Municipal management of the sphere of the environment. Municipal Environmental Management

Ecological situation and ecological problems of cities

State environment serves as one of the most important parameters that determine the quality of life of the population in the territory of the municipality.

The environmental safety of the territory is an essential component of public safety, therefore, the municipal government, especially in cities with an unfavorable environmental situation, must develop and implement local environmental policy linked to the environmental policy of the state and aimed at protecting the environment from adverse man-made impacts. The implementation of an effective municipal environmental policy has a positive effect on the environmental situation not only in a particular municipality, but also in the region and in the state as a whole. And vice versa, a municipality with an unfavorable environmental situation, as a subsystem of the state and the region, has the right to count on the participation of the state and on the attraction of its resource capabilities to correct this situation.

sharpness environmental issues, the need to ensure environmental safety and rational use natural resources recognized all over the world today. The goal of the state policy of the Russian Federation in the field of environmental protection and nature management is a balanced solution of socio-economic and environmental problems in the interests of present and future generations. The main environmental pollutants in municipal areas are shown in the figure. Enterprises that extract and process minerals destroy the soil layer, pollute it with waste, violate the groundwater regime, and sometimes completely destroy small rivers. Energy industry enterprises using various types of fuel are the largest sources of air pollution. Industrial enterprises using backward technologies that do not provide for the integrated and waste-free (or low-waste) use of all types of resources pollute the air basin, water bodies and the soil layer various types industrial waste. This is especially true for enterprises in the chemical, metallurgical and some other industries. At the same time, it is impossible not to note the desire of individual economic entities to get the maximum from the use of natural resources of the respective territories with a minimum of responsibility for the state of the natural environment.

Road transport is a particularly dangerous air pollutant, since it operates in close proximity to residential areas and crowded places.

The ecological situation is characterized by the following components.

Municipal environmental management.

Goals and objectives of municipal environmental policy.

Mechanisms for the implementation of municipal environmental policy.

Participation of the population in solving environmental problems of the city.

Municipal Department of Public Safety.

Municipal environmental management. Ecological situation and ecological problems of cities.

The state of the environment is one of the most important parameters that determine the quality of life of the population in the territory of the municipality. The environmental safety of the territory is an essential component of public safety, therefore, the municipal government, especially in cities with an unfavorable environmental situation, must develop and implement local environmental policy linked to the environmental policy of the state and aimed at protecting the environment from adverse man-made impacts. The implementation of an effective municipal environmental policy has a positive effect on the environmental situation not only in a particular municipality, but also in the region and in the state as a whole. And vice versa, a municipality with an unfavorable environmental situation, as a subsystem of the state and the region, has the right to count on the participation of the state and on attracting its resource capabilities to correct this or that situation.

The severity of environmental problems, the need to ensure environmental safety and rational use of natural resources are recognized today throughout the world. The goal of the state policy of the Russian Federation in the field of environmental protection and nature management is a balanced solution of socio-economic and environmental problems in the interests of present and future generations.

The main environmental pollutants in municipal territories are shown in fig. one.

Fig.1. The main environmental pollutants in the territory of the municipality

Enterprises that extract and process minerals destroy the soil layer, pollute it with waste, violate the groundwater regime, and sometimes completely destroy small rivers. Energy industry enterprises using various types of fuel are the largest sources of air pollution. Industrial enterprises using backward technologies that do not provide for the integrated and waste-free (or low-waste) use of all types of resources pollute the air basin, water bodies and the soil layer with various types of industrial waste. This is especially true for enterprises in the chemical, metallurgical and some other industries. At the same time, it is impossible not to note the desire of individual economic entities to get the maximum from the use of natural resources of the respective territories with a minimum of responsibility for the state of the natural environment.

Urban transport is a particularly dangerous air pollutant, since it operates in close proximity to residential areas and crowded places.

The ecological situation is characterized by the following components.

Ecological capacity the territory of the municipality, which is understood as the ability of nature to overcome adverse impacts and ensure the reproduction of natural systems existing in the given territory. A single criterion of ecological capacity has not been developed, but a system of criteria can be used to determine, although indicative, but having real foundations, the limits of the permissible total anthropogenic load on specific territories. The assessment of the ecological capacity of the territory is the task of special studies and services, and the application of the results obtained by these services acts as one of the most important elements of municipal environmental policy.

Influence of the ecological situation on the health of the population. It strongly depends on the ecological situation in general and is itself an indicator of the quality of the local habitat. The connection of many diseases with the quality of the environment has been irrefutably proven.

A set of factors determining the specific environmental situation in the municipality. This list is specific to each locality, although it consists of a combination of common factors. Revealing and taking into account the specific factors that caused this or that environmental situation in the municipality is a necessary condition for the development of municipal environmental policy. For this purpose, the structure of the economy of the municipality is analyzed, trends in the change in the resource intensity of enterprises, the volumes of waste entering the environment, the size of territories requiring reclamation are determined, the level of concentration of anthropogenic impacts is assessed, local reserves (or their absence) are identified when characterizing the ecological capacity of territories, research and ranking the main causes of environmental problems.

There are five degrees of trouble and severity of the environmental situation in the municipality: 1) relatively satisfactory; 2) tense; 3) critical (pre-crisis); 4) crisis - a zone of emergency environmental situation; 5) catastrophic - a zone of ecological disaster.

Satisfactory. The ecological situation complies with the established standards. There are no negative consequences for humans. The habitat is kept in optimal condition.

Tense. The presence of a threat to human health for individual functions and components. Deterioration of the human environment. Some decrease in the productivity of natural resources and a change in the mode of self-healing of natural systems.

Pre-crisis (critical). The frequency of health problems. The state of the human environment is significantly deteriorating. The threat of depletion or loss of natural resources is rapidly growing. The self-healing function of natural systems is weakened. Changes go beyond the areas of their occurrence.

Crisis. A sharp deterioration in the health of the population, manifested in violations of the basic functions of the human body. A sharp increase in general and childhood morbidity, a significant increase in the number of cases in the main classes of diseases. The human environment becomes unsuitable for life. Significant depletion of natural resources. Dysfunction natural complexes becomes irreversible.

Catastrophic. It is characterized as a zone of ecological disaster. It poses a serious danger to human life and the reproduction of future generations. The severity and depth of changes in the biosphere in some cases become interregional. Self-restoration of natural systems is possible only when they are taken out of economic use for a long time. Elimination of the consequences requires colossal financial, organizational and technical costs.

Municipal Environmental Management

Municipal management in the field of environmental protection is a type of environmental management, organically embedded in common system organization of environmental protection activities. The content of municipal environmental management is determined by the role of local self-government, which is assigned to it by the Constitution of the Russian Federation. The obligatory participation of local governments in environmental protection activities, as well as the responsibility of local governments for ensuring a favorable environment and environmental safety in the respective territories, are the principles of environmental protection (Article 3 of the Federal Law “On Environmental Protection”).

Environmental protection as a task of national importance is solved at all levels of public authority. Traditionally, the largest volume of environmental competence is concentrated at the federal level. In recent years, as part of the ongoing administrative reform, there has been a noticeable redistribution of environmental powers in favor of regional bodies. state power. At the same time, issues under the jurisdiction of local self-government bodies were also subject to changes.

The environmental powers of local self-government bodies are their right and duty to resolve issues of local importance in the field of environmental protection, as well as to exercise certain state powers transferred to them in the manner prescribed by law in this area. The implementation of such powers is aimed at preserving and restoring the natural environment favorable for the population, preventing and reducing the negative impact of economic and other activities on the environment and ensuring compensation for environmental damage caused.

The state of the environment is one of the most important parameters that determine the quality of life of the population in the territory of the municipality.

The environmental safety of the territory is an essential component of public safety, therefore, the municipal government, especially in cities with an unfavorable environmental situation, must develop and implement a local environmental policy that is linked to the environmental policy of the state and aimed at protecting the environment from adverse anthropogenic impacts. The implementation of an effective municipal environmental policy has a positive effect on the environmental situation not only in a particular municipality, but also in the region and in the state as a whole. And vice versa, a municipality with an unfavorable environmental situation, as a subsystem of the state and the region, has the right to count on the participation of the state and on attracting its resource capabilities to correct this or that situation.

The tasks of environmental protection can also be achieved in the process of solving land and town planning issues of local importance: when approving master plans for the settlement, rules for land use and development, approving documentation prepared on the basis of master plans for the territory planning, issuing construction permits, permits for putting objects into operation, approval of local standards for urban planning, reservation and withdrawal, including by redemption, of land plots for municipal needs, land control over the use of settlement lands. Environmental measures can be carried out when solving such a local issue as creating conditions for mass recreation of the inhabitants of the settlement and organizing the arrangement of places for mass recreation.

The issues of local significance of the municipal district include, in particular:

* organization of inter-settlement activities for environmental protection;

* organization of utilization and processing of household and industrial waste;

* organization and implementation of measures to protect the population and the territory of the municipal district from natural and man-made emergencies;

* creation, development and protection of health-improving areas and resorts of local importance on the territory of the municipal district.

In addition, the tasks of environmental protection are also achieved in the process of solving land and town planning issues of local importance by local governments of a municipal district: when approving schemes for territorial planning of a municipal district, documentation on planning the territory, maintaining information system ensuring urban planning activities, when reserving and withdrawing, including by way of redemption, land plots within the boundaries of a municipal district for municipal needs.

The issues of local significance of the city district include, in particular:

* organization of measures for environmental protection within the boundaries of the urban district;

* organization of collection, export, recycling and processing of household and industrial waste;

* organization of improvement and gardening of the territory of the urban district, use, protection, protection, reproduction of urban forests, forests of specially protected natural areas located within the boundaries of the urban district;

* organization and implementation of measures to protect the population and the territory of the urban district from natural and man-made emergencies;

* Creation, development and protection of health-improving areas and resorts of local importance on the territory of the city district.

When determining the range of issues of local importance for a municipality of each type, the legislator presumably proceeded from what particular issues at which level of local self-government can be resolved most effectively.

The solution of all the listed environmental issues of local importance is both a right and an obligation for municipal authorities.

Local self-government bodies of urban districts have the right, in accordance with the charters of municipalities, to decide on the involvement of citizens in the performance of socially significant work on a voluntary basis in order to organize measures to protect the environment, improve and plant greenery on the territory of the urban district.

The tasks of environmental protection are also achieved in the process of solving land and town planning issues of local importance by local governments of the urban district: when approving master plans for the urban district, rules for land use and development, documentation for planning the territory, when issuing construction permits, permits for putting objects into operation , approval of local standards for urban planning, maintaining an information system for ensuring urban planning, reserving land and withdrawing, including through redemption, land plots for municipal needs, exercising land control over the use of urban district lands. Environmental measures can be carried out when solving such a local issue as creating conditions for mass recreation of residents of the urban district and organizing the arrangement of places for mass recreation of the population.

Main environmental pollutants in municipal territories

Rice. 1.1

The main tasks of municipal management in the field of ecology:

* formation effective system environmental monitoring, identification and inventory of business entities and production processes in the territory providing negative impact on the state of the environment;

* creation of a program and mechanisms for managing the state of the environment and the rational use of natural resources, the development and implementation of a system of administrative measures and economic levers that ensure the quality of the environment. Environmentally oriented municipal management is a special area of management that involves regulating the impact of economic

subjects on the environment to protect the interests of the population while ensuring sustainable, balanced development of the territory.

There is no sufficient legislative support for the environmental aspects of sustainable socio-economic development of cities. Environmental legislation is often full of declarative and reference norms. Such norms are addressed to the normative legal acts of the executive authorities that are absent at the time of their entry into force. Problems of environmental protection of urban settlements are solved in regulations taken at different levels: federal, subjects of the Russian Federation, local governments. Their common drawback is that they regulate private issues of nature management and protection of individual natural objects without taking into account the specifics of the environment of urban settlements. In order to correctly understand the tasks of legislation in the field of environmental protection of urban settlements and effectively solve them, one must have a clear idea of the city-forming factors of these administrative-territorial entities, the possibilities of influencing the state of the environment by means of law. The reform of technical regulation is proceeding slowly, which hinders the development of mandatory environmental requirements. There are no effective legal mechanisms for compensation for environmental damage. Illegal decisions and actions, as well as inaction of participants in environmental legal relations, only exacerbate the difficult environmental situation, especially in the territories where the population lives. Law enforcement practice testifies to the actual impunity of many violations and even crimes of an environmental nature.

