительной мере зависит успех управленческой деятельности. Выбор
формы управления предопределяет целесообразное выполнение функции
управления, достижение целей управления с наименьшими затратами сил,
средств и времени.

Закономерности:

Форма должна соответствовать характеру данной функции.

Форма должна соответствовать компетенции.

Должна соответствовать особенностям конкретного субъекта управления.

Соответствовать целям данного воздействия (надобность в данных
юридических последствиях).

Общепризнанная классификация форм управленческой деятельности в
юридической литературе отсутствует, при этом существует многообразие
форм их направленности и различное конкретное содержание. Однако,
несмотря на неоднозначную интерпретацию различают правовые и неправовые
формы управления. Чаще всего различают в зависимости от их характера,
однако этот критерий не всегда чётко выдерживается.

Правовой считается деятельность, которая непосредственно влечет
определенные правовые последствия и осуществляется на основе довольно
полного юридического оформления.

Неправовыми формами деятельности исполнительной власти считаются
организационные действия и материально-технические операции. Они тоже
осуществляются в рамках действующего законодательства, но часто такая
деятельность правом регламентируется лишь, в общем. Главная же их
особенность состоит в том, что эти действия непосредственно юридических
последствий не влекут.

Чаще всего встречаются такие организационные действия, как проведение
совещаний, обсуждений, проверок, распространение передового опыта,
разработка прогнозов, программ, методических рекомендаций, осуществление
бухгалтерского и статистического учета, организация демонстраций,
пресс-конференций, встреч с трудовыми коллективами, представителями
общественных объединений.

Разделение форм управления на правовые и неправовые, представляется
несколько условной и недостаточной.

Ведь на самом деле все формы государственного управления – правовые
(нормативные акты, издание индивидуальных актов, заключение
административных договоров и др.) и неправовые (осуществление
организационных действий, совещания, семинары и другие
материально-технические действия) – в определенном смысле являются
правовыми, имеющими соответствующую юридическую базу, основаны на
правовых актах и предписаниях, без которых они не могут возникать,
функционировать и применяться на практике.

Правовое начало так или иначе заложено в любой из названных форм
независимо от того, причисляются ли они по существующим классификациям к
правовым или неправовым, что, конечно, не означает отсутствия различий
между ними. Такие различия существуют, они достаточно заметны и
существенны.

Главное же состоит в том, что при непосредственном применении они не
создают юридических последствий, прямо не связаны с совершением
юридически значимых действий, хотя оказывают серьезное влияние на
указанные последствия и действия, являются нередко их условием,
предпосылкой. Например, чтобы коллегиальный исполнительный орган принял
квалифицированное и обоснованное решение, необходимо тщательно и
всесторонне подготовить заседание, совещание, семинар участников такого
органа с целью обеспечения принятия эффективного решения (постановления
либо другого правового акта). Габричидзе Б. Н., Чернявский А. Г.
Административное право.  — М.: Проспект, 2004, с. 206

Исходя из сказанного, представляется целесообразным более широкое
определение административно-правовых форм управления как совокупность
действий и правовых актов (постановлений, распоряжений, приказов,
инструкций, положений, правил и т.п.), которые служат осуществлению,
реализации целей, задач, функций и полномочий, принадлежащих в
соответствии с законодательством субъектам административного права.

Классификация правовых форм управленческой деятельности

Для реализации своих властных полномочий в процессе государственного
управления органы исполнительной власти используют такие правовые формы
как:

издание административно-правовых актов (правовых актов управления);

заключение договоров (например, административных договоров,
международных соглашений);

совершение иных юридически значимых действий, вызывающих определенные
правовые последствия (составление отчетов, регистрация фактов, выдача
справки о месте работы, составление административных протоколов и т.д.).

Для достижения стоящих перед ними задач субъекты исполнительной власти
издают огромное число правовых актов. С их помощью устанавливаются новые
юридические нормы, изменяются или отменяются старые (правотворческая
деятельность), формируются новые правоотношения, изменяются,
прекращаются ранее действовавшие (правоприменительная деятельность).

С каждым годом расширяется договорная практика субъектов исполнительной
власти. Если в прошлом они в основном были стороной в трудовых
отношениях (коллективных, трудовых договорах), то теперь они заключают
много административных договоров (соглашения между разными субъектами
управления, контракты о службе в милиции, вооруженных силах и т. д.).

