General mechanisms for regulating territorial development. Strategic planning tools for the socio-economic development of the territory Subjects of strategic planning for the development of the territory

Strategic plan for the development of the region is a management document that contains an interrelated description of various aspects of the development of the region. The preparation of such a document provides for:

setting goals for the development of the region;

determination of ways to achieve the set goals;

analysis potential opportunities, the implementation of which will allow you to achieve success;

development of methods for organizing traffic in selected directions;

substantiation of rational ways of using resources.

Strategic plan for social economic development region is an indicative document that allows the administration of the region and the regional community to work together. This is not only a document of the administration, but to a greater extent of all subjects of the regional development process, including economic agents and participants in the political process. This is not a directive from above, directed from the regional administration to entrepreneurs and residents of the region, but a guideline developed with the participation of all agents of economic activity.

Such a plan provides for balanced and coordinated actions of all actors to solve existing problems. It is a tool for building partnerships, a mechanism for identifying and implementing effective strategic actions in all spheres of life in the region.

TO the main characteristics of the strategic plan socio-economic development of the region include:

highlighting the strong and weaknesses regional economy, the desire to strengthen, develop, form the competitive advantages of the region with a benchmark, first of all, to create better living conditions for people;

concise ideas and principles that guide producers of goods and services, investors, the administration and the population, helping them to implement decisions based on a vision of future development;

Partnership interaction of all regional forces.

A component of the strategic plan for the development of the region should be the administration's action plan attached to it for the implementation of the planned activities.

Strategic plan development stages socio-economic development of the region include:

an assessment of the achieved level and features of the socio-economic development of the region, which also presupposes an analysis of the regional resource base of this development;

development of a concept for the development of the regional economy, development of scenarios for the modernization of the regional economy in order to

adaptation of the latter to new system interregional connections and interdependencies;

3) selection and substantiation of directions for the future development of the region.

These directions are classified depending on the possible scenarios of future development, determined on the basis of a preliminary analysis, based on calculations of various options for the specialization of the regional economic complex.

The starting point for the development of the concept should be the definition of the development goals of the region, as well as its sectoral priorities ("poles" of the development of the region). The main development goalregion is seen in solving the problem of self-sufficiency of the region, i.e. the ability to independently perform the full set of functions determined by its status.

The main target of the strategic plan development of the region is to increase the level and quality of life of the population of the region. To improve the living standards of the population, it is proposed to form and fulfill a "social order". The concept of "social order" includes a set of services necessary to ensure the normal life of the population.

To implement this installation, the following standards are being developed:

currently achieved standards of consumption of goods and services;

actual consumption in developed countries;

rational standards.

In a roughly generalized form, the alternatives to regional development can be defined as follows:

growth strategy, which is implemented by a significant annual excess of the level of short-term and long-term target parameters over the level of indicators of the previous year (it is used, as a rule, in dynamically developing regions with significant potential);

a strategy of limited growth, which is characterized by the setting of goals from the achieved level, adjusted for inflation (this strategy is chosen mainly by regions with a stable economic situation that do not want to take much risk in choosing development options);

reduction strategy (this alternative is chosen in the case of an inevitable stagnation of production in the region in order to mitigate the negative consequences and is called the strategy of the last

state, since the level of the goals set is lower than that achieved in the past).

This strategy may have several options: reorganization or complete elimination of ineffective production; cutting off the excess, i.e. the curtailment of those industries, the economic inefficiency of which causes a drop in results for the region as a whole; downsizing and reorientation: liquidation of a part of production facilities with the allocation of the released funds to re-profiled and modernized enterprises in the region.

Definition "Poles" of regional development is the most important task in developing a strategy for the development of the region. The main direction of reforming the economy of most regions at the present stage is a gradual movement towards the formation of a new social order of the post-industrial type based on the use of new technological methods of production in a multi-structured socially oriented economic system with modern characteristics of the quality of life of the population and with an active role of state bodies in regulating the economy.

An important principle for the development of social sectors will be to reduce the pressure of these sectors on the regional budget with a simultaneous increase in funding for these sectors in the budget.

The implementation of this provision means:

expanding possible sources of financing for social sectors, attracting funds from the population and enterprises for this on mutually beneficial terms, up to the creation of enterprises with mixed capital in budgetary sectors of the social sphere;

reducing the cost of the social sphere due to the regime of saving resources, conducting targeted social events, restructuring and expanding self-sustaining activities, in connection with which institutions and enterprises of the social sphere should enjoy the regime of tax benefits and most favored nation;

pursuing a policy of developing competition in the social services market with mandatory control of the regional government over the quality of services; stimulating the creation competitive environment in monopoly markets for social services; holding tenders and bidding for the right

performance of social services; formation of a municipal order for social services for all main types of social sphere.

Another area of modernization of the region is to provide conditions for economic growth based on the expansion of production competitive goods, support of innovative industries and new technologies.

The region should more actively participate in the formation of priority areas for the development of enterprises of all forms of ownership and levels of subordination. The basis should be based on the priority development of industries working to serve the population. In this regard, the restructuring of industry, especially large enterprises, should provide for the support of those enterprises that, as a result of market research, have a real effective demand for products. It is also necessary to support the innovative type of development and the establishment of industries that are competitive in other markets.

To solve the problem of industrial restructuring at the first stages, the allocation of priority sectorslei economy and leading enterprises, allowing to ensure a balanced growth of production in all sectors. Support for leading enterprises will create the necessary financial stability of the region's economy, become a source of increasing employment, provide work for enterprises in related industries for cooperation, concentrate financial resources on breakthrough areas of the economy, without scattering them. Such support presupposes closer ties between enterprises of both the same industry and within the framework of inter-industry cooperation with the aim of gradually including all enterprises in the region in the development process.

Industrial restructuring involves increasing the flexibility and adaptability of enterprises, support for small and mediumhim entrepreneurship.

Production of mass and large-scale nature in most industries in crisis conditions is not profitable enough. Therefore, it is necessary to support the policy of reducing the scale of production with a simultaneous increase in the number of small enterprises in various fields of activity.

Carrying out a diversification policy will make it possible, on the basis of large industrial enterprises, to form several medium

them and small ones that use the same production facilities more efficiently. However, this is only possible if a certain mechanism is created to implement the procedure for unbundling enterprises and division of ownership. One of the options for such a mechanism is the creation of an industrial group on the basis of large enterprises with a management company responsible for solving joint problems and interfering in the affairs of each of the enterprises only within the framework of its powers.

Support for small and medium-sized businesses is necessary for the region to pursue a policy of creating jobs without reducing production efficiency and labor productivity. Small business, especially in the field of production and services, has large reserves for providing employment to the population.

One of the goals of economic restructuring is the saturation of the commodity market, the achievement of which is impossible without support of local producers and industries operating in conditions closed on the regional market.