There is a constant increase in registered environmental crimes, often outstripping the growth of crimes in general, and an increase in their share in overall structure crime. So, for the period 2005-2009. the number of environmental crimes increased almost 4.3 times (2005 - 14818; 2009 - 41242). Similar trends are observed in other countries. At the same time, it is recognized that the reform of criminal and administrative legislation that has taken place in many countries, although it has contributed to strengthening the fight against encroachments on the environment, has not fulfilled all the goals set.

One of the fundamental reasons for the violation of environmental legislation in this area is the weakness and inefficiency of state environmental control and supervision, the frequent reorganization of environmental management bodies. At the same time, an effective dialogue has not yet been established on these problems of state authorities and environmental organizations. A radical improvement in the system of environmental protection management in urban areas will improve control over the state of various natural objects in the urban environment. According to the President of Russia D.A. Medvedev, "it is necessary to put things in order in the environmental sphere and increase its efficiency."

May 18-21 in Nizhny Novgorod an international scientific and industrial forum "Great rivers: environmental, hydrometeorological, energy security" dedicated to transboundary environmental cooperation will be held. Its organizers are UNEP, UNESCO, the Federal Agency for Water Resources, the Federal Service for Hydrometeorology and Environmental Monitoring, the Federal Agency for Marine and River Transport of the Russian Federation, the Russian River Register, the Federal Service for State Registration, Cadastre and Cartography of the Russian Federation.

Such a forum brings together up to 1,500 representatives of government agencies, world-famous scientists, major entrepreneurs, experts and public figures from more than 30 states.

Over the past 10 years, more than five thousand scientific institutions, industrial enterprises and government agencies from 46 countries of the world and 63 constituent entities of the Russian Federation have taken part in the work of symposiums on international environmental cooperation over the past 10 years. In connection with the current situation, it is necessary not only to improve existing, but also to adopt new regulatory legal acts. This will provide a solution to the problem under consideration, use a scientific approach in lawmaking, and will also help revive the interest of citizens and society in improving and maintaining environmental law and order in urban areas.

Therefore, at present, the problem of forming an ecological culture of enterprise management, which involves the reduction and prevention of the negative impact of enterprises on the environment, is of particular relevance.

The object of study is the powers of local governments of the Russian Federation on the example of the municipality of Novy Urengoy in the field of relations related to environmental protection.

Subject of study thesis- system of environmental policy management at the municipal level.

The purpose of the thesis is to analyze the features of management in the field of environmental protection and natural resources at the municipal level and develop recommendations for improving the management of environmental protection at the municipal level.

In accordance with the purpose, object and subject of the study, we set the following tasks:

To analyze the goals, directions, tasks and principles of conducting a unified state policy in the field of ecology in the Russian Federation;

Define a decision-making system for managing environmental protection;

To study the basics of improving the management of environmental protection at the municipal level;

Determine the economic and financial mechanisms for the implementation of environmental policy on the example of the municipality of Novy Urengoy;

Make an analysis of the effectiveness of environmental protection measures for 2007-2009. (on the example of the municipality of Novy Urengoy).

The main working methods are - analytical method(used in the analysis of literature and legal acts), methods comparative analysis and generalizations.

The versatility of the topic necessitated the study of the positions of the doctrine and normative legal sources of constitutional, administrative, civil, municipal, criminal and other branches of law, revealing the theoretical and practical essence of the issues. In this regard, the theoretical basis of the dissertation was the works of: S.S. Alekseeva, A.P. Anisimova, A.I. Bobyleva, E.N. Zhevlakova, A.E. Zhalinsky, V.N. Kudryavtseva, O.E. Kutafin, V.V. Lazareva, A.V. Malko, M.N. Marchenko, A.F. Nozdracheva, SV. Polenina, N.G. Salishcheva, M.S. Studenikina, N.Yu. Khamaneva and others. Development of problems of the system and structure of environmental legislation, the possibility of using individual legal instruments (legal liability, eco-audit, pollution charges, etc.) in order to protect the environment in the works of L.E. Bandorina, S.A. Bogolyubova, M.M. Brinchuk, M.V. Vasilyeva, N.D. Vershilo, R.Kh. Khabitova, A.K. Golichenkova, O.L. Dubovik. N.A. Dukhno, N.G. Zhavoronkova, T.V. Zlotnikova, I.A. Ignatieva, O.S. Kolbasova, O.I. Krassova, O.N. Kuznetsova, V.V. Petrova, T.V. Petrova, B.C. Stepanenko and other environmental lawyers made it possible to highlight the specifics of their manifestation in relation to environmental protection in urban areas.

The normative base of the study is: the Constitution of the Russian Federation, federal legislation, laws of the constituent entities of the Russian Federation, decrees of the President of the Russian Federation, decrees of the Government of the Russian Federation, regulatory legal acts of the executive authorities of the Russian Federation and its constituent entities, regulatory acts of local governments regulating environmental protection issues in urban settlements and related problems of negative impact on nature.

For the most complete disclosure of the topic and achievement of the goal, this work has the following structure: introduction; three chapters; conclusion; list of used sources and literature.

Chapter 1. Normative and legislative regulation of the implementation of state environmental policy at the municipal level

1.1 Goals, directions, tasks and principles of implementing a unified state policy in the field of ecology in the Russian Federation

The entry into force of changes in federal legislation on January 1, 2005 was a notable event public life and the next step in the development of the management system and environmental protection.

State and regional environmental policy is an independent sphere of public life in the field of environmental protection and natural resources, the pinnacle of the ecological function of the state. The main parameters for characterizing environmental policy are: the balance of interests, goals, principles, directions, functions, tasks, thematic sections, tools (mechanism, means, provision, levers), forms, indicators, priorities, problems, leaders, theorists and practitioners, legal the foundation.

The understanding of environmental policy in a broad sense combines political, sociological, economic and other aspects of this phenomenon. The problems of environmental policy, its content, the question of how the actual actions of the authorities correspond to the declared goals, the question of the difference between the declaration and reality is the subject of a separate study, mostly not legal in its content.

For the development of civil society as a condition for the implementation of state policy in the field of ecology, it is necessary to improve legislation: to create legal conditions that allow citizens to participate in the adoption and implementation of environmentally significant decisions, including through polls, public hearings, public examinations and referendums; in order to develop public environmental control, including public inspections.

The main parameters for characterizing environmental policy are: the balance of interests, goals, principles, directions, functions, tasks, thematic sections, tools (mechanism, means, provision, levers), forms, indicators, priorities, problems, leaders, theorists and practitioners, legal the foundation.

The strategic goal of the state policy in the field of ecology in accordance with the "Environmental Doctrine of the Russian Federation" is the preservation of natural systems, maintaining their integrity and life-supporting functions for the sustainable development of society, improving the quality of life, improving the health of the population and demographic situation, ensuring the environmental safety of the country.

State and regional environmental policy is an independent sphere of public life in the field of environmental protection and natural resources, the pinnacle of the ecological function of the state.

The law establishes the presumption of potential environmental hazard of any planned economic and other activities. A conscientious initiator must act in accordance with accepted social norms, including ensuring that its activities comply with state environmental policy. Politics has a large degree of autonomy and has a strong influence on the economy and other areas of society. In this regard, the practical significance of the issue under consideration is directly manifested.

In accordance with the Charter of the United Nations and the principles of international law, States have the sovereign right to develop their own resources in accordance with their environmental policies and are responsible for ensuring that activities within their jurisdiction or under their control do not harm the environment of other States or areas beyond the limits of national jurisdiction (Convention on Biological Diversity, ratified by the Federal Law of the Russian Federation of February 17, 1995 No. 16-FZ).

Abroad, as close in meaning to the term "environmental policy", the terms "policy in the field of sustainable development" are used, and the name "political ecology" is a special educational and scientific direction.

The modern environmental policy of Russia has come a long way in its development. At the same time, the history of its development has clearly demonstrated to us that the implementation of environmental policy depends not only on the embodiment of its directions in normative acts, but also directly on the level of legal awareness and culture of society.

The subjective factors influencing the implementation of environmental policy include: the level of legal awareness and environmental consciousness of a person, the level of legal culture and environmental culture of society; the development of democratic principles in society, contributing to the active participation of the population and an individual person in government and decision-making, the level of social and legal activity of citizens, etc. Modern scientists have repeatedly expressed the position that the Russian society is not ready for the transition to a qualitatively new level relationship with the environment. Indeed, the perception of environmental policy issues directly depends on a number of factors that need to be considered in the context of a particular level of mass culture and the readiness of society to perceive new trends in the modern world.

The concentrated expression of theoretical provisions in the field of environmental protection in Russia today is the Ecological Doctrine, approved by Government Decree of August 31, 2002 N 1225-r. It defines the goals, directions, tasks and principles of implementing a unified state policy in the field of ecology in the Russian Federation for a long-term period. According to the Doctrine, the main priorities of modern environmental policy are:

Priority for society of the life-supporting functions of the biosphere in relation to the direct use of its resources;

Equitable distribution of income from the use of natural resources;

Prevention of negative environmental consequences as a result of economic activity, accounting for long-term environmental consequences;

Refusal of economic and other projects related to the impact on natural systems, if their consequences are unpredictable for the environment;

Use of natural resources on a paid basis and compensation to the population and the environment for damage caused as a result of violation of environmental protection legislation;

Openness of environmental information: participation of civil society, self-government bodies and business circles in the preparation, discussion, adoption and implementation of decisions in the field of environmental protection and rational nature management;

Sustainable development, providing equal attention to its economic, social and environmental components, and recognition of the impossibility of the development of human society in the degradation of nature.

Thus, the main priorities of modern environmental policy can be the criteria for Russia's transition to sustainable development, postulated in the Concept of the Russian Federation's transition to sustainable development. At the same time, it is worth agreeing with the opinion of those scientists who believe that the environmental and legal culture of modern Russian society does not comply with the principles of sustainable development. So M.V. Zakharov, in one of his interviews, said that “Russian society does not fully understand what place environmental problems occupy in the spectrum of difficulties facing the country today.”

At the sub-legal level, the terms “state environmental policy in the regions of the North”, “main directions of regional policy in the field of ensuring environmental safety and environmental protection” (uniform for the Federation and the subjects of the Federation), “state policy and legal regulation in the field of nature management, environmental protection and environmental safety”, “a unified scientific and technical policy in the field of environmental protection”.

Among the problems in the implementation of Russia's environmental policy is the lack of an active civil society focused on environmental issues. Indeed, the modern social environmental movement today is not a powerful factor in strengthening civil society and solving environmental problems. Moreover, many environmental campaigns carried out social movements, for many citizens go unnoticed. This situation is especially typical for settlements remote from the center, whose residents have little idea not only about specific environmental activities carried out in the country or region, but also about environmental policy in general.

At the same time, the low level of environmental culture reduces the activity of the population in solving environmental problems, distorts ideas about the actual environmental situation. Thus, 42% of the respondents are confident that achieving sustainable development in Russia is impossible without solving environmental problems, and 23% consider it possible. The impossibility of the country's development without solving environmental problems was most often noted by citizens of the age category of 30-50 years. At the same time, this question caused difficulties for 35% of the respondents due to a poor understanding of what the concept of sustainable development of the country may include. Respondents also expressed their ignorance regarding the Ecological Doctrine (79%).