И хотя при вступлении в гражданско-правовые сделки они выступают в
другом качестве, действуют как юридические лица, их участие в
гражданско-правовых договорах можно рассматривать как вспомогательную
деятельность, способствующую выполнению их основной — управленческой
функции. Велика роль исполнительной власти в подготовке, а часто и в
заключении государственно-правовых договоров между субъектами Федерации,
межгосударственных и иных международных договоров.

Правовые акты управления: понятие, основные черты и требования,
предъявляемые к ним

Принятие и исполнение административно-правовых актов является одной из
основных форм реализации исполнительной власти. В процессе
государственного управления возникает потребность в конкретизации норм
законов, которая и осуществляется путем издания административных актов.
Они служат для установления правовых норм либо для разрешения
индивидуальных юридических ситуаций путем применения правовых норм.
Издание и исполнение этих актов – важная часть управленческого процесса,
направленного на осуществления функций исполнительной власти.

Критерием понятийного аппарата акта государственного управления является
юридически властный, организационный, подзаконный характер, сферы и
субъектов применения.

Административно-правовой акт – это основанное на законе официальное
юридически-властное решение полномочного субъекта
исполнительно-распорядительной деятельности, принимаемое в одностороннем
волевом порядке с соблюдением определенной формы и процедуры и
направленное на установление административно-правовых норм или на
возникновение, изменение либо прекращение административно-правовых
отношений в целях реализации управленческих задач и функций
исполнительной власти.

Акты управления обладают характерными чертами:

является правовой формой управленческого решения;

выражает юридически значимое волеизъявление субъекта исполнительной
власти в виде предписания, обязательного для адресата;

официальный характер правового акта состоит в том, что он издается от
имени определенной структурной единицы государственного аппарата,
выражает волю государства, влечет служебные последствия.

издается в одностороннем порядке, т.е. выражает волю только одной
стороны – субъекта исполнительной власти;

носит подзаконный характер, т.е. должен издаваться в соответствии с
законом;

является решением полномочного органа исполнительной власти, принимаемым
по вопросам и в пределах его компетенции определенной законом;

устанавливает в сфере ведения конкретного субъекта исполнительной власти
обязательные правила поведения либо регулирует конкретные управленческие
отношения и решает индивидуальные административные дела;

принимается с соблюдением определенных установленных процедур. Решение
субъекта власти становится правовым актом, когда оно надлежащим образом
оформлено;

несоблюдение содержащихся в нем юридически властных предписаний влечет
ответственность виновной стороны;

может быть в установленном законе порядке опротестован или оспорен.

Каждый административный акт имеет свое содержание и форму.

Содержание административного акта включает три основных элемента:

волеизъявление уполномоченного органа, которое не должно выходить за
пределы его компетенции (это волеизъявление должно быть свободным, т.е.
не формироваться под влиянием обмана, заблуждения или принуждения);

юридическое существо этого волеизъявления (назначить, установить,
разрешить, предоставить, отозвать, лишить, наказать и т.д.);

условия, обязательства и поручения, сопровождающие основное решение.

Форма административного акта – это внешнее выражение содержащейся в нем
воли, мотивов и целей его принятия. Эта форма может быть представлена в
виде указов, постановлений, распоряжений, приказов, указаний,
инструкций, положений и т.д.

Административный акт только тогда выполняет свое властное предназначение
в процессе государственного управления, когда он действует.

Действие административного акта выражается в том, что он обладает
юридической силой, выступает обязывающей или управомочивающей формой
действий субъекта исполнительной власти и вызывает те юридические
последствия, ради которых он был издан. Для того, чтобы административный
акт обладал юридической силой, он должен отвечать определенным
требованиям:

1) правовой акт управления не должен противоречить Конституции РФ,
федеральным законам и нормативным указам Президента России;

2) правовой акт не должен ограничивать или нарушать установленные
федеральными законами права и законные интересы граждан, общественных
объединений, предпринимательских и коммерческих организаций, фирм и иных
ассоциаций и объединений этого рода;

3) в издании акта должны применяться лишь те его наименования, которые
предусмотрены законодательством и издаваемым данным органом
исполнительной власти правовым актом;