Support for local producers is focused on ensuring the stability of the economy, its strategic independence from foreign markets, concentration of financial flows in the region and, as a consequence, ensuring the stability of its budget. The change in the direction of support towards domestic production and consumption does not mean an orientation towards a closed market, which is practically unrealistic in the context of the globalization of economic ties. We are talking about adjusting economic ties, eliminating imbalances between the import and export of products in terms of their public utility and impact on the region's economy.

The creation of cooperative structures in the form of the most closed technological chains of product manufacturers within the region will ensure a more complete utilization of production capacities, reduce costs, and save on taxes.

Restructuring the country's economy by the present stage impossible without support resource-saving and energy-savingproductions, pursuing a resource conservation policy. High material consumption and low efficiency of resource use are one of the main obstacles to the growth of production in the context of focusing on effective demand, therefore resource conservation can be considered as the main criterion for assessing

the feasibility of measures for the restructuring and development of this production. For this purpose, it is proposed to create a mechanism for comparing resource costs for all development projects. Enterprises should justify the costs of resources in the calculations and disclose alternative possibilities for their use, especially in the case of obtaining investment loans.

They require a solution to the problem of inter-budgetary relations, the distribution of subsidies and transfers across the regions of the country. To implement this direction, a policy of strict control over the region's revenues and expenditures is required, and the efficiency of property management in the region must be increased.

Improving the efficiency of the regional economy is also possible through increasing productivity, utilization and efficiency of using production capacities, which can be achieved through the introduction of intensive technologies and, as a result, reducing costs.

A long-term promising direction for the implementation of these measures is to achieve financial stability of the regional budget, change its structure, and find additional sources of funding.

The main components of the strategy socio-economic development should be:

pursuing targeted structural, scientific, technical and investment policies;

solving social problems in reforming the economy;

stimulation of business activity in the real sector of the economy.

The main direction of economic policy is the creation of a middle class of property owners.

The restructuring of the domestic industry is possible on the basis of the organizational and economic reorganization of the scientific and technical complex, the formation of an effective system of research and development, the activation of science on this basis and the implementation of its achievements in life.

The solution of social problems is the most important criterion for the effectiveness of the reforms carried out in the country.

Depending on the time horizon one or another target setting can be set and measures are planned to solve social problems:

In the long term, the global target for social policy is

the approximation of the living standards of Russians to the standards of a post-industrial society;

within the medium-term period, the task is to achieve the pre-crisis standard of living of the population of Russia;

as an operational goal, one can set the task of ensuring conditions for the physical survival of people, preventing a social explosion in society.

In the field of stimulating business activity in the real sector of the economy, the most important measures are:

setting by law the minimum amount of guaranteed wages, which reflects the price of unskilled labor and should be focused on the cost of living in the country; bringing the parameters of the Unified Tariff Schedule in line with the size of the subsistence minimum;

guaranteeing the timely payment of wages by the employer;

legislative definition of the method and procedure for indexing the income of the population in order to preserve the real purchasing power of monetary wages in the context of inflation;

reducing the property stratification of the population, overcoming unreasonably high differences in the income levels of the subsistence part and the poor.

STRATEGIC PLANNING OF REGIONAL DEVELOPMENT. CONCEPT AND ESSENCE OF STRATEGIC PLANNING

Ruzavina Alina Olegovna,

Rostov State the University of Economics(RINH)

economics student

Rostov-on-Don, Russia

ANNOTATION.

This article discusses the concept and essence of strategic planning of the region. Strategic planning for the development of a region is a management process and can be presented as a chain of consistent, targeted actions of the authorities and administration. Dividing the process into stages allows you to maintain a hierarchy of goals and objectives, as well as clearly define the participants in the process at each of its phases.

Keywords: strategic planning; strategic plan; economic development; economic growth.

At the present stage of socio-economic development Russian Federation regional problems are becoming more and more urgent. Russia consists of 88 constituent entities, each of which, in turn, includes many municipalities - cities and towns, rural administrative regions, hundreds of settlements. Each of them is characterized by a unique structure of the economy, specific reproduction cycles, and its own social sphere. To achieve the goals of sustainable economic growth in the Russian Federation, it is necessary to ensure the cumulative development of each of the municipalities.

The Russian Federation has made some progress in suppressing inflation, making payments of a social nature, and transitioning to a growing trajectory of economic development. However, these positive tendencies are manifested far from evenly throughout the country. Many subjects continue their difficult "struggle for survival", which allows us to put forward the thesis of growing regional asymmetry. In addition, the strengthening of regional differentiation has extremely negative consequences for the socio-economic development of the state as a whole.

The development of a regional development strategy is the most important task both in regional science and in practical activities... The content of the city development strategy is determined by a 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.

The leading enterprises are the city-forming ones, which 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 planning of urban development using tools for the development and implementation of decisions on a long-term vision of the future. In general, strategic planning is a special type of planned work, consisting in the development of strategic decisions in the form of forecasts, projects and programs that provide for the advancement of development goals and strategies, the implementation of which will ensure their effective and sustainable functioning in the long term.

Strategic planning is the process of formulating the mission and goals of an organization, choosing specific strategies to identify and obtaining the necessary resources and allocating them to ensure the effective operation of the organization in the future. Strategic planning can also be presented as a certain set of actions, decisions taken by management to develop specific strategies that help the organization achieve its goals.

Rice. 1. Sections of strategic planning

Strategic planning at the level of the municipality 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 the stages and activities to achieve the intended goals ...

The strategic development plan can be viewed as a reflection of the desired future state of the economic and social structure of the region (goals) presented in the documents and a way of using available and actually possible resources to achieve this. "

The implementation of strategic planning occurs through:

resource allocation;
adaptation to the external environment;
internal coordination;
organizational strategic foresight.

According to the Ural economist V.S. Bochko, the positive aspects of strategic plans are:

systemic resolution of objective contradictions;
complex 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 material" orientation of the development of the local economy;
subordination of investment activities to the creation of comfortable production and cultural conditions for the population of the territories;
gradual approximation of the economies of municipalities to the standards of the world level of development.

V.S. Bochko writes: “Since the economy of Russia, and therefore of the regions, has a catching-up character, it is impossible to get out of this state by gravity, without special organizational efforts. We need creative coordinated actions of the authorities, all structures and social groups... Such an opportunity is presented by the development and implementation of plans strategic development territories, i.e. complexly developing and solving social issues not only on the residual principle, but on the basis of purposeful programmatic development. In such conditions, the main results of the implementation of strategic plans will be:

increasing the competitiveness of the territory;
development of a new way of thinking about the forms and methods of territory development;
the formation of structures on the territory - the locomotives of economic development;
synthesis of state municipal regulation and market self-regulation;
the formation on the territory of a new, corporate type of relationship between the government, business, the public and other structures.

