Мария Шувалова
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Одной из главных задач проводимой с 2016 года реформы контрольно-надзорной деятельности является сокращение числа проверок предпринимателей при повышении их результативности. Как отметил в ходе пленарного заседания форума Общероссийской общественной организации малого и среднего предпринимательства «ОПОРА РОССИИ», состоявшегося 23 октября, Президент РФ Владимир Путин, при формировании сводного плана проведения плановых проверок на текущий год органы прокуратуры исключили 62 тыс. мероприятий из 412 тыс., запланированных контролерами. Также в прошлом году прокурорами было отклонено 58% внеплановых выездных проверок (из 35 тыс.). Тем не менее общее количество контрольных мероприятий все равно велико, а ведение Единого реестра проверок (proverki.gov.ru; далее – Реестр) недостаточно формализовано, подчеркнул глава государства. В связи с этим он дал ряд поручений в целях повышения прозрачности контрольно-надзорной деятельности:
обеспечить возможность внесения в Реестр сведений из других государственных информационных систем; унифицировать ввод данных в Реестр; завершить перевод сведений об обязательных требованиях, соблюдение которых предпринимателями оценивается при проведении контрольно-надзорных мероприятий, в электронную форму; предусмотреть механизм сопоставления данных Реестра с полученной от предпринимателей информацией о результатах проверок и допущенных при их проведении нарушениях (с использованием портала «Бизнес-навигатор МСП»).
Соответствующие предложения должны быть подготовлены к 1 декабря следующего года (п. 2 Перечня поручений Президента РФ от 12 ноября 2018 г. № Пр-2094).
Кроме того, указанный документ предполагает необходимость разработки и принятия в рамках текущей сессии Госдумы закона о продлении до конца 2020 года так называемых надзорных каникул для малого бизнеса с рядом ограничений. Так, запрет на проведение плановых проверок не должен распространяться, в частности, на те виды контроля, при организации которых применяется риск-ориентированный подход, лицензируемую деятельность, операции с драгоценными металлами и камнями, проверки юридических лиц и ИП, в отношении которых вынесены постановления о назначении административного наказания за совершение грубого нарушения. Стоит отметить, что еще до утверждения данного перечня поручений Минэкономразвития России разработало и обнародовало законопроект, предусматривающий предоставление субъектам малого и среднего предпринимательства надзорных каникул в 2019 и 2020 годах.
Как проводятся контрольные мероприятия, не требующие взаимодействия с проверяемыми организациями и предпринимателями, узнайте из Энциклопедии решений интернет-версии системы ГАРАНТ. Получите бесплатный доступ на 3 дня!
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Еще одно обсуждаемое в настоящее время, в том числе в рамках определения необходимых для перехода к цифровой экономике мероприятий, направление реформы контрольно-надзорной деятельности – использование возможностей дистанционного контроля. По мнению адвоката, члена правления РСПП Павла Астахова, дистанционные проверки должны и могут осуществляться в первую очередь в отношении тех видов деятельности, которые предполагают применение риск-ориентированного подхода (ст. 8.1 Федерального закона от 26 декабря 2008 г. № 294-ФЗ), – путем предоставления доступа к данным систем автоматического управления технологическими процессами предприятий, что позволит отслеживать, насколько соблюдаются требования промышленной безопасности. Однако, пилотные проекты по осуществлению дистанционного контроля уже выявили ряд рисков, один из которых – возможность блокировки ПО, использующегося в таких системах контроля, так как оно, в основном, – иностранного производства.
Помимо сокращения количества проверок и обеспечения возможности осуществления их дистанционно, необходимо проанализировать списки предъявляемых к предпринимателям требований, общее количество которых, по словам Павла Астахова, на сегодняшний день составляет более 2 млн. «Количество различных актов и чек-листов поражает обилием. Например, у Роспотребнадзора 350 разных форм, у Росприроднадзора – 100, у Россельхознадзора – 360, причем многие из них устарели. Поэтому предприниматели и говорят, что, несмотря на риск-ориентированный подход и сокращение числа проверок, количество инспекторов на предприятиях если и сокращается, то настолько незначительно, что они этого не замечают», – отметил эксперт в ходе прошедшей вчера пресс-конференции.