4) необходимо строго и неукоснительно соблюдать установленный порядок
подготовки, обсуждения и принятия правовых актов управления. К числу
конкретных требований, относящихся к данному пункту, могут быть
отнесены: соблюдение коллегиальности, необходимость согласования
проектов актов с заинтересованными сторонами, соблюдение предусмотренных
реквизитов, т.е. штампов, печатей, подписей, бланков органа, издающего
акт, подписей исполнителей, сроков исполнения и др.;

5) правовой акт управления должен быть издан полномочным органом
(органом исполнительной власти, органом управления предприятия,
хозяйственного объединения, учреждения, соответствующим должностным
лицом) и в пределах его компетенции.

Нарушение данных требований является основанием для признания
административных актов незаконными, т.е. не имеющими юридической силы.

Акты государственного управления отличаются от других актов иных
органов. Акт от закона отличается тем, что носит подзаконный характер,
издается на основе и во исполнение закона. Закон имеет высшую
юридическую силу. Под юридической силой акта того или иного органа
понимается его соотношение с правовыми актами других органов.

Юридическая сила правовых актов государственных органов определяется
местом этих органов в государственном аппарате и полномочиями по
осуществлению функций государства, однако, это не означает большую или
меньшую значимость этих актов. Степень юридической силы актов, это не
только мера обязательности исполнения, а вопрос внутреннего
взаимоотношения, взаимосвязей актов между собой. Высшая юридическая сила
закона проявляется в том, что никакой акт управления не может отменить
или изменить закон. Законом же может быть оказано влияние на акт (отмена
и т.п.).

Правомочие на признание акта незаконным имеют:

орган исполнительной власти – автор акта может признать неправомерность
и отменить его;

вышестоящие органы исполнительной власти, наделенные правом отмены
неправомерных актов нижестоящих органов государственной администрации
(Президент, Правительство и т.д.);

судебные органы (общий и арбитражный суды, Конституционный Суд РФ).

Признание акта незаконным осуществляется в двух основных формах:

признание неправомерного акта недействительным  — недействительный
административный акт не порождает юридических последствий с момента его
принятия.

признание такого акта недействующим  — недействующий административный
акт не порождает юридических последствий с момента вступления решения
суда по данному акту в законную силу либо с момента вступления решения в
законную силу решения административного органа о его отмене.

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Классификация правовых актов управления

1. Нормативные акты. Они устанавливают, изменяют или отменяют
юридические нормы, т. е. содержат общие правила, не имеющие конкретного
адресата, не обращенные к конкретным лицам, рассчитанные на многократное
применение в случаях, предусмотренных их гипотезами. Примером могут
служить нормы, содержащиеся в правилах пожарной безопасности,
радиационной безопасности, дорожного движения, торговли, бытового
обслуживания населения и в ряде других отраслей управления.

Нормативные акты государственной администрации являются важнейшими
источниками права. В зависимости от отраслевой принадлежности
содержащихся в них норм они могут быть моноотраслевыми
(административно-правовыми, гражданско-правовыми, источниками трудового,
земельного права и т.д.) и полиотраслевыми, в которых имеются нормы
различных правовых отраслей, но в них не может быть норм уголовного,
уголовно-процессуального, конституционного права.

По кругу лиц, на которых распространяются нормы, их источники можно
поделить на:

а) акты общего значения (федеральные, республиканские, областные и
т.д.);

б) межведомственные акты;

в) внутриведомственные (в том числе локальные).

Существует деление нормативных правовых актов управления в зависимости
от их наименования. Каждый орган, точнее вид органа исполнительной
власти издает акты определенного наименования, которые устанавливаются
конституционными и законодательными нормами либо подзаконными нормами
административного права.

С учетом роли Президента в осуществлении исполнительной власти особое
значение имеют акты Президента России по вопросам управления. Согласно
ч. 1 ст. 90 Конституции, предусматривается издание Президентом
Российской Федерации указов и распоряжений, согласно ч. 2 ст. 125 –
нормативных актов Президента, ч. 1 ст. 1 15 – нормативных указов
Президента.