Strategic planning for the regional economy is a relatively new phenomenon. The objective need for it appeared as a result of the fact that in conditions of unstable external environment cyclical planning has proven unacceptable, and strategic decisions must be made quickly enough to cope with “strategic surprises” in the form of unexpected threats and opportunities. In a market economy, strategic regional planning allows:

use the competitive advantages of the region;
to identify "points of growth", the development of which will bring the greatest effect;
to concentrate investment resources in priority areas;
to create a basis for the substantiated development of a rational scheme of territorial planning;
demonstrate the desire of the regional authorities to use modern methods management.

The existing management system in many regions of Russia has not undergone any significant changes in comparison with the one that was formed during the period of the centralized economy. Regional power structures turned out to be more capable of reproducing the old command-administrative system than of innovative methods and forms of management. Today, at the regional level, there are practically no new management mechanisms; at best, their lack is made up for by copying Western models and mechanically transferring them to Russian practice in the form of various kinds of reforms. In the management of the region, a limited set of instruments is mainly used, which boils down to budget transfers and federal targeted programs.

Currently, the management of the region is undergoing a complex transformation due to:

strengthening the economic independence of regions and shifting economic reforms to the regional level, which implies the need to take into account the specifics of each region;
the predominance of private capital in the most important manufacturing industries, forcing the search for new indirect methods state regulation regional economy;
the transition to the construction of a social state in Russia, which provides for the creation of conditions that ensure a decent life and the free development of the individual. This process is quite lengthy and complex and requires active influence from the regional authorities;
the lag in the development of the theory of regional management from the practice of reforming the economy of the region. Thus, attempts to update the regional management system are carried out without the necessary theoretical study, many of the measures taken are of a spontaneous and opportunistic nature. There are growing signs of command, authoritarian governance, subjectivity and a simplified approach to the complex socio-economic processes taking place in the region.

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 the given territory. "

Thus, regional strategic planning is currently a prerequisite for increasing efficiency government controlled region. Despite the elaboration of a number of issues related to the theory and practice of strategic regional management, there are still many problems outside the scope of scientific consideration, the solution of which will contribute to the sustainable development of the region, as well as to increase the level and quality of life of the population.

BIBLIOGRAPHY:

Belkina T.D. Strategic plans for urban development and tools for their implementation // Problems of forecasting. 2010. No. 3.P. 14.
Bochko V.S. Theoretical and methodological foundations of integrative strategic development of territories. Abstract of dissertation for competition academic degree Doctor of Economics. Yekaterinburg, 2010.26 p.
Voronin A.G. Strategic planning and management of territory development. M., 2010.
Granberg A.G., Lvov D.S., Obozov S.A. Strategic management: Region, city, enterprise: Tutorial... M .: Economics, 2010.S. 337.
Zhikharevich B.S., Yanovskiy A.E. How to assess the quality of strategic planning: A practical guide: Territorial strategic planning. T 2. SPb .: ICSEI "Leontief Center", 2010. 43 p.
Strategic planning as a factor of regional development [Electronic resource] / access mode: http://vestnik.osu.ru/2010_1/13.pdf

Historically, Russia is a country with a large territory and rich natural resources. But along with these advantages in the country it is extremely low level development of territories, certain types industry, infrastructure and cities. We believe that in order to solve these problems, it is necessary to accurately develop socio-economic and functional strategies, due to the implementation of which the level of development of the territories will increase.

In the process of preparing a plan for a strategy for the development of a territory, competent specialists develop a program for the socio-economic development of a specific territorial area. The program is a system of the most important problems of the socio-economic development of the territory and effective ways and means of solving these problems.

It should be noted that when developing programs and strategies for the development of territories, one should carry out marketing research... It is very important to prepare an analysis of the market for territorial resources, goods and services that are produced in a given territory. Taking into account the indicator "potential of the territory", it is possible to create both economically justified plans for the development of territories, and to assess the prospects for the development of markets and the possibility of presenting them with a qualitatively new product.

Thus, the territory development strategy includes:

retrospective analysis and assessment of socio-economic, innovative and technical development territory;
creation of a plan for the development of the territory;
formulation of goals, objectives and priorities of the socio-economic and investment policy implemented in the territory by local self-government bodies;
planning and implementation of measures to improve the level of development of the territory;
development of a forecast for the development of the territory;
development strategy for sectoral activities;
transport, logistics and service strategy;
HR strategy.

The results of the management of the territory development strategy are:

a qualitative increase in the level of infrastructure of the territory;
optimization of construction processes taking into account the cultural, geographic and ecological characteristics of the area;
optimization of the processes of maintaining urban planning documentation;
increasing the level of well-being by providing LSG bodies with regular monitoring data of normative and planned indicators of the socio-economic development of the territory;
increasing the level of safety by taking into account and analyzing areas of high risk of occurrence emergencies when making all urban planning decisions;
creation of conditions for the investment attractiveness of the territory due to open and accessible information about the plots intended for construction and related development processes;
reducing the level of corruption through public adoption of urban planning decisions and creating conditions for open management of the development of the territory.

The Russian Union of Engineers sees its mission for the development of territories not only in socio-economic and marketing optimization, but also in the processes of effective construction of residential and industrial facilities, the creation and development of infrastructure.

2.1 Basic principles for developing strategic planning

By developing our own projects aimed at promoting Russian cities In modern planning of economic development, the Institute for Urban Economics Foundation proceeds from the premise that the city needs, first of all, to determine its own development strategy and develop a set of practical measures to implement this strategy. The main provisions of such an economic development plan (or other document - the name has no fundamental significance) should, in our opinion, be as follows:

The plan should be created taking into account the socio-economic and political situation in a particular city and ensure the efficient use of the resources that the city has, or that can really attract the city to achieve the goal of its development. Therefore, the drafting of the plan should be preceded by a serious analytical stage, during which it is necessary to consider several scenarios for the development of the city and, when planning, focus on the most probable of them. An analytical report with an assessment of the conditions and resources for development, as well as proposals for development directions should be a mandatory annex to the economic development plan.

Work on the plan should proceed from the requirement to increase the democratic processes of managing the urban economy. The work on the plan should be carried out taking into account the positions of all representatives of the urban community (local authorities, business, representatives of the public, scientific and educational institutions, etc.), using their intellectual and organizational potential. Urban governance structures that act on behalf of the urban community should involve competent representatives of the urban community in the development process and interact with higher-level administrative structures (regional and federal).

The plan should be a forecast document in line with the current economic reality and be calculated for the medium / long term. The plan should include a concept for the development of the city and a summary of the plans to be developed and implemented. targeted programs... When developing programs, it is necessary to take into account their impact on all components of the city's development: economic, socio-cultural, urban planning, environmental and others.

