Елена Самтынова
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Члены Совета Федерации Андрей Турчак, Олег Мельниченко и депутат Госдумы Сергей Неверов внесли на рассмотрение в нижнюю палату парламента законопроекты о внесении поправок в Федеральный закон от 6 октября 2003 г. № 131-ФЗ «Об общих принципах организации местного самоуправления в Российской Федерации» (далее – Закон № 131-ФЗ) и в Бюджетный кодекс РФ в части создания правовых основ применения института инициативного или, как еще называют данный процесс, «народного» бюджетирования. Суть изменений заключается в наделении органов государственной власти субъектов РФ и органов местного самоуправления полномочиями по установлению особенностей реализации института инициативного бюджетирования, целями которого является обеспечение непосредственного участия граждан в решении местных проблем путем разработки и внесения в орган местного самоуправления проектов инициативного бюджетирования и общественного контроля за их реализацией.
Так, Закон № 131-ФЗ предлагается1 дополнить ст. 26.1, в которой прописать правовые основы проекта инициативного бюджетирования. В частности, под таковым предлагается понимать проект, который обеспечит участие жителей муниципального образования в определении приоритетов расходования средств местного бюджета, поддержку их инициатив по решению вопросов местного значения, иных вопросов, имеющих приоритетное значение для жителей, право решения которых предоставлено органам местного самоуправления. Инициаторами такого проекта смогут выступить жители территории соответствующего муниципального образования, органы территориального общественного самоуправления, староста сельского населенного пункта и другие лица, которые могут быть предусмотрены законом субъекта РФ лица.
К инициативному проекту законопроект предъявляет определенные требования, он должен содержать:
постановку проблемы;обоснование предложений по ее решению;описание ожидаемого результата от реализации проекта;предварительный расчет необходимых расходов на реализацию проекта;планируемые сроки реализации проекта;сведения о возможном финансовом, имущественном и (или) трудовом участии заинтересованных лиц в реализации данного проекта;указание на необходимый объем средств местного бюджета, требуемый для использования в реализации инициативного проекта, за исключением планируемого объема инициативных платежей.
Предварительно инициативный проект должен быть поддержан собранием граждан-жителей муниципального образования, которые должны быть проинформированы не менее чем за 15 дней до его проведения. Необходимо предоставить гражданам возможность ознакомиться с инициативным проектом, внесенным в местную администрацию (информация о проекте подлежит размещению на официальном сайте администрации или может быть доступна иным способом), и подать на него замечания и предложения.
Для рассмотрения инициативного проекта местной администрацией предлагается установить срок в 30 дней со дня его внесения, по истечении которого должно быть принято решение о поддержке проекта и организации работы по нему либо об отказе в поддержке проекта и возврате инициаторам с указанием причин отказа. Не исключается возможность рассмотрения инициативного проекта комиссией, формируемой местной администрацией, с участием представительного органа муниципального образования. При этом предусматривается участие в работе комиссии и инициаторов проекта.
Основаниями отказа местной администрацией в поддержке проекта могут стать:
несоответствие инициативного проекта требованиям законодательства РФ;невозможность реализации проекта ввиду отсутствия у органов местного самоуправления необходимых полномочий и прав;отсутствие средств местного бюджета в необходимом объеме и возможности их изыскать;принятие представительным органом муниципального образования решения о нецелесообразности реализации инициативного проекта с изложением аргументации такого решения;принятие сходом граждан, осуществляющим полномочия представительного органа, решения о нецелесообразности реализации инициативного проекта.
Предусматривается, что соответствующий порядок внесения, рассмотрения и реализации инициативных проектов должен быть установлен нормативным правовым актом субъекта РФ, в котором необходимо закрепить равные правовые возможности участия граждан в обсуждении инициативных проектов, гарантии информационной открытости, гласности, учета мнения жителей при рассмотрении местной администрацией, конкурсном отборе и реализации инициативных проектов, и общественного контроля за их реализацией.
Также предлагается ввести норму, формулирующую понятие о финансовом обеспечении реализации инициативных проектов. Источниками финансового обеспечения народных проектов могут стать бюджетные ассигнования местного бюджета, предусмотренные для реализации инициативных проектов с учетом объемов инициативных платежей и (или) межбюджетных трансфертов из бюджета субъекта РФ и (или) иных межбюджетных трансфертов, предоставленных в целях финансового обеспечения данных проектов. При этом под инициативными платежами понимаются денежные средства граждан, ИП, юрлиц, уплачиваемые на добровольной основе и зачисляемые в местный бюджет в целях реализации конкретных инициативных проектов. Инициативные платежи подлежат возврату, если инициативный проект не был реализован. Не исключаются иные формы обеспечения участия заинтересованных лиц в реализации проектов, например, добровольное имущественное и (или) трудовое участие.
В Бюджетный кодекс РФ предполагаются соответствующие изменения2 о необходимости присвоения каждому инициативному проекту уникального кода классификации расходов бюджетов и об отражении в местных бюджетах добровольных платежей юрлиц и физлиц в целях реализации инициатив местного значения, а также о бюджетных полномочиях Минфина России по обеспечению методического обеспечения планирования расходов бюджетов субъектов РФ (местных бюджетов) на реализацию инициативных проектов и формирования информации о соответствующем бюджете в доступной для граждан форме.
Предлагаемые изменения, по мнению авторов законопроектов, будут способствовать вовлечению граждан в решение вопросов социально-экономическое развитие своей территории, повышению эффективности и рациональности использования бюджетных средств.
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1 С текстом законопроекта № 893063-7 «О внесении изменений в Федеральный закон «Об общих принципах организации местного самоуправления в Российской Федерации» и материалами к нему можно ознакомиться на официальном сайте Госдумы. 2 С текстом законопроекта № 893061-7 «О внесении изменений в Бюджетный кодекс Российской Федерации» и материалами к нему можно ознакомиться на официальном сайте Госдумы.
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