Нормативные акты управления – постановления издает также Правительство
Российской Федерации по вопросам, закрепленным в ст. 114 Конституции.
Это, в частности, обеспечение эффективного управления в сфере проведения
единой финансовой, кредитной и денежной политики, в области культуры,
науки, образования, здравоохранения, социального обеспечения, экологии;
осуществление мер по обеспечению законности, прав и свобод граждан,
охране собственности и общественного порядка, борьбе с преступностью.
Данные акты позволяют Правительству Российской Федерации осуществлять на
практике исполнительную власть Российской Федерации.

В своей практике Правительство применяет и другие
административно-правовые формы, в частности распоряжения, которые иногда
содержат и нормы общего регулирования в сфере исполнительной власти, а
также широко использует организационные действия и мероприятия, которые
позволяют решать возложенные на него функции.

2. Индивидуальные акты — это решения субъектов административной власти
по конкретным вопросам, обращенные к конкретным лицам. Будучи в своей
основной массе правоприменительными актами, они порождают, изменяют,
прекращают правоотношения.

Среди них больше всего правонаделительных, оперативно-распорядительных,
а другой разновидностью индивидуальных актов являются
правоохранительные, юрисдикционные решения (по спорам, жалобам,
использованию принудительных средств).

По юридическим последствиям индивидуальные акты могут быть обязывающими,
запрещающими, управомочивающими, содержащими отказы.

3. Общие акты содержат либо общие кратковременные предписания (о
переносе выходного дня, об очередном призыве на военную службу и т. п.),
либо общие требования (повысить требовательность, усилить внимание к
определенным категориям дел, бережнее относиться, экономить ресурсы,
больше внимания уделять многодетным семьям и т. д.).

4. В смешанных актах одновременно содержатся нормы права и
правоприменительные решения, либо даже еще и общие требования.

5. По способу выражения.

Письменные акты являются разновидностью служебных документов.

Устные акты широко используются при непосредственном руководстве
производственной деятельностью, для обеспечения общественной
безопасности, на транспорте, в воинских частях.

Символические (конклюдентные) акты находят внешнее выражение в жестах
работника милиции, регулирующего уличное движение, в световых и звуковых
сигналах, знаках.

6. В зависимости от порядка принятия различают акты коллегиальные,
принимаемые простым или квалифицированным большинством от общего числа
членов коллегиального органа или от числа присутствующих на заседании, и
единоличные. Последних намного больше, но чаще всего единоличные акты
оформляют, придают властный характер мнению большой группы лиц, которые
готовили, согласовывали, визировали, предварительно обсуждали проект.

7. Административные акты, имеющие дефекты содержания или формы,
подразделяются на ничтожные и оспоримые.

Ничтожный административный акт – это акт, который вследствие своей
незаконности не может порождать и не порождает юридических последствий.
Его ничтожность настолько очевидна, что он не подлежит осуществлению
(например, содержащий предписание совершить противоправные действия).

Оспоримый административный акт подлежит обязательному исполнению, но
может быть оспорен заинтересованными лицами. До его признания
недействительным он подлежит исполнению. Оспоримые акты требуют
доказательств их дефектности.

Порядок принятия и действие правового акта управления

Эта разновидность административного процесса включает в себя множество
производств по принятию актов коллегиально и единолично, высшими,
центральными органами РФ, республиканскими, краевыми, областными,
окружными, а также городскими органами, актов простых и уникальных,
нормативных и индивидуальных (правоприменительных и в том числе
юрисдикцион-ных). Эта многогранная деятельность регламентируется большим
количеством юридических норм и организационных обычаев. Но в этом
огромном разнообразии производств можно выделить и общие моменты.

Первая стадия этого процесса — подготовка решения (об утверждении,
награждении, приеме, выделении, исполнении и т. д.). Чаще всего на этой
стадии существуют этапы: правовой инициативы, анализа ситуации и
вариантов правового воздействия на нее, подготовки проекта решения.

Акт принимается, если есть фактические (объективная потребность) и
юридические основания. Менее половины из общего их числа издаются по
инициативе их авторов. Последние чаще выступают «переводчиками» законов
и актов вышестоящих органов, конкретизируя их с учетом местных условий,
либо применяя их на основе жалоб, заявлений, приказов о призыве и т. д.
Основанием для принятия, отмены акта может быть инициатива субъекта
административной власти, поручение вышестоящего органа, протест
прокурора, обращение организации, депутата, жалоба, заявление
гражданина, статья в газете и др.