Respondents aged 20 to 40, including students, showed the greatest awareness of environmental policy issues. It is noteworthy that the students noted their main source of information about environmental policy. educational establishments. At the same time, the majority of respondents noted an insufficient (or extremely low) level of coverage in the media. mass media(media) measures taken by the state to protect and restore the environment. It is indeed worth agreeing with this opinion. Based on the information provided by the media, it seems that it is possible to interest citizens in environmental issues by commenting on odious actions by environmentalists rather than by information about the implementation of state environmental policy. First of all, this indicates that environmental education in Russia is at an extremely low level.

In our opinion, the modern environmental and legal culture of the population of our country is not capable of ensuring Russia's transition to sustainable development; moreover, its low level has a disorienting effect on environmental policy in general. Therefore, we believe that the effective implementation of environmental policy and the transition of Russia to sustainable development are possible as a result of a radical change in the worldview, the system of social values and ideas in the field of environmental protection and rational use of natural resources.

The legitimate interests of individuals and organizations must be taken into account when forming the state environmental policy. A policy will reach its goal more quickly when choosing the target groups to which it is addressed.

The national interests of Russia are a set of balanced interests of the individual, society and the state in the economic, domestic political, social, international, informational, military, border, environmental and other spheres. They are of a long-term nature and define the main goals, strategic and current tasks of the internal and foreign policy states. One of the main tasks in the field of ensuring the national security of the Russian Federation is the fundamental improvement of the environmental situation in the country.

Industry interests, first of all, are to ensure the production of goods and services in which a particular sector of the economy specializes.

Departmental interests (sectoral interests in the narrow sense, as the interests of one or several government agencies that are definitely close in their field of activity, for example, the interests of departments of the natural resource block) consist in instilling the “point of view” of the department in citizens and organizations to solve specific managerial (including h. functional) tasks.

Local interests - a set of ideas about the types of activities that are optimal for the economic and social development of the municipality, and ways to implement them.

Corporate interests can extend to the territories and resources of entire states and groups of states (among transnational corporations, financial and industrial groups, commercial entities). They mainly pursue the goal of making a profit.

Of great importance for the complex of environmental problems is the current Federal Law of January 10, 2002 N 7-FZ (as amended on December 27, 2009) “On Environmental Protection” (adopted by the State Duma of the Federal Assembly of the Russian Federation on December 20, 2001) .

The Law of the Russian Federation of February 21, 1992 N 2395-1 (as amended on December 27, 2009) "On Subsoil" regulates the mineral resource policy, which is the guarantor of Russia's economic security. It outlines the fundamentals of rational nature management and protection of mineral resources.

The Forest Code of the Russian Federation of December 4, 2006 N 200-FZ (adopted by the State Duma of the Federal Assembly of the Russian Federation on November 8, 2006) (as amended on December 27, 2009) sets out the legal basis for the rational use, protection, protection and reproduction of forests, increasing their ecological and resource potential. Forests are divided into groups and categories according to their ecological, social and economic importance. This is important for the rational use and protection of forest resources.

The Forest Code establishes general requirements for forest management: preservation and strengthening of environment-forming, water-protective, protective, sanitary-hygienic, health-improving and other useful properties of forests; reproduction, improvement of species composition and quality of forests, etc.

An important legal act regulating the rational use and protection of water resources is the Water Code of the Russian Federation of the Russian Federation dated 03.06.2006 N 74-FZ, which establishes state ownership of most water bodies.

The powers of state governing bodies for the use and protection of water bodies include: determining the procedure for establishing water protection zones, coastal protective zones of water bodies, the regime for using their territories, as well as the regime for specially protected water bodies that are federally owned, conducting state examination of pre-project and design documents for the construction and reconstruction of economic and other facilities that affect the state of water bodies; state monitoring of water bodies, their protection from pollution.

Water protection zones of water bodies that serve as sources of drinking water supply or spawning grounds for valuable fish species are declared specially protected areas in the manner established by the Government of Russia.

The Federal Law "On the Fauna" (as amended on March 14, 2009) regulates relations in the field of protection and use of wildlife, conservation and restoration of animal habitats in order to ensure biological diversity, create conditions for its existence, preserve the genetic fund of wild animals and other protection of the animal world as an integral element of the natural environment.

So, the ongoing restructuring of state management of nature management and environmental protection, the formation of modern environmental and environmental legislation should create favorable conditions for the transition to the protection of integral natural complexes (in contrast to the previously prevailing resource-based form of nature protection): streamlining the system of specially protected natural areas (rejection of their excessive multiplicity); strengthening the protection of "wildlife" (on an equal footing with the "non-living" independent natural block).

1.2 Decision-making system for environmental management

Currently, many organizations and enterprises in Russia are interested in achieving environmental efficiency, control the impact of their activities, products and services on the environment (ES). All this is being done in the context of increasingly stringent legislation aimed at protecting the environment, as well as in the context of a general increase in the concern of stakeholders with environmental issues, including sustainable development. The task is to ensure that such work on environmental protection is not carried out by individual enterprises and organizations, but these issues are resolved at the state level and all organizations and enterprises that have an impact on the environment are involved. Such work, in our opinion, should be carried out within the framework of a structured system of administrative management at all levels (state, industry, subjects of the Russian Federation).

The system of state management of environmental protection is aimed at:

Implementation and improvement of state policy in the field of environmental protection;

Creation of a safe working environment in organizations;

Protecting the legitimate interests of employees affected by environmental pollution and occupational diseases;

Ensuring effective interaction and cooperation of subjects of social and labor relations in addressing environmental issues: employers, associations of employers, state bodies, local governments, trade unions represented by their respective bodies, their associations and other representative bodies authorized by employees.

Considering that the current legislation does not distinguish between functions in the field of environmental protection and, in this regard, the competence of the federal executive body in charge of environmental protection, federal executive bodies and executive bodies of the constituent entities of the Russian Federation in the field of environmental protection has not been clarified, in the system of state management of environmental protection (hereinafter - SGUEP) the goal was to define these functions specifically.

The subject of consideration of the system of state management of environmental protection is the system of state management of environmental protection in the Russian Federation, which includes three levels:

Federal. State management of environmental protection in the Russian Federation in accordance with the Federal Law "On Environmental Protection" is carried out by the Government of the Russian Federation directly or on its behalf by the federal executive body in charge of environmental protection - the Ministry of Natural Resources of the Russian Federation and other federal executive bodies.

Consideration of issues and preparation of proposals in the field of environmental protection, coordination of the activities of federal executive bodies is carried out by the Interdepartmental Commission for Environmental Protection in cooperation with the executive authorities of the constituent entities of the Russian Federation, trade unions and employers' associations, as well as organizations of the Russian Federation. Separate functions of environmental protection management are performed by the prosecutor's office and the Social Insurance Fund of the Russian Federation;

Industry. The management of environmental protection in an industry or in a certain area of activity is carried out by the relevant federal executive authorities and their territorial authorities together with the executive authorities of the constituent entities of the Russian Federation;

The level of the subject of the Russian Federation. State management of environmental protection in the territories of the constituent entities of the Russian Federation is carried out by federal executive authorities and executive authorities of the constituent entities of the Russian Federation in the field of environmental protection within their powers.

Local self-government bodies carry out environmental protection management in the relevant territory within the limits of their powers, as well as the powers transferred to them by state authorities of the constituent entities of the Russian Federation in the prescribed manner.

The content of the production management of nature management and environmental protection is determined by the tasks of a particular enterprise in fulfilling the legal environmental requirements addressed to it. These tasks, taking into account the specifics of enterprises, can be related to ensuring the rational use of subsoil, forest resources, the protection of water bodies, atmospheric air, industrial waste management, etc. A special organization of appropriate activities will help to most successfully solve such problems. At the same time, the most specific functions of production management are planning, accounting for harmful effects on nature, coordinating the environmental protection activities of various departments, and environmental control. Management is carried out both by functional services (engineer, mechanic, technologist, energy, sales, control), heads of production units, and specially created departments (services) for nature protection. Whereas previously many Russian enterprises created environmental services, now the responsibility for nature protection, as a rule, rests with the head of one of the functional units, most often the chief engineer. Production management of nature management and environmental protection is mainly regulated by local acts, i.e. acts of the enterprise, taking into account its specifics.

Sectoral (departmental) management of nature management and environmental protection is carried out by ministries, state committees, federal services within their industry or field of activity, if such activity is related to nature management or harmful effects on the environment. As with production management, the content of sectoral management is determined by the specifics of the industry or field of activity, the nature of the enterprises included in its system, the scale and types of impacts on nature.

In the environmental practice of Russia, a reserve remains for improving the efficiency of public, industrial and sectoral management. It concerns the development of cooperation between public formations and citizens, enterprises and sectoral ministries with state specially authorized bodies for the management of nature management and environmental protection. The basis of cooperation is the unity of goals of activity in this area. Such cooperation would undoubtedly contribute to the improvement of efficiency and public administration.

On a national scale, the greatest responsibility for the consistent implementation of environmental legislation lies with the bodies that carry out state management of nature management and environmental protection. The constitutional basis of their activities is Art. 10 of the Constitution of the Russian Federation, which enshrined the principle of division of the unified state power into legislative, executive and judicial branches.

State management in the field of nature management and environmental taps are an integral part of state government as a whole.

The role of state administration in this area is determined by the importance of state bodies in the mechanism of environmental protection. In the triad of subjects - a citizen, an organization (entrepreneur) and the state - state bodies occupy a special place. They have special legal and administrative means to ensure the implementation of the environmental requirements of the law, being able to resort to state coercion if necessary. First of all, they are responsible for ensuring environmental protection within the framework of the ecological function of the state. First of all, citizens have the right to ask them for non-observance of their environmental rights and legitimate interests and environmental legislation in general.

State management of nature management and environmental protection is carried out on the basis of a number of methods. Management methods are understood as ways of state influence on the behavior and activities of the governed. Methods are divided into administrative (direct order, provided by the possibility of state coercion), economic (creating conditions for the economic interest of organizations and labor collectives in fulfilling the requirements of legislation and management decisions) and moral (awarding state awards, conferring honorary titles, etc.).

Given the role of public administration in this area, in comparison with other types of administration, its content is the most extensive.

Management of the use and protection of subsoil is also carried out taking into account the existing geological features of the formation of mineral deposits. The separation of economic and operational and control and supervisory functions of the organization of state management of nature management and nature protection as a principle is manifested in the fact that bodies endowed with control and supervisory functions of managing the use and protection of natural resources cannot perform functions for economic use relevant resources. This principle should be applicable to specially authorized state bodies in the field of nature management and environmental protection. Through this principle, the objectivity of environmental control and supervision and the effectiveness of environmental law in general are ensured.

State management of the use and protection of natural resources is carried out by various state bodies endowed with different competences and functioning at different levels. They can be divided into three types: bodies of general competence, bodies of special competence, functional bodies.

The peculiarity of the management of natural resources and environmental protection by bodies of general competence is that they carry out this activity along with the solution of other tasks assigned to their competence - economic development, management of the development of the social sphere (health, education, etc.), culture, defense , space, etc.

The bodies of general competence that carry out state management of the use and protection of natural resources include:

Federal Assembly of the Russian Federation;

President of Russia;

Russian Government;

Administration of subjects of the Russian Federation;

local administration bodies.

The Government of the Russian Federation pays considerable attention to the problems of preserving and improving the quality of water in large and small water bodies. Starting from 2007 (since the transfer of powers), funds from the federal budget were allocated for clearing the small rivers of the region: in 2007 - 7.3, in 2008 - 10.2, in 2009 - 16.9 million rubles.

Federal funds directed to the subjects are part of the funds of water users who pay a fee for the use of water bodies. At the same time, as noted in the department of environmental protection and nature management, in 2007 the federal budget received no payment for the use of water bodies from the payers of our region, in 2008 it amounted to only 597 rubles (five hundred ninety-seven rubles). In 2009, the amount of payments has already reached 3.7 million rubles. If all water users conscientiously fulfill their obligations, budget revenues will amount to about 37.5 million rubles.