Flexibility must be the most important feature of an economic development plan. The process of implementing the plan implies its periodic concretization, in particular, in the form of more stringent annual plans... In addition, as necessary, the strategic plan itself should be changed and refined in accordance with changes in the socio-economic situation and the views of the urban community on the development of the city.

The most important condition for the high-quality development of the plan is the leadership of the city leader, and the key to its successful implementation is the support of the entire city community, for which the plan must go through the procedures of public discussion and adoption by the city representative authority.

Currently, in most Russian cities, economic development planning is usually carried out by the city administration itself, most often by an economic committee or a department of socio-economic development. Planning for the development of the city by the forces of the city administration has a number of disadvantages associated with the large volume of current operational work, the bureaucratic nature of the decision-making process, insufficiently high wages, and often insufficient qualifications of specialists.

As a rule, the work of these departments has little to do with the development of a city development plan in its modern sense. The preparation of today's plans for socio-economic development usually consists in the mechanical integration of various, little related programs prepared by the sectoral departments of the administration. This work is carried out “from the bottom up”, without a developed concept of city development, without justified priorities for the priority of implementation and financing of individual programs.

For decades, the stereotypes of behind-the-scenes work that have taken shape most often do not allow taking into account the realities of new economic processes, in particular, the formation of a new active group of subjects of urban socio-economic life. These include the private economic sector (manufacturing and trading enterprises, banks, service enterprises, etc.), as well as actively developing public structures of a wide variety of profiles (political, trade union, environmental, veteran and other organizations). The effectiveness of the administration's management depends on how accurately the interests of these structures are taken into account in the decisions made, how accurate the calculation of the effect of the decisions made for the community as a whole, and for business in particular. Often, the city administration does not consider it necessary for itself to make such calculations, and, accordingly, does not have specialists of the appropriate profile on its staff.

The tasks of organizing modern planning of economic development, solved in the context of the transition to market relations, the almost complete absence of administrative directives from higher levels of government and the need to make independent economically sound decisions, require the fulfillment of a number of conditions.

First, the city manager (mayor) initiates the urban development plan process. First of all, the city leader must convince the city community of the need to adopt and implement the urban development plan, overcome the opposition of opponents. Subsequently, the functions of a practical organizer of planning work can be transferred to another person, for example, an employee of the city administration of a sufficiently high rank, who has received a corresponding official assignment. However, in any case, it is necessary to preserve the comprehensive and constant support of the head of the city, who has real power. Foreign, in particular American, experience shows that most often it was the lack of political support that was the reason for the failures of programs for the economic development of municipalities.

Secondly, it is necessary to involve the urban community in the process of developing a concept for city development and preparing an economic development plan. The planning work should involve city organizations or individual citizens who:

a) they themselves are subjects of urban socio-economic life and, accordingly, have their own goals that must be taken into account in the development of a city development plan;

b) can professionally formulate their proposals on ways to develop the urban economy;

c) have intellectual, personnel, organizational, material and financial potential that can be used in the course of planning work.

In addition, representatives of the higher authorities (federal, regional) must necessarily participate in the planning work, which, firstly, has its own interests in the development of territories, and secondly, has sufficient leverage (administrative, legal, financial) to influence and the situation in the city.

In order to fulfill these conditions and ensure a balance of interests of different representatives of the city, it is necessary to find appropriate schemes for their involvement in planning. The schemes can be different and depend on many factors, including the size of the city, the economic situation in it, the goals of economic development, the degree of interest of the private and public sectors in economic development, financial and human resources of the city.

The first option for attracting “external” specialists to the development of the economic development plan is to create an expanded working group on the basis of the city administration. The core of the group is made up of specialists from the city administration, in addition, representatives of various city, as well as regional, organizations that are interested in the development of the plan and are able to provide real assistance can be invited to the group. Representatives of these organizations can be involved in the work as experts (possibly on a paid basis), or in the course of discussions on draft documents prepared by a narrower group (mainly on a public basis). An example would be the organization of such a group in the city of Pskov during the implementation of the project of the Institute for Urban Economics Foundation. In addition to employees of the city committee on economics, it included employees of the independent Pskov Center for Regional Planning and Territorial Development, the Pskov Polytechnic Institute and some other organizations. The work on organizing working groups in Russian cities encounters certain difficulties, in particular, with the involvement of representatives of city business, as well as senior city officials, in this work. Apparently, as the practice of urban economic planning develops, the participation of competent city officials in such work will become more widespread.

Another common option is the cooperation of the administration with an organization existing in the city, most often some kind of urban research organization, consulting firm, university, etc. Work with such an organization is carried out by concluding an agreement with it to perform work of a one-time or long-term nature. So, in Nizhny Novgorod, the Nizhny Novgorod Institute of Management and Business and the Nizhny Novgorod Institute of Economic Development were involved in such work, in Khabarovsk - the Far Eastern Research Institute of the Market.

A relatively new scheme for attracting all urban structures actually working on this or related problems in solving problems of planning economic development is the creation of a new specialized organization in the city, for example, the Agency for Economic Development (AED). In this case, the city can act as one of the founders of such an Agency, using its own intellectual and information resources as a statutory fund, transferring real estate or other property to the organization being created. The practical implementation of this form has so far been noted mainly abroad. In the United States, it is distributed in the form of various local development corporations. There are successful examples of the implementation of this concept in Europe, for example, in the Spanish city of Barcelona.

Planning for the economic development of a city is similar to strategic planning in business and includes several classical stages. There are different options for designating the stages for creating a plan for urban economic development, but their differences are not fundamental. These stages can be indicated as follows.

Keywords

SPATIAL DEVELOPMENT STRATEGY / TERRITORIAL PLANNING / STRATEGIC PLANNING / GENERAL DISTRIBUTION SCHEME / URBAN AGGLOMERATIONS / GENERAL PLAN / STRATEGY OF SPATIAL DEVELOPMENT/ TERRITORIAL PLANNING / STRATEGIC PLANNING / GENERAL SCHEME OF SETTLEMENT / URBAN AGGLOMERATIONS / GENERAL PLAN

annotation scientific article on social and economic geography, the author of the scientific work - Lebedinskaya Galina Aleksandrovna

The article substantiates the thesis of belonging to the system; the evidence is the presence of a plan, the three-dimensionality of space, methods of describing and structuring it (transport, natural frames, etc.). Spatial development strategy it is essentially an integral, conceptual part territorial planning, the sequence and direction of the development of space, the choice of priority directions for the development of territorial-economic systems, the establishment of the ratio of urbanized and natural areas, ensuring their sustainable development. Wherein spatial development strategy as part of the system territorial planning The Russian Federation is not formalized and is considered as the missing link in the system of its documents; its missing levels, for which it is necessary to give the concept in the Urban Planning Code of the Russian Federation spatial development strategies, are the levels of the country as a whole, the macroregion and urban agglomerations. Spatial development strategy it is proposed to define as the main and general plan for the development of a territorial object (settlement system, a subject of the Russian Federation, a municipal district, a city, an agglomeration), drawn up in the form of a document strategic planning, defining the priorities, goals, focus, scale and limitations of spatial development in the long term. For urban agglomerations it's minimal required document anticipating territorial planning at the level of cities, urban districts and municipal districts, the basis for developing a program of measures for the strategy of socio-economic development and a program for its implementation, for joint planning of urban and rural settlements; the obligatory nature of their planning must be determined in the Urban Planning Code of the Russian Federation and in the law “On strategic planning».