В ходе анализа ситуации выясняется фактическое положение дел, проблемы,
которые требуют решения, возможные варианты их решения. При составлении
проекта избирается один из возможных вариантов правового регулирования,
он надлежащим образом оформляется, согласовывается, обсуждается.
Практикуется и подготовка альтернативных проектов.

Вторая стадия — принятие решения — тем короче, чем больше проведено
подготовительной работы. В коллегиальных органах возможно обсуждение и
обязательно голосование. Иногда решения принимаются «в рабочем порядке»,
путем опроса. Большинство же правовых актов принимаются единолично, а
значит, главное на этой стадии — подписание подготовленного проекта.
Очевидно, что в подготовленный проект могут быть внесены изменения либо
проект может быть признан непригодным.

Завершается эта стадия оформлением решения, что предполагает его
окончательное редактирование, подписание административного акта,
присвоение акту порядкового номера.

Доведение решения до сведения исполнителей, заинтересованных лиц —
самостоятельная стадия работы с актом. Это делается путем персонального
ознакомления (устно, высылки копий, повесток, вывешиванием списков,
ознакомлением под расписку). Если круг адресатов акта более широк, его
размножают, рассылают, а при необходимости обнародуют в средствах
массовой информации, в специальных изданиях (сборниках, бюллетенях).

Официальному опубликованию подлежат все постановления и распоряжения
Правительства, кроме актов или их отдельных положений, содержащих
государственную тайну. Такие акты опубликовываются в течение десяти дней
после их подписания в “Российской газете” и Собрании законодательства
Российской Федерации.

Что касается нормативных актов Президента России, то они вступают в силу
одновременно на всей территории России по истечении семи дней после
первого дня их официального опубликования; другие акты вступают в силу
со дня их подписания.

Семидневный срок установлен также для актов Правительства Российской
Федерации, затрагивающих права, свободы и обязанности граждан и т.п.;
иные акты Правительства вступают в силу со дня их подписания.

С юридической и практической точек зрения только разработать и принять
качественный правовой акт управления совсем недостаточно.

Хотя этот этап чрезвычайно сложен, ответственен и требует больших усилий
специалистов разного профиля, однако в какой-то мере это только начало
сложного процесса осуществления управленческой деятельности.

Главное – своевременно и эффективно реализовать, практически осуществить
правовой акт управления. То есть обеспечить его служебную роль,
действие, связанное с наступлением юридических последствий и
обуславливающее их.

С позиций юридической силы, презумпции действительности (правильности)
действия правовых актов управления их реализация связана с целым
комплексом условий, предпосылок, факторов юридического содержания,
временных и пространственных факторов и рядом других.

Акт действует либо до истечения установленного срока его “жизни”, либо
до его официального изменения или отмены. Как правило, правовой акт
управления приобретает юридическую силу с момента его издания или
опубликования, если особо не оговорен иной порядок приведения его в
действие, например, установление конкретного срока вступления его в
юридическую силу.

Действие административного акта прекращается также в результате его
приостановления, которое не влечет автоматически утрату им юридической
силы.

Приостановление означает временное прекращение действия или исполнения
административного акта до решения вопроса по мотивам, вызвавшим его
приостановление.

Законодательство предусматривает следующие случаи приостановления
действия актов управления:

1) Президент Российской Федерации вправе приостанавливать действие актов
органов исполнительной власти субъектов Федерации в случае их
противоречия Конституции РФ и федеральным законам (ст. 85 Конституции
РФ);

2) Правительство в целях реализации своих актов на всей территории
Российской Федерации в пределах своей компетенции вправе
приостанавливать исполнение постановлений и распоряжений правительств
республик.

Административно-правовой договор

Договор есть волевое соглашение двух или более субъектов права об
установлении, изменении или прекращении субъективных прав и
обязанностей. Это правовой акт, его заключение и вступление в
юридическую силу влечет правовые последствия для его участников или
третьих лиц.

Договор всегда представляет собой акт многостороннего характера,
выражающий не одностороннее волеизъявление, а согласование, интеграцию,
взаимодействие воли договаривающихся субъектов. Он является
универсальным средством правового регулирования и применяется как
регулятор общественных отношений во всех отраслях права. При этом
удельный вес и значение договорного регулирования определяются сущностью
и содержанием соответствующей отрасли права.