Thus, the region received an amount that significantly exceeds the revenues to the federal budget from the region's payers. All allocated funds were directed to clearing small rivers.

When analyzing the system of state administration bodies in the field of environmental protection and nature management of general competence, the fundamental question is: do representative bodies participate in this process? In accordance with the principle of separation of powers, state administration is entrusted to the executive authorities. Previously, when all power belonged to the Soviets of People's Deputies, the representative bodies carried out the management of environmental protection. Their participation in management was even enshrined in the Law "On the Protection of the Environment".

Taking into account the operation of the principle of separation of powers, the role of the Federal Assembly of the Russian Federation in the state management of nature management and environmental protection is minimal. It comes down, in particular, to the adoption of a decision to declare a zone of ecological emergency and an ecological disaster zone in accordance with the Law on Environmental Protection. In addition, the parliament is entrusted with a number of control powers provided for by the Constitution of the Russian Federation, which are indirectly related to the area under consideration. Moreover, they mainly belong to the State Duma. The control powers of the State Duma are manifested in the fact that it gives consent to the President of the Russian Federation for the appointment of the Chairman of the Government of Russia and decides on the issue of confidence in the Government of Russia. Taking into account the fact that state financing of environmental protection is of decisive importance for achieving the goals of maintaining and restoring a favorable state of the environment, the control of the State Duma over the activities of the Government in the formation of the budget is an important management function. Control over the execution of the federal budget, including under articles relating to environmental protection, belongs to the joint jurisdiction of both chambers of the Federal Assembly. On a regular basis, such control on behalf of the Federal Assembly is carried out by a specially created body - the Accounts Chamber.

The environmental activities of the President of Russia are regulated by many acts, including the Constitution of the Russian Federation. The most important functions of the management activities of the President, provided for by the Constitution, include the determination of the main directions of the internal and external environmental policy of the state; rulemaking; organization of the system of central executive bodies of Russia; guarantees of observance of the rights of citizens in the field of nature management and environmental protection; ensuring the coordinated functioning and interaction of state authorities in the field of nature management and environmental protection.

Management of environmental protection and nature management is carried out both directly by the President of the Russian Federation and structures in his administration. During the existence of the institution of the presidency in Russia, special structures in the Presidential Administration were the Advisor to the President on Ecology and Health Protection, the Interdepartmental Commission on Environmental Safety of the Security Council of the Russian Federation. However, the first of these structures has been abolished.

The competence of the Government of the Russian Federation and the governments of the constituent entities of the Russian Federation in the field of nature management and environmental protection is determined by many regulatory legal acts - both general and environmental. In accordance with Art. 114 of the Constitution of the Russian Federation The Government of the Russian Federation:

Ensures the implementation in the Russian Federation of a unified state policy in the field of ecology;

Manages federal ownership of natural resources;

Carries out measures to ensure the rule of law, the implementation of environmental rights of citizens, etc.

Government of the Russian Federation:

Ensures the implementation of a unified state policy in the field of environmental protection and environmental safety;

Takes measures to implement the rights of citizens to a favorable environment, to ensure environmental well-being;

Organizes activities for the protection and rational use of natural resources, regulation of nature management and development of the mineral resource base of the Russian Federation;

Coordinates activities to prevent natural disasters, accidents and catastrophes, reduce their danger and eliminate their consequences.

The powers of the Government of the Russian Federation are regulated in more detail in the Law “On Environmental Protection” and other acts of legislation on the environment. In particular, the Government of the Russian Federation:

Ensures the development and implementation of state environmental programs;

Coordinates the activities of ministries and departments on the territory of the Russian Federation in the field of environmental protection;

Establishes the procedure for the formation and use of the federal off-budget environmental fund;

Organizes the preparation and distribution of the annual state report on the state of the environment;

Establishes the procedure for the development and approval of environmental standards for emissions and discharges of pollutants into the environment, limits on the use of natural resources, waste disposal;

Establishes the procedure for determining fees and their limits for the use of natural resources, environmental pollution, waste disposal, and other types of harmful effects;

Takes decisions on the organization of specially protected natural areas and objects and their inclusion in the natural reserve fund of the Russian Federation;

Organizes a system of universal continuous environmental education and education of citizens, etc.

The activities of bodies of general competence in the field of nature management and environmental protection at the level of the constituent entities of the Russian Federation are regulated by both federal legislation and regulatory legal acts of the constituent entities of the Russian Federation. It includes ensuring the implementation of the state environmental policy; coordination of activities of ministries and departments in this area; planning of rational use of natural resources and environmental protection; organizing the maintenance of cadastres of natural resources at the level of subjects; implementation of state control over nature management and environmental protection, etc.

State authorities of the constituent entities of the Russian Federation:

They implement the state policy in the field of environmental protection on the territory of the relevant subject of the Russian Federation and for this purpose create units for environmental protection and state expertise of environmental conditions as an executive authority of the subject of the Russian Federation in the field of environmental protection, or as part of an executive authority for environmental protection of the subject of the Russian Federation;

Develop and adopt laws and other regulatory legal acts of the subject of the Russian Federation on environmental protection;

Participate in the development and implementation of federal targeted programs to improve conditions and protect the environment;

Develop and approve territorial target programs for improving conditions and protecting the environment, control their implementation;

Determine the costs of environmental protection at the expense of the budgets of the constituent entities of the Russian Federation;

Transfer, if necessary, to local self-government bodies certain powers for state management of environmental protection in the territories of municipalities.

Executive authority of the subject of the Russian Federation in the field of environmental protection

Along with the coordination activities for environmental protection on the territory of the subject of the Russian Federation, the executive authority of the subject of the Russian Federation in the field of environmental protection:

Develops draft laws and other regulatory legal acts of the subject of the Russian Federation on environmental protection;

Submit draft legislative acts of a constituent entity of the Russian Federation for a conclusion on compliance with federal legislation to the Ministry of Natural Resources of the Russian Federation;

Organizes communication to organizations of regulatory legal acts on environmental protection approved by the Government of the Russian Federation, federal executive authorities;

Supports the functioning of the Russian Information System for Environmental Protection (RISEP) at the regional level;

Organizes the development and implementation of territorial target programs for improving conditions and protecting the environment;

Takes part in the development and implementation of federal targeted programs to improve conditions and protect the environment;

Develops, together with interested organizations, measures for the economic interest of employers in ensuring safe environmental conditions;

Organizes training and testing of knowledge of environmental protection requirements for specialists and managers;

Provides information assistance to organizations in placing orders for the purchase of personal protective equipment;

Conducts state examination of the conditions of environmental protection of employees, certification of environmental protection work in organizations;

Controls the reflection of environmental protection requirements in constituent documents legal entities upon their registration;

Participates in the established order in the investigation of group accidents at work, accidents at work with a severe outcome, accidents at work with a fatal outcome;

Annually sends information to the Ministry of Natural Resources of the Russian Federation on the state of and measures to improve conditions and environmental protection in the subject of the Russian Federation, proposals for improving federal legislation on environmental protection and on the formation of state policy in the field of environmental protection;

Prepares opinions for consideration in court of issues on the liquidation of organizations or their divisions in case of violations of environmental protection requirements;

Provides interaction on environmental issues in the territory of the subject of the Russian Federation of federal executive authorities, executive authorities of the subject of the Russian Federation, associations of trade unions, associations of employers, the state inspection for environmental protection in the subject of the Russian Federation, other bodies of state supervision and control over compliance requirements of environmental protection, local governments;

Provides methodological assistance to organizations in improving the work of environmental protection services;

Carries out control over the conditions and environmental protection, the quality of certification of workplaces in terms of environmental protection, the correctness of the provision of compensation for hard work and work with harmful or dangerous environmental conditions, and also prepares proposals for classifying organizations as an occupational risk class in accordance with results of certification of works on environmental protection in organizations;

Organizes and conducts an examination of environmental conditions for construction projects of new and reconstructed production facilities in terms of compliance of the environmental conditions designed in them with environmental protection requirements;

Issues permits to educational institutions for training and testing the knowledge of environmental protection requirements for employees of organizations, including managers;

Organizes and carries out the preparation and issuance of conclusions to organizations on the state of conditions and environmental protection when licensing certain types of activities; submits proposals to the licensing authorities on the suspension or revocation of licenses to organizations that do not comply with the requirements of environmental protection;

Develops, together with interested organizations, activities to generalize and disseminate best practices in the field of environmental protection, organizes competitions, days of environmental protection, etc.;

Considers disagreements between employers and employees of organizations for the provision of compensation for work with a harmful or dangerous environment and issues conclusions;

Organizes work related to the preparation of an opinion on the nature and conditions of the environment to resolve the issue of the correctness of establishing discounts and surcharges to the basic insurance rate in accordance with the requirements of the Federal Law "On Compulsory Social Insurance against Occupational Accidents and Occupational Diseases";

Organizes the work of territorial interdepartmental commissions or coordinating councils for environmental protection.

The powers of local governments in the field of environmental protection and nature management are defined both by the Federal Law of October 6, 2003 "On the General Principles of Organizing Local Self-Government in the Russian Federation", and by separate acts of environmental legislation.

Local self-government is carried out throughout Russia in urban, rural settlements and other territories. This is the most numerous system of organs in the country, designed to solve problems in the field of interaction between society and nature. When evaluating these bodies, it is important to keep in mind that environmental problems tend to be local in nature.

Local self-government is an expression of the power of the people, it is an independent activity of the population recognized and guaranteed by the Constitution of the Russian Federation and under its own responsibility to address issues of local importance directly or through local governments, based on the interests of the population, its historical and other local traditions. Local self-government bodies include both elected and other bodies formed in accordance with the charters of municipalities.

Municipalities are in charge of issues of local importance, as well as certain state powers that may be vested in local governments.

Local issues include:

Possession, use and disposal of natural resources that are in municipal ownership;

Ensuring the sanitary well-being of the population;

Regulation of planning and development of territories of municipalities;

Control over the use of land on the territory of the municipality;

Regulation of the use of water bodies of local importance, deposits of common minerals, as well as subsoil for the construction of underground structures of local importance;

Improvement and gardening of the territory of the municipality;

Participation in environmental protection on the territory of the municipality;

Organization and content of the municipal information service.

Based on the analysis of sources of environmental pollution, the ecological state of the territory of the municipality of Novy Urengoy, the priorities of environmental activities are:

reduction of negative impact and regulation of environmental quality;

preservation of natural complexes and biological diversity, including rare and endangered species of animals and plants;

informing, educating and raising the ecological culture of the population;

organization and development of the system of ecological education and upbringing.

So, in modern conditions, the priority is to ensure sustainable socio-economic development of the municipality while maintaining a favorable environment.

1.3 Fundamentals of improving environmental management at the municipal level

The Yamalo-Nenets Autonomous Okrug (hereinafter referred to as the Autonomous Okrug) is characterized by the presence on its territory of a large number of minerals, among which hydrocarbons are the most important. Undoubtedly, hydrocarbon production determines the economic stability of the Russian Federation. The Autonomous Okrug accounts for more than 75% of all proven gas reserves in Russia (a third of the world), 10% of oil. 216 deposits of carbon raw materials have been discovered in the Autonomous Okrug. Of these, only a quarter is in commercial development, 11 deposits are prepared for exploitation, including the giant Bovanenkovskoye, Kharasaveyskoye, Novoportovskoye deposits in the Yamal region of the Autonomous Okrug.

In this context, it is fundamentally important to note that the Autonomous Okrug is the territory of the original residence of the indigenous peoples of the North. The Yamal region of the Autonomous Okrug is one of the few regions in the world where the original culture of aboriginal peoples has been preserved. The key components of the culture of the ancient northern ethnic groups are reindeer herding, hunting and fishing.

The industrial development of the Yamal Peninsula - the entry of gas workers to the sea shelf, the development of the Bovanenkovskoye oil and gas field, the construction of the railway, according to environmentalists, will significantly increase human impact on nature and exacerbate the problems of its protection. This applies both to natural complexes as a whole, and to individual, especially vulnerable species of animals and birds listed in the Red Book of Yamal.