About the Place of Strategy of Spatial Development in the System of Territorial Planning of the Russian Federation

The article substantiates the thesis about the belonging of the spatial development strategy to the system of territorial planning; proofs are the existence of a plan, three-dimensionality of space, methods of its description and structuring (transport, natural frameworks, etc.). The spatial development strategy is essentially an integral, conceptual part of the territorial planning, the consistency and direction of the development of space, the choice of priority directions for the development of territorial and economic systems, the establishment of the ratio of urbanized and natural territories that ensure their sustainable development. At the same time, the spatial development strategy as a part of the territorial planning system of the Russian Federation is not formalized and is considered as a missing link in the system of its documents; the missing levels for which in the Town Planning Code of the Russian Federation it is necessary to give the concept of a spatial development strategy are the levels of the country as a whole, the macroregion and urban agglomerations. The spatial development strategy is proposed to be defined as the main and general plan for the development of the territorial object (the system of resettlement; the subject of the Russian Federation in a municipal district, city, agglomeration), designed as a strategic planning document that defines the priorities, goals, direction, scope and limitations of spatial development in the long term. For urban agglomerations, this is the minimum necessary document that precedes territorial planning at the level of cities, urban districts and municipal districts, the basis for the development of a program of measures for the socio-economic development strategy and its implementation program, for joint planning of urban and rural settlements; the obligatory nature of their planning is to be determined in the Town Planning Code of the Russian Federation and in the Law "On Strategic Planning".

The text of the scientific work on the topic "On the place of the spatial development strategy in the territorial planning system of the Russian Federation"

DOI: 10.22337 / 2077-9038-2018-1-59-66

The place of the spatial development strategy in the territorial planning system of the Russian Federation

G. A. Lebedinskaya, Central Research Institute of Construction of the Ministry of Construction of Russia

The article substantiates the thesis that the spatial development strategy belongs to the territorial planning system; the evidence is the presence of a plan, the three-dimensionality of space, methods of describing and structuring it (transport, natural frames, etc.). The spatial development strategy is essentially an integral, conceptual part of territorial planning, the sequence and direction of the development of space, the choice of priority directions for the development of territorial economic systems, the establishment of the ratio of urbanized and natural areas, ensuring their sustainable development. At the same time, the spatial development strategy as part of the territorial planning system of the Russian Federation is not formalized and is considered as a missing link in the system of its documents; its missing levels, for which it is necessary to give the concept of a spatial development strategy in the Urban Planning Code of the Russian Federation, are the levels of the country as a whole, the macroregion and urban agglomerations. The spatial development strategy is proposed to be defined as the main and general plan for the development of a territorial object (settlement system, a constituent entity of the Russian Federation, a municipal district, a city, an agglomeration), drawn up in the form of a strategic planning document, defining the priorities, goals, focus, scale and limitations of spatial development in the long term ... For urban agglomerations, this is the minimum required document that precedes territorial planning at the level of cities, urban districts and municipal districts, the basis for developing a program of measures for a socio-economic development strategy and a program for its implementation, for joint planning of urban and rural settlements; the obligatory nature of their planning must be defined in the Urban Planning Code of the Russian Federation and in the law "On Strategic Planning".

Key words: Spatial development strategy, territorial planning, strategic planning, General scheme of settlement, urban agglomerations, General plan.

Regarding the Role of the Spatial Development Strategy in the Territorial Planning System of the Russian Federation.

G.A. Lebedinskaya, Central Institute for Research and Design of the Ministry of Construction and Housing and Communal Services of the Russian Federation The article substantiates the thesis about the belonging of the spatial development strategy to the system of territorial

planning; proofs are the existence of a plan, three-dimensionality of space, methods of its description and structuring (transport, natural frameworks, etc.). The spatial development strategy is essentially an integral, conceptual part of the territorial planning, the consistency and direction of the development of space, the choice of priority directions for the development of territorial and economic systems, the establishment of the ratio of urbanized and natural territories that ensure their sustainable development. At the same time, the spatial development strategy as a part of the territorial planning system of the Russian Federation is not formalized and is considered as a missinglink in the system of its documents; the missinglevels for which in the Town Planning Code of the Russian Federation it is necessary to give the concept of a spatial development strategy are thelevels of the country as a whole, the macroregion and urban agglomerations. The spatial development strategy is proposed to be defined as the main and general plan for the development of the territorial object (the system of resettlement, the subject of the Russian Federation in a municipal district, city, agglomeration), designed as a strategic planning document that defines the priorities, goals, direction, scope andlimitations of spatial development in the long term. For urban agglomerations, this is the minimum necessary document that precedes territorial planning at the level of cities, urban districts and municipal districts, the basis for the development of a program of measures for the socio-economic development strategy and its implementation program, for joint planning of urban and rural settlements; the obligatory nature of their planning is to be determined in the Town Planning Code of the Russian Federation and in the Law "On Strategic Planning".

Keywords: Strategy of spatial development, territorial planning, strategic planning, general scheme of settlement, urban agglomerations, general plan.

The question of the belonging of the concept "strategy of spatial development", introduced into the legal field by the law "On strategic planning in the Russian Federation" dated June 28, 2014 No. 172-FZ, to the territorial planning system was raised due to the fact that territorial planning with the adoption of the above the law is inscribed in the general planning system in the country, but at the same time its content has not been supplemented, and it has not yet been determined what place the spatial development strategy should occupy in it. With regard to the territory of Russia (article 1, paragraph 20): the spatial development strategy is a document of strategic

planning, defining the priorities, goals and objectives of the regional development of the Russian Federation and aimed at maintaining the stability of the settlement system on the territory of the Russian Federation.

The definition of the concept of spatial strategy given in the law is given in relation to the system of documents, in which this document occupies a certain place, and not to its specific content, and does not carry an exhaustive semantic load; because the keyword in the definition is document, and the formal purpose of the document is defined. The content of the strategy is not deciphered in the law, it is determined by a separate decree of the Government of the Russian Federation. The interpretation of the content of the concept of spatial development strategy, in our opinion, is open question and requires professional discussion.

The main question that deserves attention in this context: is the spatial development strategy a missing link in the territorial planning system in the Russian Federation or an existing but not formalized part of territorial planning documents?