Административный договор — это основанный на административно-правовых
нормах и выработанный в результате добровольного согласования воли двух
(либо более) субъектов административного права, одним из которых всегда
выступает субъект государственной власти, многосторонний акт,
устанавливающий (прекращающий, изменяющий) взаимные права и обязанности
его участников.

Административный договор представляет собою вид сделок, в которых
равноправие сторон так или иначе, связано с властными полномочиями одной
или даже обеих договаривающихся сторон.

Так, в Законе РФ «О воинской обязанности и военной службе» от 28 марта
1998 г. раздел V полностью посвящен поступлению граждан на военную
службу по контракту. Контракт о прохождении военной службы заключается в
письменной форме между гражданином и Министерством обороны РФ или другим
уполномоченным ведомством на срок от 3 до 10 лет.

Договоры между субъектами властных полномочий довольно часто называются
соглашениями. Примером может служить п. 6 ст. 15 Закона РФ «О
приватизации государственных и муниципальных предприятий в РФ», который
обязал Государственный комитет РФ по управлению государственным
имуществом и Российский фонд федерального имущества заключать
соглашения, определяющие основные направления, формы и методы
сотрудничества по выполнению Государственной программы приватизации.

Административный договор представляет собой институт административного
права, его нормативную базу составляют прежде всего нормы
административного права. Правовая основа договоров, заключаемых
государственной администрацией, различна для административных и
частноправовых договоров: соответственно это нормы административного и
гражданского права. В то же время административный договор всегда
содержит и то общее (в частности, социально-юридическую основу в виде
согласования воли, влекущего правовые последствия, общие принципы), что
является основой любого договора и регулируется нормами
обязательственного права.

Нормы соответствующих отраслей соотносятся здесь как общее — частное,
причем административно-правовые нормы выступают в качестве специальных
норм. Можно сказать, что область административных договоров регулируется
нормами обязательственного гражданского права за теми изъятиями,
дополнениями и ограничениями, которые вносит в нее право
административное.

Особенности административного договора определяются и его субъектным
составом. Одной из сторон административного договора всегда выступает
государство в лице своих органов власти. При этом в административном
договоре государственный орган выступает именно как субъект, реализующий
исполнительную власть и наделенный властными полномочиями.

Все административные договоры являются так или иначе организационными,
поскольку сама деятельность органов исполнительной власти представляет
собой целенаправленное упорядочение общественной и государственной
жизни, имеет организационный характер. Поэтому предмет административных
договоров всегда составляют социальные процессы, так или иначе связанные
с деятельностью государственной администрации. Все административные
договоры являются управленческими, но не все договоры управленческого
характера являются административными.

Административные договоры, как правило, являются формальными,
заключаются в письменной форме. Как исключение допускаются и устные
соглашения.

Так, например, п. З ст. 15 Закона РФ «Об оперативно-розыскной
деятельности» устанавливает, что органы, занимающиеся
оперативно-розыскной деятельностью, вправе «использовать в ходе
проведения оперативно-розыскных мероприятий по договору или устному
соглашению служебные помещения, имущество предприятий, учреждений,
организаций, воинских частей, а также жилые и нежилые помещения,
транспортные средства и иное имущество частных лиц».

В ряде случаев законодатель устанавливает как обязательное условие
действительности административного договора обязанность регистрации его
в специально уполномоченных государственных органах.

В числе функций административного договора можно выделить следующие.

1. Структурно-организационная. Она состоит в разграничении и фиксации
прав и обязанностей сторон, предметов ведения, полномочий.
Административный договор придает определенную стабильность, гласность,
наглядность иерархическим отношениям.

2. Функция социального компромисса. Речь идет о согласовании интересов
различных субъектов государственной и общественной жизни.

3. Обеспечительная. Состоит в обеспечении достижения общественно
значимых результатов в тех областях, где прямое командное воздействие
неэффективно (нерентабельные отрасли, образование, социальная сфера,
приватизация) либо невозможно (частная собственность,
межгосударственные, федеративные, межнациональные отношения).

4. Ориентационно-стимулирующая. Никто не будет вступать в договор без
какой-либо для себя пользы.