In the floodplains of the rivers crossing the Yamal Peninsula, the most valuable nesting sites of the red-breasted goose and peregrine falcon are concentrated in Yamal, the lesser swan, the lesser white-fronted scoter, the common scoter, and the white-tailed eagle live. This is the most important area for nesting and molting of waterfowl - bean goose, white-fronted goose, pintail, long-tailed duck and others. Here are the northern boundaries of the distribution of many species of animals and plants. River basins have the most valuable commercial stock of whitefish. Fossil remains of the mammoth fauna are concentrated here.

The active industrial development of the North has a significant impact on ecological situation of the developed territories, on the traditional way of life of the aboriginal population and traditional crafts. In addition, an increase in the concentration of pollutants in the air, water, soil and plants leads to a significant deterioration in the health status of both the newcomer and the aboriginal population of the Autonomous Okrug. The change in the health status of the population associated with changes in the environment is of a delayed nature, and the duration of the delay period is different for different genesis of the technogenic impact.

When implementing plans for the industrial development of the Yamal Peninsula, it is necessary to preserve the unique ecosystem of the Peninsula as one of the main components of maintaining the existing lifestyle and health of people. The industrial development of the Yamal Peninsula and the related restructuring of the economy in this area should be accompanied by an assessment of the environmental pressure on people. Environmental pressure monitoring will allow promptly identifying emerging environmental problems and taking timely appropriate measures to ensure a stable and safe environmental situation on the territory of the Autonomous Okrug on the example of the Yamal region in conditions of active technogenic impact.

The Department of Natural Resource Regulation and Development of the Oil and Gas Complex of the Yamalo-Nenets Autonomous Okrug is the executive body of state power of the Yamalo-Nenets Autonomous Okrug, which performs the functions of developing state policy, legal regulation, state control, and also ensures the implementation of the powers of the Autonomous Okrug as a subject of the Russian Federation in the following areas of activity:

Subsoil use;

land use;

Water use;

Forest management;

Protection of the environment, atmospheric air, specially protected natural areas of regional importance and the treatment of production and consumption waste, as well as the organization and conduct of state environmental expertise of objects at the regional level.

This year, taking into account the unresolved problems with the financing of municipal control, we can talk about the creation of municipal environmental control services so far in industrialized cities, where it is possible to maintain such a service and there are serious environmental problems.

The regulation on municipal environmental control on the territory of the municipality of the city of Novy Urengoy can be developed for the purpose of legal regulation of legal relations in the field of exercising the functions of a local government body on environmental protection, rational environmental management and ensuring environmental safety on the territory of the municipality.

With its introduction, the following goals and objectives are achieved:

Implementation of the norms of federal legislation providing for the transfer of functions in the implementation of environmental policy, material resources and responsibility to the municipal level;

Regulation of the activities of the local government in the implementation of municipal environmental control;

Creation of a legal mechanism for the environmental management system at the municipal level;

Creation of a fundamentally new municipal service, coordinating the environmental activities of enterprises and organizations, regardless of their form of ownership and departmental subordination;

Determination of forms and methods of involving the population in activities to improve the environment and improve places of residence and common use on the territory of the municipality.

With the introduction of municipal environmental control, the following results can be expected:

An efficient environmental management system will be created in the city that will make it possible to pursue a targeted environmental policy that will steadily reduce the anthropogenic impact on the environment and, accordingly, reduce the mortality and morbidity rates of the population, carry out landscaping and landscaping activities, improve socio-economic indicators and quality of life;

There will be incentives for enterprises through municipal environmental control in the introduction of the latest environmentally efficient technologies, assistance in the development of the market for environmental services and environmental entrepreneurship will reduce the consumption of natural resources, prepare the economy of the municipality for Russia's accession to the WTO and the transition to European standards for the safety of products and production processes, create new workplaces;

The involvement of the public in solving the environmental problems of the city and planning environmental activities will serve as an incentive for the population in the growth of environmental culture, civic activity in public control, for the practical participation of residents of the municipality in the implementation of environmental protection measures.

Coordination of the control activities of federal and regional authorities and administration within the framework of municipal environmental control in the city can be carried out either in conjunction environmental issues to the socio-economic development of the city, or on the basis of an agreement with the territorial bodies of federal executive power in the field of environmental protection and nature management. In order to avoid duplication of environmental control functions, taking into account the requirements of the Federal Law “On the Protection of the Rights of Legal Entities and individual entrepreneurs when conducting state control (supervision), it is advisable to practice scheduled comprehensive inspections of enterprises that use natural resources with a commission participation of federal regulatory authorities and the issuance of relevant orders of the city administration on conducting inspections.

Chapter 2

2.1 Mechanisms for economic regulation of the implementation of environmental policy (on the example of the municipality of Novy Urengoy)

The economics of environmental management is closely related to the economy of the country and forms the initial information about the need to use natural resources in solving problems of the efficiency of production development. The emergence of new tasks for the rational use of natural resources and environmental protection is due to the tangible need for management practice. A comprehensive program-targeted approach to the development of new forms of ownership and a market economy reflects the interconnection of all sections of the environmental management program. development scientific foundations The development of general schemes for the distribution of productive forces, including regional aspects, production features, resource potentials, etc., contributes to the economics of nature management.

An economic assessment of the state of pollution and the determination of the main planned indicators for the preservation of a high-quality natural environment make it possible to develop a comprehensive plan for the protection, restoration and improvement of the environment. Its development should be based on estimated minimum justified costs, which should be linked to annual and strategic integrated forward-planning budgets at the local, district and national levels. The higher the national income, the greater the amount that can be allocated for environmental protection.

Currently, the legal and socio-economic aspects that establish the principles for the use of environmental resources have not yet been fully developed. Therefore, mismanagement of the pantries of nature, the operation of machinery, equipment, buildings and structures has developed. To create conditions for the harmonious development of society and nature, which implies an ever more complete satisfaction of human needs, new socio-economic problems of environmental protection have arisen, for the solution of which resource-saving and environmental measures that ensure the preservation of people's health, maintaining the comfort of their lives have become decisive. The trend of changes in the indicators of the ecological and economic system should be such that conditions for the conservation of nature for present and future generations are created.

From the analysis of the retrospective of the development of environmental protection measures and resource-saving technology for the production of consumer goods, it follows that the multibillion-dollar expenditures for these purposes did not bring the desired results. Indicators of environmental and economic efficiency have not improved.

The main reason for the deterioration of the environmental situation in our country is the lack of a sustainable mechanism that would make the economy of pollution sources dependent on environmental and economic standards that determine the types of economic, moral and other incentives for rational resource use and environmental protection measures in the context of changed forms of ownership of the means of production and natural resources.

The strategy of socio-economic development, if it takes into account the resources of use, reproduction of the natural environment, should take into account the growth of agricultural, industrial, individual and other products, an increase in the amount of energy produced, the expansion of transport and services, an increase in domestic comfort, working conditions, etc. The integrated development of environmental and resource-saving activities in municipalities, territorial production complexes, and enterprises should be focused on improving environmental and economic efficiency and meeting the socio-economic needs of a person. In our country, market relations are being formed, property is being privatized, the forms and methods of managing the economy are changing, which should help increase the environmental and economic efficiency of nature management. World experience in the construction of environmental facilities indicates that the problems of environmental protection and resource-saving activities in industry, agriculture and the non-productive sector can be successfully resolved in the development of territorial planning, within the framework of industrial and social infrastructures, at the level of the republics and the country as a whole.

The environmental policy of the municipality of Novy Urengoy is based on the Constitution of the Russian Federation, federal laws and other regulatory legal acts of the Russian Federation, international treaties of the Russian Federation in the field of environmental protection and rational use of natural resources.

In accordance with the principles of the Concept of Transition of the Russian Federation to Sustainable Development, approved by the Decree of the President of the Russian Federation of April 1, 1996 No. 440, it seems possible to ensure a balanced solution of socio-economic problems and the preservation of a favorable environment and natural resource potential in order to ensure a worthy contribution of the municipal education of Novy Urengoy in the desire of the world community to meet the needs of present and future generations, achieving harmony with nature and forming the sphere of reason (noosphere), scientifically substantiated by V. I. Vernadsky.

Legal basis for municipal environmental control:

European Charter of Local Self-Government (adopted by the Council of Europe on October 15, 1985 in Strasbourg). Extracts:

Art. 4. Scope of competence of local government

P.1 The main powers and competence of local self-government are established by the constitution or law. However, this provision does not preclude the granting of powers and competencies to local governments in accordance with the law for specific purposes.

P.2. Local governments within statutory, have full freedom of action to implement their own initiatives on any issue that is not excluded from their competence and is not assigned to the competence of another authority.

P.4. The powers granted to local self-government bodies should, as a rule, be full and exclusive.

P.5. Where powers are delegated by central or regional authorities to local governments, the latter should, as far as possible, have the freedom to exercise them in accordance with local conditions.

P.6. In the process of planning and making any decisions directly related to local governments, they are consulted, as far as possible - in advance and in an appropriate form.

Art. 6. Compliance of administrative structures and resources with the tasks of local governments.

P.1. Without prejudice to more general legislative provisions, local governments should be able to determine their own internal administrative structures so that they meet local needs and ensure effective management.

Article 9. Sources of financing of local self-government bodies.

P.1 Local self-government bodies have the right, within the framework of the national economic policy receive sufficient financial resources of their own, which they can dispose of in the exercise of their functions.

P.2 The financial resources of local self-government bodies must be commensurate with the powers granted to them by the constitution or by law.

P.6. The procedure for providing redistributed funds must be properly coordinated with local governments.

2. The Constitution of the Russian Federation. Extracts.

Art.15. item 4. The generally recognized principles and norms of international law and international treaties of the Russian Federation are an integral part legal system. If an international treaty of the Russian Federation establishes other rules than those provided for by law, then the rules of the international treaty shall apply.

Art.72. item 1. The joint jurisdiction of the Russian Federation and the constituent entities of the Russian Federation is: ... c) issues of ownership, use and disposal of land, subsoil, water and other water resources; e) nature management, environmental protection and ensuring environmental safety, specially protected natural areas; j) ... land, water, forest legislation, legislation on subsoil, on environmental protection; m) establishment of general principles for the organization of the system ... of local self-government.

Art.130. item 1. Local self-government in the Russian Federation provides an independent solution of local issues by the population ... .

Article 131.p.2. The structure of local self-government bodies is determined by the population independently.

Art. 132. p. 1. Local self-government bodies independently manage municipal property, form, approve and execute the local budget, ... carry out the protection of public order, and also resolve other issues of local importance.

Federal Law of the Russian Federation "On general principles organizations of legislative (representative) and executive bodies of state power of the constituent entities of the Russian Federation”. No. 184-FZ of October 6, 1999 (in subsequent editions, including the version of the Federal Law of July 4, 2003 No. 95-FZ).

Article 1 Principles of activities of public authorities of a constituent entity of the Russian Federation.

P.1. In accordance with the Constitution of the Russian Federation, the activities of the authorities of the subject of the Russian Federation are carried out in accordance with the following principles:

h) independent exercise of their powers by local self-government bodies.

Federal Law of the Russian Federation "On the General Principles of Local Self-Government in the Russian Federation" of August 28, 1995 No. 154-FZ (subsequent editions, including the version of the Federal Law of December 8, 2003 No. 169-FZ). Extracts.

Art.6. Subjects of local self-government.

P.2. Local government issues include:

Regulation of the planning and development of the territory of the municipality;

Control over the use of land on the territory of the municipality;

Regulation of the use of water bodies of local importance, deposits of common minerals, as well as subsoil for the construction of underground structures of local importance;

Improvement and gardening of the territory of the municipality;

Organization of disposal and processing of household waste;

Participation in environmental protection on the territory of the municipality.

Article 9. State support for local self-government.