The special significance of territorial planning in the Russian Federation is predetermined by the peculiarities of its space, first of all - the size of the territory, the variety of natural conditions, large regional differences, the contrast of settlement and socio-economic development, which in the absence of a unified strategy

the organization of space leads to an even greater polarization of settlement, to the hypertrophied growth of the largest cities, agglomerations, and an increase in its contrast.

The tasks of improving settlement, regulating processes leading to deepening imbalances in spatial development on a national scale, predetermined the formulation of a spatial development strategy in the number of documents developed within the framework of goal-setting according to the sectoral and territorial principle (Article 11, Clause 2); in accordance with Art. 20 of the law on strategic planning, the spatial development strategy defines the priorities, goals and objectives of the regional development of the Russian Federation and measures to achieve and solve them.

How these tasks are solved and how they are interpreted is clearly illustrated by the electronic resources of the federal department, which is responsible for the implementation of this law (Fig. 1). The following thesis is given on the website of the Ministry of Economic Development: "Federal Law No. 172-FZ of June 28, 2014" On Strategic Planning in the Russian Federation "provides for the preparation of a fundamentally new type of document for Russia, combining the approaches of strategic and territorial planning - the Spatial Development Strategy Of the Russian Federation (hereinafter - the Strategy), designed to become a "projection" of socio-economic development priorities on the territory, to assess the existing settlement system

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Spatial development strategy of Russia

Public policy regional development of the Russian Federation is aimed at ensuring sustainable socio-economic development of the constituent entities of the Russian Federation. including through the removal of infrastructural restrictions and the fullest use of the potential of regions and cities.

Federal Law No. 172-FZ of June 28, 2014 "On Strategic Planning in the Russian Federation" provides for the preparation of a fundamentally new type of document for Russia that combines the approaches of strategic and territorial planning - the Strategy for the Spatial Development of the Russian Federation (hereinafter referred to as the Strategy), designed to become a "projection" of socio-economic development priorities on the territory, to assess the existing settlement system in the Russian Federation, to give proposals for its harmonization.

The strategy should define the priorities, goals and objectives of the regional development of the Russian Federation, as well as measures to achieve and solve them. As part of the Strategy, proposals are being developed to improve the settlement system on the territory of the Russian Federation and to prioritize the distribution of productive forces.

In accordance with the Decree of the Government of the Russian Federation of August 20, 2015 No. 870 "On the content, composition, procedure for the development and approval of a spatial development strategy, as well as on the procedure for monitoring and controlling its implementation" The strategy is being developed for the entire territory of the Russian Federation in detail its provisions in the context

in the Russian Federation, to give proposals for its harmonization ”.

In this regard, it should be noted that certain theses raise questions on the merits of the above provisions:

1) on the combination of approaches of strategic and territorial planning: is it correct to combine the approaches of the system as a whole and its part, and why should it be emphasized if in the law itself territorial planning is spelled out as part of strategic planning and they constitute unified system.

2) that the strategy is a fundamentally new document: how new is it, if it is widely known about the documents of goal setting at the state level that existed in the 80s of the last century in common system state planning (General scheme of settlement on the territory of the USSR, General scheme of development and distribution of productive forces, Concept scientific and technological progress), only the name is new and only in relation to a state-level document: the idea of goal-setting in the field of spatial development underlies all activities in territorial planning (in new terminology), and the concept of "territorial strategy" at the regional level was used in district planning as early as 80 -ies and 90s.

3) the thesis "strategy as a projection of socio-economic priorities onto the territory" raises the question: is it too easy to make regional development dependent on socio-economic priorities, shouldn't the priorities somehow pass through the space as a volume, but can simply be projected onto territory, as on a plane, as if it were a sheet of paper? Socio-economic priorities are thus “projected” onto a territory that is already inhabited and which, being a complex object, has its own laws of development; since the historically established settlement, forms of economic development, etc., are largely determined by natural conditions and differences, and such a projection is one of the possible, but not the only, approach to the formation state document, which should be implemented, including the provisions of the Constitution of the Russian Federation on the integrity of the territory of the state and the unity of the economic space (Articles 4, 8, 67 of the Basic Law). It is also logical to assume that the priorities should be strategic, and references to the Constitution of the Russian Federation should be the main ones.

Without studying the space, without knowing what is happening on the territory, it is difficult to "project" something - you can get into the reservoir, on railroad, a heavy structure or a landfill, into a swamp, into the very center of a forest, or, guided by a map, walk through the taiga within the city limits of the urban district of Komsomolsk-on-Amur and meet a bear or get stuck in the swamps of the Shatura urban district (and this is a whole former district of the Moscow region), and there are dozens of such examples. Leads to such curiosities

in some cases, insufficient consideration of the natural "background" when establishing the boundaries of urban districts.

The main thesis, which in this article is submitted for defense, is the statement that the spatial development strategy belongs to the territorial planning system. In order to substantiate this statement, to answer the question: why the spatial development strategy should relate to the territorial planning system, one should again turn to the regional planning methodology, or, in modern terminology, territorial planning (abstracting from its limited definition in the legal field), earth sciences.

Turning to the methodology of theoretical geography, let us recall that the main difference between space is its three-dimensionality. “Emphasizing the need for a three-dimensional approach to geographic objects, we cannot forget for a moment that when studying vast areas of the earth, when distances are measured in tens and hundreds of kilometers, the vertical and any of the horizontal directions are rarely equal. Every now and then they are distracted from the vertical, remembering it as something additional, secondary, and they represent the landscapes as flat, ”points out B.B. Rodoman.

The three-dimensionality of geographic space is also associated with the use of the third dimension to record temporary changes. “Having discarded the vertical direction, we release one dimension and can again go to a three-dimensional model, in which the vertical component no longer reflects the real relief of the earth's surface, but characterizes the territory in some way; this third dimension can be used to characterize the intensity of the phenomenon, its dynamism ... in this sense, the third dimension is the main field of activity of cartography. " Geographic space is a philosophical conceptual category - an objective, universal and knowable form of existence of material geographic formations and objects. E.B. Alaev defined geographic space as a set of relationships between geographic objects located on a specific territory and developing over time.

The basic, profile method for working with spatial data is the cartographic method, which takes special place in economic-geographical and regional studies. In the figurative expression of V. Kagansky, landscapes and carpets are similar - they look at them and walk on them with feet, but the difference is also great. The carpet of landscapes is large, boundless, indiscriminate, vague and continuous. Its knots are not only elements of the pattern, but also places of life, communities, different and conflicting territorial subjects. The concept of a polarized landscape by B.B. Rodomana assumes harmonious coexistence natural areas and human activities, but they are considered by the author as equally important and opposite (polar) parts of the environment. Opposite and contradictory

The severity of spatial development, the phenomena generated, including the effects of over-concentration in cities, give rise to doubts: is uniformity needed if contrast and polarity are the law of spatial development? The concept of a polarized landscape, the associated concept of a natural framework, interrelated settlement, ideas of organizing space can serve as a methodological basis for the formation of the spatial structure of settlement.