5. Демократизации исполнительной власти. Договорный процесс всегда
предполагает равноправное партнерство, сотрудничество, взаимодействие
его участников, т. е. речь идет уже не о соподчинении, а о согласовании
воли.

6. Воспитательная. Участие в договорном процессе способствует
пробуждению деловой и правовой активности субъектов.

7. Охранительная. Уже закрепление в административном договоре взаимных
прав и обязанностей служит своеобразной гарантией их соблюдения.

Классификация административных договоров возможна как на основе общих,
так и с учетом специальных, связанных с их спецификой критериев.

К специальным относятся деление на «внутриаппаратные»
(внутриорганизационные), заключенные между субъектами, наделенными
государственно-властными полномочиями, и «внешние», заключенные
уполномоченными субъектами государственной власти с гражданами,
организациями.

По степени сложности можно выделить ординарные административные
договоры, сложные и уникальные.

По предметному критерию можно различать:

— договоры о компетенции (разграничение или делегирование полномочий и
предметов ведения);

— договоры в сфере управления государственной собственностью;

— договоры, обеспечивающие государственные нужды (именуемые в
законодательстве «государственными контрактами»);

— контракты с государственными служащими, студентами;

— финансовые и налоговые соглашения;

— договоры о взаимодействии, сотрудничестве;

— различного рода концессии и инвестиционные соглашения;

— договоры об оказании некоторых услуг частным лицам (охрана
общественного порядка и имущества, содействие занятости населения,
перевозка в общественном транспорте, коммунальные услуги).

По общепринятым критериям административные договоры можно разделить на
дву- и многосторонние, типовые и консенсуальные, предварительные и
главные и т. д. По содержанию можно различать чисто организационные
соглашения и договоры смешанного типа, в которых организационные вопросы
связаны с трудовыми, имущественными.

Формы административной деятельности и административно-правовые акты ОВД

Министерство внутренних дел Российской Федерации (МВД России), является
федеральным органом исполнительной власти, осуществляющим в пределах
своих полномочий государственное управление в сфере охраны правопорядка,
обеспечения общественной безопасности и непосредственно реализующим
основные направления деятельности органов внутренних дел Российской
Федерации.

МВД на основании и во исполнение Конституции Российской Федерации,
федеральных конституционных законов, федеральных законов, актов
Президента Российской Федерации и Правительства Российской Федерации
самостоятельно осуществляет правовое регулирование в установленной сфере
деятельности, за исключением вопросов, правовое регулирование которых в
соответствии с Конституцией Российской Федерации, федеральными
конституционными законами, федеральными законами, актами Президента
Российской Федерации и Правительства Российской Федерации осуществляется
исключительно федеральными конституционными законами, федеральными
законами, актами Президента Российской Федерации и Правительства
Российской Федерации;

МВД обобщает практику применения федеральных конституционных законов,
федеральных законов, иных нормативных правовых актов в области
внутренних дел, организует работу по созданию и ведению баз данных
правовой информации в этой области, а также подготавливает предложения
по совершенствованию федеральных конституционных законов, федеральных
законов, актов Президента Российской Федерации и Правительства
Российской Федерации в области внутренних дел.

К важнейшему участку управленческой деятельности МВД относится
нормотворческая деятельность, призванная обеспечить развернутую
нормативно-правовую базу для уверенной и эффективной
оперативно-служебной деятельности ОВД на всех уровнях системы.

Многообразны формы и наименования актов, издаваемых МВД. Эти правовые
акты (речь идет об актах нормативного характера) издаются в виде
приказов, постановлений, инструкций, правил, указаний, порядка.

Под функциями по принятию нормативных правовых актов понимается издание
на основании и во исполнение Конституции Российской Федерации,
федеральных конституционных законов, федеральных законов обязательных
для исполнения органами государственной власти, органами местного
самоуправления, их должностными лицами, юридическими лицами и гражданами
правил поведения, распространяющихся на неопределенный круг лиц.

Являясь высшим органом внутриведомственного контроля, министерство
разрабатывает систему контроля, готовит нормативно-правовые акты по
этому вопросу. Главные управления и управления МВД в установленном
порядке проверяют исполнение органами внутренних дел действующего
законодательства и ведомственных нормативных актов.