Federal bodies of state power, bodies of state power of the constituent entities of the Russian Federation create the necessary legal, organizational, material and financial conditions for the formation and development of local self-government and assist the population in exercising the right to local self-government.

Article 21. Municipal service.

Clause 2. The legal regulation of the municipal service, including the requirements for positions, the status of a municipal employee, the conditions and procedure for passing the municipal service, the management of the service is determined by the charter of the municipality in accordance with the laws of the constituent entities of the Russian Federation and federal law.

Art. 32. Relations of local governments with enterprises, institutions and organizations that are not in municipal ownership.

On issues that are not within the competence of local governments, their relations with enterprises, institutions and organizations that are not in municipal ownership, as well as with individuals are based on contracts.

Local self-government bodies, in accordance with the law, have the right to coordinate the participation of enterprises, institutions and organizations in the integrated socio-economic development of the territory of the municipality.

Art. 44. Obligation of decisions taken by direct expression of the will of citizens, decisions of local governments and local government officials.

P.1. Decisions made by direct expression of the will of citizens, decisions of local governments and local government officials, taken within their powers, are binding on all enterprises, institutions and organizations located on the territory of the municipality, regardless of organizational and legal forms, as well as local governments and citizens.

5. Federal Law of the Russian Federation of October 6, 2003 No. 131-FZ "On the general principles of organizing local self-government in the Russian Federation" (as amended by the Federal Law of June 19, 2004 No. 53-FZ).

Art. 16, paragraph 1, paragraph 12: the issues of local importance of the urban district include the organization and implementation of environmental control of industrial and social facilities on the territory of the urban district, with the exception of objects, the environmental control of which is carried out by federal government bodies. The same article provides for the organization of the implementation of environmental measures, the organization of a waste management system, the organization of landscaping and gardening, etc.

Art. 17, paragraph 1 establishes that, in order to resolve issues of local importance, local governments have the authority to issue municipal legal acts, make changes and additions to the charter of the municipality, and exercise other powers in accordance with federal law and the charter.

Article 42 Municipal service.

The legal regulation of the municipal service, including the requirements for municipal positions in the municipal service, the determination of the status of a municipal employee, the conditions and procedure for performing municipal service, is carried out by federal law, as well as laws adopted in accordance with it of the constituent entities of the Russian Federation and charters of municipalities.

Article 43. System of municipal legal acts.

P.3. The representative body of the municipal formation, on issues referred to its competence by federal laws, laws of the constituent entity of the Russian Federation, the charter of the municipal formation, makes decisions establishing rules that are binding on the territory of the municipal formation ....

Art. 44. Charter of the municipality.

The charter of the municipality should determine: ... a list of issues of local importance.

6. Federal Law of the Russian Federation of January 10, 2002 No. 7-FZ "On Environmental Protection" (as amended by the Federal Law of August 22, 2004 No. 122-FZ). Extracts.

Article 7. Powers of local self-government bodies in the field of relations related to environmental protection

Issues of local significance of the city district:

Organization and implementation of environmental control of industrial and social facilities on the territory of the city district, with the exception of facilities, environmental control of which is carried out by federal executive authorities.

Art.10. Management in the field of environmental protection is carried out by local governments in accordance with this federal law, other federal laws and other regulatory legal acts of the Russian Federation, laws and other regulatory legal acts of the constituent entities of the Russian Federation, charters of municipalities and regulatory legal acts of local governments.

Art.68.p. 1. Municipal environmental control on the territory of the municipality is carried out by local governments in accordance with the legislation of the Russian Federation and in the manner established by the regulatory legal acts of local governments

7. Federal Law of November 23, 1995 No. 174-FZ "On Environmental Expertise" (as amended and supplemented on April 15, 1998, as well as in the version of the Federal Law of August 22, 2004 No. 122-FZ). Extracts.

Art. 9. Powers of local governments, urban districts and municipal districts in the field of environmental expertise.

1. The powers of local governments, urban districts and municipal districts in the field of environmental expertise in the relevant territory include:

Delegation of experts to participate as observers in meetings of expert commissions of the state environmental review of objects of environmental expertise in the event of the implementation of these objects in the relevant territory and in the event of a possible impact on the environment of economic and other activities planned by another administrative-territorial unit;

Adoption and implementation, within its powers, of decisions on issues of environmental expertise based on the results of public discussions, polls, referendums, statements of public organizations (associations), movements, information about objects of environmental expertise;

Organization of public discussions, conducting polls, referendums among the population on planned economic and other activities that are subject to environmental impact assessment;

Organization at the request of the population of public environmental expertise;

Informing the federal executive authorities in the field of environmental expertise about the planned economic and other activities on the territory of the relevant municipality;

Informing the prosecution authorities, federal executive authorities in the field of environmental protection and state authorities of the constituent entities of the Russian Federation about the start of the implementation of the object of environmental expertise without a positive conclusion of the state environmental expertise;

Implementation in accordance with the legislation of the Russian Federation of other powers in this area.

Bodies of local self-government, urban districts and municipal districts have the right to:

Receive from the relevant state bodies the necessary information about the objects of environmental expertise, the implementation of which may have an impact on the environment within the territory of the municipality, and about the results of the state environmental expertise and public environmental expertise;

Send in writing to the federal executive authorities in the field of environmental expertise reasoned proposals on the environmental aspects of the implementation of the planned economic and other activities.

Municipal environmental control is carried out by the Department for Environmental Protection of the Administration of the municipality, which is created by the decision of the representative body of the municipality.

The activities of the Department are coordinated by the Deputy Head of the administration of the municipality.

The Department for Environmental Protection of the Administration of the Municipal Formation (hereinafter referred to as the Department), when exercising municipal environmental control, is guided by the Constitution of the Russian Federation, international treaties Russian Federation, federal laws, decrees and orders of the President of the Russian Federation, resolutions and orders of the Government of the Russian Federation, regulatory legal acts of federal executive bodies, laws and other regulatory legal acts of the subject of the Russian Federation, the Charter and other legal acts of the municipality, as well as these Regulations.

The list of officials and specialists of the Department empowered to exercise municipal environmental control is approved by the Head of the administration of the municipality.

Financing of activities for the implementation of municipal environmental control is made from the local budget.

According to the Federal Law of October 6, 2003 N 131-FZ "On the General Principles of Organization of Local Self-Government in the Russian Federation", the Federal Law of January 10, 2002 N 7-FZ "On Environmental Protection", the order of the Head of the Administration of the municipality of .Novy Urengoy dated July 5, 2009 N 161-Pr "On the environmental improvement of the city of Novy Urengoy in 2009 - 2011", the Charter of the municipality of Novy Urengoy created a municipal target program "Environmental protection in the territory of the municipality of Novy Urengoy for 2010 - 2012".

The total amount of funding for the activities of the Program and sources is 47,308 thousand rubles. (projectively), of which:

district budget - 20,000 thousand rubles. (forecast);

municipal budget - 27308 thousand rubles. (projectively), including:

for 2010 - 5100 thousand rubles. (forecast);

for 2011 - 13108 thousand rubles. (forecast);

for 2012 - 9100 thousand rubles. (forecast).

The main objectives of the Program: organization of an effective management system in the field of environmental protection, compliance with sanitary and environmental standards when handling production and consumption waste, their rational and cost-effective waste management, the formation of an ecological culture and ecological outlook of the population, promotion of environmental knowledge.

Program activities are aimed at the implementation of tasks in each of the areas. The basis of the Program is a system of interrelated activities, which are linked by resources, executors and deadlines for the implementation of a set of regulatory and legal framework, industrial, socio-economic, organizational and economic and other activities that ensure the effective solution of problems in the field of environmental protection.

The measures provide that the main goals to be achieved as a result of environmental work are:

Reduction of anthropogenic impact on the environment;

Organization of collection and processing of production and consumption waste;

Creation of environmentally safe conditions for storage and disposal of waste;

Raising the level of culture of the population, the formation of consciousness in the field of environmental protection.

As a result of the implementation of activities, it is predicted:

Reduce damage to the environment as a result of the disposal of production and consumption waste, ensuring the solution of the issue of waste disposal in the amount of 434.526 thousand cubic meters. m per year;

Improve the sanitary and epidemiological situation;

Raise the level of ecological culture of the population;

Ensure environmentally safe disposal of production and consumption waste.

The Children's Ecological Station is the only institution in the city whose activities are aimed at environmental education and upbringing of children, adolescents and environmental education of the population of the municipal formation of the city of Novy Urengoy, Yamalo-Nenets Autonomous Okrug.

Municipal educational institution additional education children "Children's Ecological Station" was created on the basis of the city station of young naturalists according to the order of the City Department of Public Education of Novy Urengoy on 01.11.1988.

Children's Ecological Station - an institution of additional education for children, is engaged in environmental education and education of the younger generation, by creating conditions:

for the disclosure, development and satisfaction of the interests of children in environmental, aesthetic and naturalistic work;

formation of interest in the biological sciences, ecology, experimental research activities;

education of respect for nature, involvement of children and adolescents in environmental activities.

DES pupils study at various schools in the city and have the opportunity to receive a wide range of educational services for harmonious self-development, but only the Children's Ecological Station has the necessary conditions to ensure direct communication between the child and nature, its living objects, in the harsh climate of the Far North. A study of the social order for additional educational services showed that parents, especially in families with low and middle incomes, are interested in additional education, upbringing and development of children (the most popular was the training in artistic, aesthetic, environmental education, as well as a great interest in attracting children to communication with living objects of the DES zoo corner), the DES team tries to satisfy the social order of the population as much as possible and educational institutions cities for additional educational services, to implement an educational system in the institution that promotes the moral and civic formation and development of children and young students.

Thus, the current federal and regional legislation directly provides for the possibility of considering, adopting and enacting the Regulations on municipal environmental control. The approval of the Regulations by the decision of the local representative body is carried out after the introduction and approval of amendments to the Charter of the municipality, providing for the assignment of the organization of municipal environmental control to issues of local importance, the creation of an appropriate unit in the structure of the city administration.

2.2 Analysis of the effectiveness of environmental protection measures for 2007-2009 (on the example of the municipality of Novy Urengoy)

An analysis of the state of the environment shows that the ecological situation in the city has not yet improved: urban areas are being irrationally used, the total number of green spaces is decreasing, and the proportion of degraded trees and shrubs is increasing. Despite a sharp drop in the mass of emissions from transport, there is no improvement in the quality of atmospheric air, which is due to poor technical condition Vehicle and the fact that the increase in the city's car park is not accompanied by adequate road construction and traffic management measures. There is no full-fledged legislative base to ensure the greening of economic activity; no effective economic mechanism has been created to stimulate resource conservation, the introduction of environmentally friendly technologies and the reduction of production waste. The totality of the complex of these problems causes concern of the townspeople.

According to the data provided by the Department of Natural Resources for the YNAO, most of the pollutants entering the main waterway of the Ob, as well as its tributaries, are burdened with oil, oil products, phenols, and heavy metals. Among them are mercury, lead, tin, strontium, manganese - only ten items. The mass of pollutants discharged into the water bodies of the district in 2009 amounted to approximately 17,177 tons.

Also last year, gross emissions of pollutants into the atmosphere amounted to more than 818,574 tons. Of these, the lion's share falls on stationary sources, that is, oil and gas enterprises, such as OJSC Rosneft-Purneftegaz, LLC Nadym Gazprom, OJSC Sibneft-Noyabrskneftegaz, LLC Urengoy-Gazprom, LLC Tyumengazstroy . The enterprises of the oil and gas complex account for 61 percent of emissions of pollutants into the atmosphere, the main ones being sulfur dioxide, hydrocarbon oxide, nitrogen oxides, volatile organic compounds, solids, hydrocarbons, and so on.