In regional planning (and regional planning as a whole), in relation to space, the strategy meant the sequence and direction of its development, the choice of priority directions for the development of territorial economic systems, the establishment of the ratio of urbanized and natural areas, ensuring their sustainable development and not violating the ecological balance.

In the regional planning, in the general plan, the allocation of the frame has always served as a necessary method for determining the structure of a territorial object; the transport frame, the planning structure were highlighted and the natural frame scheme was built as a counterweight. An architect, geographer, planner thinks in space, structures it, operates with structure; wherein circuit diagram the planning structure, the transport frame precede all other constructions.

The corresponding definitions are given in the designer's handbook "District planning" (1986): planning organization of the territory - rational placement of various functional elements, providing for the optimal mode of their interaction; planning structure - a schematized model of the territory, reflecting the features of mutual placement essential elements natural environment and main economic objects. In the regulatory and methodological materials, definitions of the ecological and natural framework were also given in relation to the tasks of regional planning and urban planning, taking into account research in related fields of knowledge: ecological framework is a system of natural territories that ensure the preservation and reproduction of natural resources and gene pool, regulation and compensation the structure of ecosystems, maintaining ecological balance; the following components are distinguished: resource protection and environmental protection; natural frame - a set of the most active and environmentally interconnected spatial elements (rivers and river valleys, forests, etc.), on which the viability of the natural environment depends.

The most important role in the system of definitions is occupied by the category of urban space as part of the subject of the science of urban processes. The spatial development of society is a fundamental category that encompasses

including the sphere of public self-awareness, awareness by society of the environment, the spatial environment in which the community is located. Space as a fundamental category social development has a significant difference from the geographical approach. At the same time, the essential connection of urban space with economic and legal spaces is expressed in the categories of social development, the centers of which are cities.

There is no generally accepted definition of spatial development, but, in our opinion, the term “spatial development” should be understood as a qualitative change in the properties of space (including the space of a city, settlement system, region) as a result of human transformative activities, under the influence of urbanization, urban, social economic, cultural, demographic, natural, man-made processes. The strategies for the development and transformation of space, laid down in the work on regional planning back in the 20s of the last century, were aimed at achieving economic, and with the development of regional planning as an area of state activity - social and environmental goals.

From these positions, the adoption of the law on strategic planning is an attempt to return the former meaning to concepts, a simple formalization of the logic of dealing with an object developed over decades, using new terminology. The corresponding principles for this (unity and integrity, continuity and continuity, system balance, program-target principle) are laid down in the law.

Restoration of the status of the basic concepts and achievements of the national urban planning school in modern conditions after significant changes in the management and management system, starting in the 1990s, it indicates the applicability of planning approaches at a new qualitative level.

Territory organization, or spatial planning, is the only professional area that synthesizes all possible knowledge about the territory as an object of management. Therefore, it is advisable, along with socio-economic processes and settlement, to consider the entire system of natural, ecological conditions and processes, the projection of which onto the territory determines its changes.

A change in the prevailing trends is possible on the basis of the impact on the processes that led to the above consequences in the field of settlement and organization of space - these are urban, socio-economic, demographic, natural, man-made processes, urbanization, which implies their study, identification of trends, forecasting and choice of options for spatial development.

It should be noted that the composition of the strategy of socio-economic development of any territorial

The draft, as well as the territorial planning documents, includes some of the above issues, and similar procedures have been adopted for its development. We have already mentioned the duplication of part of the socio-economic and territorial planning documents at the strategic forum in 2013. In addition, it was noted the need to prescribe some kind of regulation for interaction between departments for their development, however, the subsequent inclusion of documents of both types - both socio-economic and territorial planning - in the competence of the Ministry of Economic Development of Russia put this task among internal departmental issues, since the responsibility for implementation both the specified law as a whole, and for the development of documents of socio-economic and territorial planning, is entrusted to one department - the Ministry of Economic Development.

At the same time, a controversial question remains whether settlement is the basis and an indirect influence on it is supposed to be made a mechanism of consistent patient qualitative improvements, or settlement becomes a means of economic development, subordinate to current management tasks, in other words, the question of the primacy of social or economic goals, and in practical terms - on the relationship between the approaches of socio-economic and territorial planning. The difference in the approaches of various schools (urban planning and economic-geographical) is in relation to the subject of strategizing: for urban planning, the spatial development strategy implies the organization of space, while economists interpret it as the organization of productive forces. The reason for this is the law itself, in which initially (in the draft) it was envisaged that as part of the Spatial Development Strategy, two documents could be developed - the General Scheme for Settlement and the General Scheme for the Development and Distribution of Productive Forces, and in the adopted law, the Strategy includes proposals on the improvement of the settlement system on the territory of the Russian Federation and the priority directions of the allocation of productive forces (Article 20, item 5), that is, the content of two previously separately executed documents is combined into one.

This thesis on the correlation of approaches is well illustrated by the draft concept of the Spatial Development Strategy (SPD) prepared by the Ministry of Economic Development, which practically repeats the structure characteristic of the strategy of socio-economic development. Due to the streamlined formulation of the law, the possibility of free interpretation by the developers, the content of the concept of the strategy of spatial development in it is emasculated practically to the level of the strategy of socio-economic development. At the same time, the specialized part of the content, derived from the name itself - space, has almost been lost.

So, what new does the concept of "spatial development strategy" bring, which unites both documents?

(general schemes - resettlement and distribution of productive forces), and what is it for? Probably in order to freely vary concepts and resolve contradictions within the document.

The concept of a strategy at the country level prepared by the Ministry of Economic Development, in fact, is a strategy for the development and distribution of productive forces, does not bring anything new on the problems of spatial development, but replaces (by its name) a document that is really necessary - the general scheme of resettlement at the country level. One cannot but recall again the General Scheme of Settlement on the Territory of the USSR in 1981, which was a scientifically grounded program for improving settlement. Earlier in the legislation, the general scheme of settlement on the territory of the Russian Federation was provided (in the previous edition of the City Planning Code of the Russian Federation of 1998); in the current edition of 2004 it is not, the sectoral schemes of territorial planning of the Russian Federation are spelled out; and a comprehensive document at the federal level is not required, its development is envisaged by a separate decision (Article 10 of the Civil Code of the Russian Federation), the system of territorial planning at the federal level is thus not completed.