Министр внутренних дел РФ осуществляет нормативно-правовое регулирование
деятельности органов внутренних дел. Он издает приказы, директивы,
положения, наставления, инструкции, уставы и иные нормативные (правовые,
нормативные правовые) акты, в необходимых случаях – совместно с
федеральными органами исполнительной власти, дает указания, организует и
проверяет их исполнение.

Министр вносит в установленном порядке на рассмотрение Президента
Российской Федерации проекты федеральных конституционных законов,
федеральных законов, актов Президента Российской Федерации в области
внутренних дел, а также нормативных правовых актов, относящихся к сфере
деятельности подведомственных МВД России федеральных органов
исполнительной власти.

Существенной частью управленческих полномочий Министра является контроль
правомерности решений руководителей МВД, УВД. Министру предоставлено
право отмены противоречащих федеральному законодательству приказов и
распоряжений министров внутренних дел и начальников ГУВД, УВД субъектов
Российской Федерации.

Наибольшая часть компетентности в области охраны общественного
порядка принадлежит органам внутренних дел (ОВД). ОВД  — весьма
своеобразное звено исполнительной власти. Сущность их деятельности
состоит в повседневном исполнении и проведении в жизнь законов
и подзаконных актов, регулирующих общественный порядок.

В своей административной деятельности органы внутренних дел
руководствуются Законом РФ «О милиции», Кодексом РФ об административных
правонарушениях, а так же Указами президента, постановлениями и
инструкциями правительства, другими законами и правовыми актами.

В ходе отправления административных полномочий сотрудники и
аппарат милиции вступают в административно – правовые отношения в
гражданами, учреждениями, организациями.

Административную деятельность осуществляют в большей степени следующие
подразделения милиции общественной безопасности: отдел ГИБДД, участковые
инспектора милиции, отдел лицензионно-разрешительной системы (ЛРС),
отдел паспортно-визовой службы (ПВС), инспекция по делам
несовершеннолетних (ИДН) и сотрудники дежурной части.

ОВД используют широко такие формы административной деятельности как
составление протоколов об административных правонарушениях

Нормативные акты и литература

1. Конституция РФ.

2. Федеральный закон “О воинской обязанности и военной службе” от 28
марта 1998 г. N 53-ФЗ (в ред. Федерального закона от 11.11.2003 N
141-ФЗ).

3. Федеральный закон “О статусе военнослужащих от 27 мая 1998 г. N
76-ФЗ(в ред. Федерального закона от 11.11.2003 N 141-ФЗ).

4. Закон РФ «О милиции» N 1026-1 от 18 апреля 1991 года (в ред. от
10.01.2003 N 15-ФЗ).

5. Указ Президента РФ «О системе и структуре федеральных органов
исполнительной власти» от 9 марта 2004 года № 314.

6. Указ Президента РФ «Вопросы структуры федеральных органов
исполнительной власти» от 20 мая 2004 г. № 649.

7. Указ Президента РФ “О порядке опубликования и вступления в силу актов
Президента РФ, Правительства РФ и нормативных правовых актов федеральных
органов исполнительной власти” от 23 мая 1996.

8. Постановление Правительства РФ от 18 июля 1996 г. N 1039 „ Положение
о Министерстве внутренних дел РФ “( ред. Указа Президента РФ от
17.04.2003 N 444).

9. Административная деятельность ОВД: Учебник /под ред. В. Я. Кикотя  —
М. : Юнити-Дана, 2003

10. Административная деятельность органов внутренних дел. Часть Общая.
Учебник.  — М., МЮИ МВД России. «Щит-М». 1997.

11. Административная деятельность органов внутренних дел. Часть
особенная. Учебник.  — М., МЮИ МВД России. «Щит-М». 1997.

12. Атаманчук Г.В. Теория государственного управления. – М., 1997.

13. Бахрах Д.Н. Административное право. Учебник для вузов.  — М.: БЕК,
2000.

14. Бородин С.С. и др. Административная деятельности ОВД: Словарь
терминов и понятий.  — М.: Издательство Лань, 2000.

15. Габричидзе Б. Н., Чернявский А. Г. Административное право.  — М.:
Проспект, 2004.

16. Еробкин К. Л. Управление в области охраны общественного порядка.  —
М., 1995.

17. Уткин Д.В. Сборник нормативных актов по административной
деятельности ОВД.  — М.: Издательство: Щит-М , 2000.

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