The most important source of air pollution in our region is natural gas flaring. The number of torches in the district is 1110 pieces, gas flare installations - 70 pieces. The existing level of atmospheric air pollution in the region is formed due to emissions from the operated compressor stations of the Novy Urengoy LPU 000 Tyumentransgaz" and KS-00 of the Novy Urengoy LPU of the Noyabrsk Department main pipelines"Surgutgazprom" and pollution created due to long-range transfer from industrial areas (taking into account interpolation over the territory) of Novy Urengoy.

Background air pollution in Novy Urengoy is adopted in accordance with the "Guidelines for the control of atmospheric pollution RD.52.04.186-89" (M., Goskomgidromet, 1991) as for cities with a population of up to 250 thousand people, and is the following values:

For nitrogen dioxide - 0.03 mg/m3;

For carbon monoxide - 1.5 mg/m3;

For sulfur dioxide - 0.05 mg/m3;

In 2009, emissions of pollutants from mobile sources, that is, from vehicles, amounted to 132,962 tons, which is 16 percent of all gross emissions. An increase of another 13 percent is expected this year as the number of cars in the county increased. So, according to the YNAO traffic police, at the beginning of this year, 142,368 wheeled vehicles were already registered in the district. Emissions from mobile sources mean all types of transport: road; railway, air, river. But the lion's share, of course, falls on the automobile - 78 percent, the main pollutants: carbon monoxide, soot, lead compounds and others.

According to the data of the state statistical observation, more than 333 thousand tons of waste was generated at the enterprises of the district (meaning production and consumption waste), of which the main part - 83 percent - falls on the share of the oil and gas complex enterprises: Service Drilling Company LLC - 79981 tons, LLC "Sibneft-Noyabrskneftegaz" - 37282, OOO "Yamburggazdobycha" - 17810. The total amount of waste per year in the district is 878 thousand tons, of which 218 thousand are toxic waste. Behind these figures are the exclusion of reindeer pastures, the reduction of the forest fund, environmental pollution.

Highly qualified specialists of OAO GazpromDobychaUrengoy are engaged in solving environmental problems, scientists of the industry institutes VNIIGAZ, TyumenNIIgiprogaz and other scientific organizations of various ministries and departments are involved.

The main goal of scientific research today is the creation of environmentally friendly technologies and equipment.

A sectoral system of industrial environmental monitoring of emissions of harmful substances and wastewater discharges, the state of air, water and soil in the area of operation of OAO GazpromDobychaUrengoy is being created.

OAO "GazpromDobychaUrengoy" protects tundra landscapes by reducing land losses during the construction of pipelines; Restores disturbed lands, uses modern biotechnology to clean up pollution. In total, there are 23,747.94 hectares of land on the company's balance sheet.

OJSC "GazpromDobychaUrengoy" is protecting rivers and lakes from pollution by industrial sewage, by burying them in the Cenomanian absorbing horizon, a specialized landfill has been created at the deposit for these purposes. With the direct participation of the specialists of the department, the "Regulations on hydrogeoecological control at the Urengoy specialized site for industrial waste injection" was developed. The main result of the work performed was that the removal of more than 20 million m3 of industrial waste for gas deposits over 22 years of operation of the Urengoy field prevented pollution earth's surface, rivers, lakes and drinking groundwater, i.e. prevented a real ecological disaster for a large region with a very vulnerable natural environment. A regulatory and legal framework has been created to justify the construction and operation of specialized landfills for underground disposal of industrial waste, which made it possible to exempt OAO GazpromDobychaUrengoy from annual payments for wastewater disposal.

The problem of permafrost thawing in the area of the MPC is solved by carrying out a comprehensive assessment of the current situation (the state of gas pipelines and the natural environment) based on the results, a decision was made on the need and possibility of gas cooling. There are currently four gas cooling stations (COGs) operating at the field at GTP 11, 12, 13.15.

When designing roads, the following environmental protection solutions are provided:

The subgrade is designed in such a way as to exclude a possible violation of the thermal regime of existing soils at the base of the subgrade and the adjacent strip (backfilling of the subgrade from the quarry, and the lower part is backfilled on a frozen base while maintaining the mossy cover in an undisturbed state);

Locations and openings of artificial structures ensure the preservation of drainage conditions after the construction of roads, which eliminates negative impact on the environment;

Upon completion of the construction of roads, the lands allocated for temporary use are reclaimed: the roadside strip.

The basis of environmental protection in the construction of electrochemical protection means is the mandatory compliance with environmental protection requirements at all stages of work with land reclamation after their completion.

Let us analyze the effectiveness of the environmental protection measures taken in the municipality of Novy Urengoy for the period from May 2009 to May 2010.

Created by the administration of the city of Novy Urengoy, the municipal system for ensuring environmental safety in the city, including the Department for the Protection of the Environment and Natural Resources and the municipal institution "City Department for Analytical and Operational Control of the Quality of the Environment", which monitors the accuracy of charging for normative and excess pollution of the natural environment and the expenditure of these funds for their intended purpose, is working to increase the revenues to the budget of these funds.

The main task of the municipal institution "City Department for Analytical and Operational Control of the Quality of the Environment" is the accumulation and control over the expenditure Money to finance activities in the field of environmental protection in the city.

The main source of these funds is the payment of enterprises, institutions, organizations for emissions, discharges of pollutants, waste disposal and other types of environmental pollution within the established standards and limits.

Environmental management consists in the development and implementation by local governments of activities aimed at implementing a strategy in the field of environmental protection and rational use of natural resources. It is known that the effectiveness of any activity largely depends on the effectiveness of the management structure, and environmental protection in the municipalities of the Russian Federation is no exception. At the same time, management in the field of environmental protection has a number of features: objective, due to the socio-economic conditions of the regions; subjective - political processes, reorganization of state bodies and changes in the regulatory framework.

In order to address the issues of preservation, improvement of the quality of the environment and the improvement of the ecological situation in the city, which are relevant for Novy Urengoy, the Department has stepped up work to ensure environmental safety in the city as part of systematic environmental monitoring, combined with inspections of compliance with environmental legislation.

In 2009, the number of inspections of compliance with the requirements of environmental legislation increased by 2.4 times (692 inspections) in comparison with the same period in 2008. The largest number of inspections (57%) was carried out at the request of citizens.

Tab. one

Events			2009 as of 24.04.09
A total of inspections were carried out, including: According to the requirements of the supervisory authorities At the request of citizens Raids as part of administrative commissions
According to the results of the control measures
Compiled protocols on administrative offenses
Accrued fines (thousand rubles)
Unauthorized objects were detected: Of them dismantled

As of April 24, 2010, the number of protocols on administrative offenses drawn up by employees of the Department increased by 1.4 times compared to the previous year, following the results of which fines were charged in the amount of 597.9 thousand rubles. (2008 figure).

Based on the results of the measures taken to ensure environmental safety in 2009, the number of issued orders to eliminate identified violations increased by 3.7 times, the number of inspection materials sent to law enforcement agencies and government agencies by 1.7 times compared to 2008.

As part of the work carried out as part of the commission on the liberation of unauthorized occupied land, the demolition of unauthorized buildings and the transfer of other objects in 201, employees of the Department identified 57 unauthorized objects, of which 29 objects were dismantled. As of April 24, 2010, 32 unauthorized objects were identified, of which 18 objects (78%) were dismantled.

Receipts of targeted environmental funds for 2008-2009 are shown in Table 2 and Fig. 1.

Receipt of targeted environmental funds to the city budget for 2008-2009.

Continuous implementation of municipal environmental monitoring, combined with audits of compliance with environmental legislation requirements, resulted in a 27% increase in revenues to the budget of the city of Novy Urengoy compared to the same period, including: 72% on fees for services received by the Authority.

Fig.1. Receipt of funds for environmental pollution in 2008-2009

The increase in income is primarily due to:

more complete accounting of users of natural resources, clarification of the volume of pollution when calculating payments;

the introduction and implementation of such an effective measure as control over the reliability of initial data based on reconciliation of payments against primary environmental and accounting documentation available at enterprises.

inflation rate.

On the whole, in 2009, the Administration ensured receipt of revenues to the city budget in the amount of 94.7 million rubles, the implementation of the annual plan is 104.9%, including:

For payment for negative environmental impact - 84.8 million rubles. (104.4% of the annual plan),

For payment for services received by the Department - 9.8 million rubles. (109.6% of the annual plan).

In addition, in 2009, an additional 5.3 million rubles were attracted to the city budget. in the form of fines, voluntary compensation for environmental damage, sponsorship contributions, which is 204% more than in 2008.

In the 1st quarter of 2010, the implementation of the plan for payment for services received by the Department is 238% (1.547 rubles), an additional 849.960 thousand rubles were attracted to the city budget.

In 2009, the municipal order provided for within the framework of budgetary funds was placed and executed in full.

For the first time in Novy Urengoy, in addition to measures to identify and suppress the illegal demolition of green spaces, work has begun to increase and improve the quality of the city's green fund. In order to improve the ecological situation and improve the environment, work is underway to develop a long-term target program "Preservation and development of green spaces in the city of Novy Urengoy". The adoption of this program will ensure the growth of the pace and quality of landscaping in combination with the comprehensive improvement of the city, improving the quality of the urban environment, improving living and recreation conditions for the population, preserving and developing socially significant green areas for common use.

Ensuring a stable revenue flow to the budget of the city of Novy Urengoy, as well as the adoption of the master plan of the municipality, made it possible to justify an increase in the expenditure part of the budget of the city of Vladivostok under the section "Environmental Protection" from 1.2 million rubles. in 2009 to 8.946 million rubles. in 2010, which in turn will increase the number of measures taken in the field of environmental protection.

There has been a trend of more active cooperation between the Office and public environmental organizations in the implementation of environmental projects.

Conclusion

Ensuring the environmental safety of the regions of the Russian Federation and the constitutional rights of the population to a favorable environment is currently impossible without the creation of modern mechanisms for regulating nature management and environmental activities at the municipal level. The division of environmental protection activities at the federal level between several authorized bodies currently creates obstacles to effective management and control in the field of nature management. The authorities of the constituent entities of the Russian Federation, and especially local governments, are poorly involved in these processes due to the limitations of their powers.

Local authorities, in accordance with the legislation of the Russian Federation, are empowered to organize waste management, participate in the state environmental review procedure in order to protect the interests of the population, issue approvals for the provision of land for mining, ensure environmental safety during construction and development of systems engineering communications.

The main goal of the policy of the municipality of Novy Urengoy in the field of improving the environmental management system and ensuring environmental safety is to realize the rights of city residents to a favorable environment, protect it from the negative impact caused by economic and other activities, improve and improve the quality of the environment for account of the transition from the elimination of the consequences of pollution to its prevention.

Environmental management is among the top overall priorities for city management. The environmental management system of the municipality of Novy Urengoy ensures the order and consistency of solving environmental issues on the territory through the allocation of resources, the distribution of responsibilities and the constant assessment of methods, procedures and processes. The environmental management system implemented as one of the management elements is a sign of good territory management and increases its investment attractiveness. Implementing environmental management as much as possible prevents environmental disasters.

The main principles of environmental management are defined by GOST R ISO 14001, which establishes the requirements for the environmental management system in order to implement the environmental policy of the territory and achieve target indicators, taking into account the requirements of environmental legislation and taking into account the results of environmental monitoring. AT general case The environmental management system includes the following elements:

Optimization of the control system and prevention of impacts on various components of the environment;

Implementation of energy saving regime and use of natural resources;

Prevention and limitation of emergency incidents;

Informing the population, training and participation in solving issues related to the environment;

Informing public organizations about environmental impacts and issues related to the state of the environment.

The executive authorities of the municipality of Novy Urengoy should periodically analyze and evaluate the current environmental management system in order to identify favorable opportunities for its improvement. The environmental management system is a means of achieving the level of environmental performance that it has set for itself and systematically monitoring it.

All branch executive bodies of state power of the municipality of Novy Urengoy, responsible within their competence for the whole range of issues related to environmental safety and environmental protection, should participate in the implementation of the environmental policy of the municipality of Novy Urengoy.