In this regard, it should be emphasized once again that the strategy of spatial development differs from the scheme of socio-economic development - the subject reflected in the name, therefore, its main content, in our opinion, is the linking of all ideas of development, all control actions to the space of Russia, which should begin with a comprehensive account of all differences in the territory for a number of conditions: climatic conditions, orography, resources, their availability, transport framework, prevailing settlement, etc. If the concept of "strategy" is introduced by federal law, it must be deciphered and spelled out in that system, to which it belongs not on formal, but on substantive grounds, and therefore also in the system of territorial planning.

In these conditions, it seems important to determine the subject and content of the spatial development strategy, to decipher the concept introduced by the specified law in relation to territorial planning as part of strategic planning, - after all, territorial planning documents are defined by law as an integral part of the system of strategic planning documents, with the exception of the municipal level - master plans of cities, urban districts.

The spatial dimension of any strategy historically, when used in warfare and space exploration, has meant being geo-referenced. For the strategy of spatial development, this value should remain decisive. The complexity and unevenness of space initially determined the differences in its development, in the pattern of settlement, and these differences should be shown, as well as the subsequent dynamics of settlement.

The existing settlement is an objective reality, a system with colossal inertia; the population and the main production potential are concentrated in cities. Consequently, to study the settlement, proceed from its properties based on data on the dynamics of settlement over a long retrospective period, apply methods and approaches in the formation of a strategy system analysis and forecasting - an objective necessity.

Unlike a concept, scheme or strategy for socio-economic development, a spatial development strategy should contain a plan. In the district planning and general plan, such a plan was necessarily present; this is the main content of the activity and document. The corresponding definitions are given above. This circumstance (the presence of a plan - a fundamental one, showing the mutual arrangement of parts) is the main proof that the spatial development strategy belongs to territorial planning. Methods for structuring and describing space include, based on cartographic and graphoanalytical methods, identifying the fundamental structure of a territorial object - a planning structure, a transport frame, a natural frame.

The spatial strategy of any territorial object - a country, a region, a constituent entity of the Russian Federation, an urbanized area, an urban agglomeration - is essentially its future model, the principle of structure, how it fits into a specific space, and what mandatory decisions are dictated by this spatial (natural, anthropogenic) situation, the prevailing system of settlement, the location of settlement centers, cities, and how this established system needs to be transformed in order to preserve the quality of the environment for future generations.

Therefore, we proposed to define the spatial development strategy as the main and general plan for the development of a territorial object (settlement system, a constituent entity of the Russian Federation, a municipal district, a city, an agglomeration), drawn up in the form of a strategic planning document, defining the priorities, goals, focus, scale and limitations of spatial development on long-term perspective; the basis for developing a program of measures for the strategy of socio-economic development and a program for its implementation, for joint planning of urban and rural settlements.

Which strategic planning document should contain this plan? It would be logical for such a plan, a conceptual diagram, to precede any strategic planning document - both socio-economic development and territorial planning. The organization of the territory should be the result and at the same time the starting point of comprehensive strategic planning for each territorial unit in which strategic plans acquire a specific spatial (geographic) reference.

Spatial development strategy is essentially a conceptual part of spatial planning. The strategy presupposes a general plan, not a program, which is fully developed in territorial planning documents. In fact, the documents of territorial planning in the conceptual part already contain the specified issues, just formally, the legislation does not fix such concepts as planning structure, transport frame, cores, axes, natural frame, etc. These concepts were widely used as an integral part of the regional methodology. layouts (given above).

For the level of the region (macroregion, constituent entity of the Russian Federation), the spatial development strategy should include a planning structure, nuclei (urban centers, agglomerations, if any - urbanized areas), axes, zones, territorial zoning, the most important restrictions. These issues are present in the STP of each constituent entity of the Russian Federation, but are not spelled out as a requirement in the law, but are fulfilled because they are part of the methodology, without which specialized organizations traditionally do not work. For a municipality, the spatial development strategy is similar in content to the strategy of a constituent entity of the Russian Federation. For a city, the spatial development strategy is the master plan itself in its substantiating part, its necessary component, or the feasibility study of the master plan (in the practice of the Soviet planning system), which previously preceded the master plan, but in modern practice they have been replaced by master plans. At the same time, the general plan, contrary to expectations, is not reflected in the system of strategic planning documents (Article 39 of the Law "On Strategic Planning").

Thus, the introduction of the concept of "strategy" in relation to spatial development from the point of view of the actual content the existing system territorial planning can be considered superfluous, since it is a conceptual and already existing (de facto) part of it, but since this concept was introduced by law, it is a reason for formalization in it, a legal basis for decoding. This concept should be disclosed and spelled out in the system to which it belongs not on formal, but on substantive grounds (principles of the development of a territorial object, its parameters and the most general restrictions), and therefore in the system of territorial planning.

It is necessary to name the links that are absent in the territorial planning system. The Urban Planning Code of the Russian Federation does not specify the levels of the country as a whole, the macroregion and urban agglomerations; in our opinion, they should become an object for highlighting their own subject of spatial development strategy as a strategic planning document.

The system of territorial planning of the country cannot be considered complete in conditions when there are no complex STP at the federal level in the legal field (they can develop

by the decision of the Government of the Russian Federation, but this rule is not mandatory). For the country level, an integrating document of federal significance is needed, which sets the strategy and parameters for the interrelated development of cities and other settlements of the country in the long term. Therefore, it is necessary in the Urban Planning Code of the Russian Federation to bring the concept of a strategy for the spatial development of the Russian Federation and decipher its content - the space of Russia, its integrity and differences in terms of a set of conditions, resettlement (dynamics and forecast, regulation options), organization of the territory.

Urban agglomerations should be defined in the Urban Planning Code of the Russian Federation and in the law on strategic planning as objects of regulation and territorial planning; the subject of regulation of the legislation is proposed. For urban agglomerations, a spatial development strategy is the minimum required document that precedes territorial planning at the level of cities, urban districts and municipal districts, the joint planning of which is not mandatory according to urban planning legislation (Article 27 of the Civil Code of the Russian Federation). The strategy for the spatial development of an agglomeration can be a non-staged document (staged work - STPs for the territory at the level of the constituent entity of the Russian Federation are provided in full), but mandatory for joint planning and implementation in subsequent documents of territorial planning with high rates of population density and development of the territory of urban agglomerations, for which an appropriate norm in the law is required.

1. The strategy of spatial development is essentially an integral, but not formalized part of the territorial planning system of the Russian Federation and at the same time the missing link in the system of its documents in relation to individual levels of planning.

2. The missing links of the territorial planning system, for which more precise definitions of the concept and content of the spatial development strategy should be given in the Urban Planning Code of the Russian Federation, are the levels of the country as a whole, the macro-region and urban agglomerations.

3. For urban agglomerations, a spatial development strategy is the minimum required territorial planning document that precedes territorial planning at the level of cities, urban districts and municipal districts; the obligatory nature of their planning must be defined in the Urban Planning Code of the Russian Federation and in the law "On Strategic Planning".

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