Крайне важным, по мнению РСПП, является доведение до всех территориальных подразделений контролирующих органов установки на сотрудничество контролеров и проверяемых предпринимателей, так как еще в Послании Президента РФ Федеральному Собранию РФ от 1 декабря 2016 года Владимир Путин указал, что надзорные органы должны оказывать предпринимателям консультативную помощь. Необходимость таких консультаций подтверждается данными доклада бизнес-омбудсмена президенту за 2017 год: 45% предпринимателей отмечают, что в ходе проверок в рамках контрольно-надзорной деятельности к ним предъявляются требования, не известные им в принципе. По словам Павла Астахова, практика сотрудничества уже начинает формироваться у ФНС России – путем заключения договоренностей, согласно которым предприниматель обязуется добросовестно уплачивать налоги и вносить все обязательные платежи, а налоговая – давать все необходимые разъяснения.
По-прежнему острой остается проблема давления на бизнес с помощью уголовного преследования, в частности – возбуждения уголовных дел о мошенничестве (ст. 159 Уголовного кодекса). При этом согласно статистике Генеральной прокуратуры РФ в прошлом году из более 200 тыс. возбужденных дел до суда дошло только 30 тыс. В этом году за период с января по август количество возбужденных дел по данной статье снизилось на 1,2% по сравнению с соответствующим периодом 2017 года, но по итогам года, по прогнозам Павла Астахова, их число все равно превысит 200 тыс.
МНЕНИЕ
www.astakhov.ru
Павел Астахов, адвокат, член правления РСПП:
«С одной стороны, хорошо, что лишь небольшая часть возбужденных в отношении предпринимателей уголовных дел доходит до суда – это значит, что их объективно расследовали и уголовное преследование прекратилось. С другой стороны, мы понимаем, что в большинстве случаев, так как статья тяжкая, люди были арестованы, следственные действия проводились в полном объеме. Они законны, но дела-то ничем не закончились. А практики взыскания убытков по незаконно возбужденным уголовным делам у нас сегодня практически не существует. В лучшем случае, если лицо незаконно привлекалось к уголовной ответственности и было арестовано, можно получить компенсацию в размере среднего заработка за каждый день, проведенный в местах лишения свободы. Посчитать убытки, которые в результате уголовного преследования были причинены предприятию и предпринимательской деятельности, достаточно сложно, но мы с коллегами-адвокатами считаем, что нужно такую практику создавать. В частности – путем предъявления гражданско-правовых исков к конкретным следователям».
Еще одна негативная тенденция – возбуждение уголовных дел в отношении предпринимателей не по одной статье, а по совокупности – чаще всего со ст. 210 УК РФ, устанавливающей ответственность за организацию преступного сообщества и участие в нем. Для недопущения применения данной статьи в каждом деле (так как в принципе структуру любого предприятия можно при желании рассматривать как сообщество, объединенное единым замыслом на совершение преступления) эксперты предлагают ввести правило о необходимости обязательной проверки прокурорами объективности оснований возбуждения дела именно по ней. Причем для этого, по словам Павла Астахова, не потребуется править процессуальное законодательство – соответствующую норму можно закрепить в приказе Генеральной прокуратуры РФ.
Стоит отметить, что сегодня Госдума приняла во втором чтении президентский законопроект, предусматривающий, в частности:
расширение перечня преступлений, при совершении которых впервые лицо может быть освобождено от уголовной ответственности в случае возмещения в полном объеме причиненного ущерба – в него среди прочего предлагается включить мошенничество, сопряженное с преднамеренным неисполнением договорных обязательств в сфере предпринимательской деятельности (ч. 5-7 ст. 159 УК РФ); запрет на применение в качестве меры пресечения заключения под стражу по ряду преступлений в сфере предпринимательской деятельности, в частности – по делам о злоупотреблениях полномочиями (ст. 201 УК РФ); недопустимость необоснованного применения при производстве следственных действий мер, которые могут повлечь приостановление законной деятельности юридических лиц или ИП, например – изъятия электронных носителей информации (за некоторыми исключениями).
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