In order to improve the environmental management system and ensure environmental safety, the author of the thesis proposes next activities:

Develop and implement a system of target and planned environmental indicators as quantitative criteria for the environmental performance of the policy pursued by the executive bodies of the municipality of Novy Urengoy;

To bring to the attention of the heads of sectoral executive bodies of state power of the municipality of Novy Urengoy, ordinary employees "The main activities of the Administration of the municipality of Novy Urengoy";

Develop draft targeted programs financed from the budget of the municipality of Novy Urengoy in the prescribed manner, aimed at ensuring environmental safety and environmental protection;

Establish an Eco-Audit Chamber of the municipal formation of Novy Urengoy under the auspices of the Administration of the municipal formation of Novy Urengoy.

List of used sources and literature

Normative legal acts

1. The Constitution of the Russian Federation. - M: Legal lit. - 1993. - 64 p.

2. Russian Federation. Laws. On subsoil: Law of the Russian Federation of February 21, 1992 N 2395-1 // Collection of Legislation of the Russian Federation. - 1995. - N 10. - Art. 823.

3. Russian Federation. Laws. On Ratification of the Convention on Biological Diversity: Federal Law No. 17.02.1995 N 16-FZ // Collection of Legislation of the Russian Federation. - 1995. - N 8. - Art. 601.

4. Russian Federation. Laws. On the animal world: federal law of 04/24/1995. N 52-FZ // Collection of Legislation of the Russian Federation. - 1995. - N 17. - Art. 1462.

5. Russian Federation. Laws. On compulsory social insurance against accidents at work and occupational diseases: Federal Law No. 125-FZ of July 24, 1998 // Collection of Legislation of the Russian Federation. - 1998. - N 31. - Art. 3803.

6. Russian Federation. Laws. On the general principles of the organization of legislative (representative) and executive bodies of state power of the constituent entities of the Russian Federation: federal law of October 6, 1999 N 184-FZ (as amended on April 5, 2010) // Collection of Legislation of the Russian Federation. 1999.- N 42. - Art. 5005.

7. Russian Federation. Laws. On Environmental Protection: Federal Law No. 7-FZ of January 10, 2002 // Rossiyskaya Gazeta. - N 6. - 2002.

8. Russian Federation. Laws. On the general principles of organizing local self-government in the Russian Federation: Federal Law No. 131-FZ of October 6, 2003 // Collection of Legislation of the Russian Federation. - 2003. - N 40. - Art. 3822.

9. Russian Federation. Laws. Water Code of the Russian Federation: federal law of 03.06.2006 N 74-FZ //Collected Legislation of the Russian Federation. - 2006. - N 23. - Art. 2381.

10. Russian Federation. Laws. Forest Code of the Russian Federation: federal law of December 4, 2006 N 200-FZ // Rossiyskaya Gazeta. - N 277. - 2006.

11. Russian Federation. Government. On the Environmental Doctrine of the Russian Federation: Decree of the Government of the Russian Federation of August 31, 2002 N 1225-r // Collection of Legislation of the Russian Federation. - 2002. - N 36. - Art. 3510.

12. Russian Federation. The president. On the system and structure of federal executive bodies: Decree of the President of the Russian Federation of March 9, 2004 N 314 // Rossiyskaya Gazeta. - 2004. - 17.04.

13. Russian Federation. Ministry of Natural Resources of the Russian Federation. Regulations on the Department of Natural Resources and Environmental Protection of the Ministry of Natural Resources of Russia for the Yamalo-Nenets Autonomous Okrug. Approved by order of the Ministry of Natural Resources of the Russian Federation No. 266 dated May 17, 2002 [Electronic resource] / Access mode:// #"1.files/image002.jpg">

Rice. 2. Main functions of the Department of Environmental Protection and Nature Management
See: Russian Federation. Government. On the Environmental Doctrine of the Russian Federation: Decree of the Government of the Russian Federation of August 31, 2002 N 1225-r // Collection of Legislation of the Russian Federation.2002. N 36. Art. 3510. See: Laptev N.I. Ecological program as one of the conditions for sustainable development of the region // Problems of interaction between nature and society. Tomsk, 2009. P.4-5.

See: Russian Federation. Laws. On subsoil: Law of the Russian Federation of February 21, 1992 N 2395-1 // Collection of Legislation of the Russian Federation. 1995. N 10. Art. 823.

See: Russian Federation. Laws. Forest Code of the Russian Federation: federal law of December 4, 2006 N 200-FZ // Rossiyskaya Gazeta. N 277. 2006.

See: Russian Federation. Laws. Water Code of the Russian Federation: federal law of 03.06.2006 N 74-FZ //Collected Legislation of the Russian Federation. 2006. N 23. Art. 2381.

See: Russian Federation. Laws. On the animal world: federal law of 04/24/1995. N 52-FZ // Collection of Legislation of the Russian Federation. 1995. N 17.St. 1462.

See: Pozdeeva A. Ecology under reliable control // Rossiyskaya Gazeta. Special issue "Chemical Disarmament". No. 5076 (252). 29.12. 2009.

See: Tarakanov S. Millions to throw away. Compensation for negative impact on the environment is used irrationally // Rossiyskaya Gazeta. Sakhalin. No. 4701. 08 July 2008.

See: Parliamentary hearings were held in the Federation Council on the development of the regulatory framework in the field of environmental insurance. - Access mode: #"#_ftnref23" name="_ftn23" title=""> See: In 2010, the Kirov region will receive 14.8 million rubles for the protection of water bodies. - Access mode: #"#_ftnref24" name="_ftn24" title=""> See: Russian Federation. Laws. On Environmental Protection: Federal Law No. 7-FZ of January 10, 2002 // Rossiyskaya Gazeta. N 6. 2002.

See: Constitution of the Russian Federation, Article 114.

See: Russian Federation. The president. On the system and structure of federal executive bodies: Decree of the President of the Russian Federation of March 9, 2004 N 314 // Rossiyskaya Gazeta. 2004. 17.04.

See: Russian Federation. Laws. On compulsory social insurance against accidents at work and occupational diseases: Federal Law No. 125-FZ of July 24, 1998 // Collection of Legislation of the Russian Federation. 1998. N 31. Art. 3803.

See: Russian Federation. Laws. On the general principles of the organization of local self-government in the Russian Federation: federal law of October 6, 2003 N 131-FZ // Collection of Legislation of the Russian Federation.2003. N 40. Art. 3822.

See: Current Archive of the Environmental Protection Department of the Municipal Formation of Novy Urengoy.

See: Yamalo-Nenets Autonomous Okrug. YaNAO administration. On the approval of the departmental target program "Scientific support of measures to ensure a stable and safe environmental situation on the territory of the Yamalo-Nenets Autonomous Okrug in the conditions of active technogenic impact in the period 2009-2011: Resolution of the YaNAO Administration of December 25, 2008 N 720-A [Electronic resource] / Access mode:// #"#_ftnref33" name="_ftn33" title=""> Cit.: Rational nature management should be understood as a system of public events aimed at systematic maintenance and enhancement of natural resources, improvement of the production bases of soil productivity, water, air, plants, animals and other factors of production.

See: Constitution of the Russian Federation. 1993.Art.15.

See: Russian Federation. Laws. On the general principles of the organization of legislative (representative) and executive bodies of state power of the constituent entities of the Russian Federation: federal law of October 6, 1999 N 184-FZ (as amended on April 5, 2010) // Collection of Legislation of the Russian Federation. 1999. N 42. Art. 5005.

See: Russian Federation. Laws. On the general principles of organizing local self-government in the Russian Federation: Federal Law No. 131-FZ of October 6, 2003 // Collection of Legislation of the Russian Federation. 2003. N 40. Art. 3822.

See: Charter of the Moscow Region of Novy Urengoy. Approved By the decision of the City Assembly dated December 28, 1998 No. 147 // Pravda Severa. March 31st 2007. S. 4-11.

See: Russian Federation. Laws. On Environmental Protection: Federal Law No. 7-FZ of January 10, 2002 // Rossiyskaya Gazeta. N 6. 2002.

See: Municipal formation of Novy Urengoy. Mayor. On the environmental improvement of the city of Novy Urengoy in 2009 - 2011: the order of the Head of the Administration of the municipality of Novy Urengoy dated July 5, 2009 N 161-Pr // Pravda Severa. 2009. 02.07.

See: Ibid.

See: Ecological policy of OAO GazpromDobychaUrengoy [Electronic resource] / Access mode:// #"#_ftnref42" name="_ftn42" title=""> See: Galaktionova L. Our home is the habitat // Pravda Severa. 2009. 15.06. C. 2.

See: Galaktionova L. Let's live cleaner and quieter // Pravda Severa. 2008. 12.04. C. 1.

Ecological situation and ecological problems of cities

The state of the environment is one of the most important parameters that determine the quality of life of the population in the territory of the municipality.

and aimed at protecting the environment from adverse man-made impacts. The implementation of an effective municipal environmental policy has a positive effect on the environmental situation not only in a particular municipality, but also in the region and in the state as a whole. And vice versa, a municipality with an unfavorable environmental situation, as a subsystem of the state and the region, has the right to count on the participation of the state and on attracting its resource capabilities to correct this or that situation.

Functions of the municipal construction management body

For all objects in the territory of the municipality

In addition, for facilities built with the involvement of budgetary funds

Participation in the development of annual

and long-term plans for capital construction in the territory

Participation in the selection of sites for construction, transfer to general contractors

organizations documents on the allocation of land

Control and technical supervision of construction (together with the bodies of the State Architectural Control)

Participation in the work of state acceptance commissions

Providing construction with design and estimate documentation

Creation of a geodetic basis for construction

Registration of contracts with the general contractor, equipment suppliers, commissioning organizations

Securing Construction Financing

Provision of construction equipment, the supply of which is entrusted to the customer

Transfer of commissioned facilities to operating organizations

Rice. 4.7.5. Functions of the municipal construction management body

Municipal government system

The main environmental pollutants in municipal territories are shown in fig. 4.8.1

Major environmental pollutants

Enterprises engaged in the extraction and processing of minerals

Energy companies

industries using

Industrial enterprises with backward technology

Urban transport

Rice. 4.8.1. The main environmental pollutants in the territory of the municipality

Industrial enterprises using backward technologies that do not provide for the integrated and waste-free (or low-waste) use of all types of resources pollute the air basin, water bodies and the soil layer with various types of industrial waste. This is especially true for enterprises in the chemical, metallurgical and some other industries. At the same time, it is impossible not to note the desire of individual economic entities to get the maximum from the use of natural resources of the respective territories with a minimum of responsibility for the state of the natural environment.

Urban transport is a particularly dangerous air pollutant, since it operates in close proximity to residential areas and crowded places.

The ecological situation is characterized by the following components.

The ecological capacity of the territory of the municipality, which is understood as the ability of nature to overcome adverse impacts and ensure the reproduction of natural systems existing in this territory. A single criterion of ecological capacity has not been developed, but a system of criteria can be used to determine, although indicative, but having real foundations, the limits of the permissible total anthropogenic load on specific territories. The assessment of the ecological capacity of the territory is the task of special studies and services, and the application of the results

Chapter 4

tats received by these services acts as one of the most important elements of municipal environmental policy.

Influence of the ecological situation on the health of the population. It strongly depends on the ecological situation in general and is itself an indicator of the quality of the local habitat. The connection of many diseases with the quality of the environment has been irrefutably proven.

A set of factors that determine the specific environmental situation in the municipality. This list is specific to each locality, although it consists of a combination of common factors. Revealing and taking into account the specific factors that caused this or that environmental situation in the municipality is a necessary condition for the development of municipal environmental policy. For this purpose, the structure of the economy of the municipality is analyzed, trends in the resource intensity of enterprises are determined, the volumes of waste entering the environment, the size of territories requiring recultivation, the level of concentration of anthropogenic impacts is assessed, local reserves (or their absence) are identified when characterizing the ecological capacity of territories, research and ranking of the main causes of environmental problems.