The architecture of the institutions of the state budget policy

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The architecture of the institutions of the state budget policy

Fiscal policy, as on the one hand the financial base to ensure socio-economic development of the country and an effective catalyst for the development of the national economy, translates a number of problems and inconsistencies with the real needs of a modern economy in part to the significant shortage of oil and gas revenues, composition and structure of the budget expenditures that are not optimal to stimulate economic development, lack of financial-economic feasibility management decisions, as a rule, leading to an increase in expenditure commitments, the complexity of intergovernmental relations, regular and piecemeal changes in budget and tax legislation.

The above indicates the need for an effective institutional framework of fiscal policy aggregate changes in the economy, in order to maintain a sufficient level of financial stability and expansion of competitive potential of the territories and the state as a whole.

In state policy documents identified the main tasks focused on ensuring long-term balance of the budget system, improve the quality of public Finance management, namely:

- coordination of strategic and budget planning;

- regulatory and methodological support of the budget process in the Russian Federation, organization of planning and execution of the Federal budget, cash servicing of budgets of the budgetary system of the Russian Federation, of keeping the budget accounting and the formation of budgetary reporting;

- increasing the openness and transparency of public Finance management;

- ensuring timely control and supervision in the financial and budgetary sphere;

- ensuring the functioning of the tax system of the Russian Federation;

- improving the efficiency of public debt management and state financial assets of the Russian Federation State program of the Russian Federation "public Finance Management and regulation of financial markets" publication date 15.05.2014 city.

We believe that full implementation of these tasks, a possible way of formation and development of modern financial institutions focused in its functioning to the best international practices, in terms of implementing institutions, which will create a stable financial environment for sustainable economic growth, improve the level and quality of life, compliance of state and municipal finance the world's standards of accountability and transparency.

The world scientific community, recognized the importance and significance of economic institutions in socio - economic development of countries, there is no unanimity in the interpretation of the concepts of "institution", "institutional change", and "institutional environment", "institutional framework", "institutional order", "institutional matrix".

Just the opinion of R. M. Nureyev, who understands the institution as "rules of the game in society, or human bounding box that organize the relationship between people and the system of measures for ensuring their implementation. They create the structure of the motives of human activities, reduce uncertainty, and to organize everyday life". Institutional Economics: A. Oleynik. - M.: INFRA-M, 2005.704p.- (р.694) Based on this perspective, economic institutions, realizing its functionality through the company ensure relationships between the population and government within the established system of norms and rules than on the one hand restrict and stimulate the actions of entities and on the other allow for a rational choice and plan of action of the environment.

The above authors consider institutions as a collective set of formal and informal norms and rules, the extent and level of compliance which is directly related to the level of socio-economic development of the country and, consequently, the higher the level of socio-economic development, the higher the quality of the institutional environment.

With the author's position, institutions are useful to consider in a broader sense, as a set of mechanisms, rules and regulations, ensuring the distribution and redistribution of resources in the economy, the formation of the investment climate, ensuring effective employment of the population with the aim of increasing economic efficiency.

In the theory of institutional changes of D. North, "institutions and institutional environment are treated as a group of individuals involved in the target activity, the limitations of the institutional structure determine the diversity of opportunities, values, formal and informal norms influencing the balance of incentives in the activities and determine the minimum consensus between the participants of the interaction, which confirms the scientific hypothesis j. Potts, about the Institute as a meso - concept. Interaction between all actors within the institutional environment is based on the institutional order as a system component inter relationships, defining the fundamentals in the implementation of economic activities, regardless of sectors and activities. Note that institutional changes affect the system of interaction between participants of the institutional environment and are subject to dynamic change, in terms of formal and informal rules, and ways and methods of enforcement of rules and restrictions of constituent entities of the institutional environment.

The study of the organization of the institutional order, the institutional environment in the context of sustainable development "balance" dedicated to the works of L. Walras Walras, L. Elements d'ekonomie politique pure, ou theorie de la richess sociale (Elements of Pure, or the Theory of Social Welth)/L.Walras/ - Lausanne:Corbaz, 1874. P.-85., in which the author describes the equilibrium economy as the equality of price and quantity ratio of supply and demand , R. Coase Coase Ronald H (1991) «The Institutional Structure of Production». Alfred Nobel Memorial Prize Lecture in Economic Sciences. Nobel Foundation 12 pages. Reprint in American Economic Review, 1992, 82(4): 713-719. , who in his writings regarding the nature and causes of transaction costs came to a fair conclusion that the initial allocation state of legal rights has a significant impact on the efficiency of the economic system, what was the main scientific paradigm establishes a clear specification of property rights, the establishment of organizational structures providing for the exchange and comparison occurring in the process of operation costs.

With the position of the representatives of the neoclassical theory, the amount of state intervention in the functioning of the market in order to achieve optimally fair distribution of property rights characterized by low levels of effectiveness, rationality and efficiency are called "market failures". In which, economic agents do not have incentives to production and reproduction questioning the rule of law. In turn, states that do not ensure equitable distribution of resources and stimulate the economic actors of the informal norms that have local character and creates antagonisticski attitude to the law.

The analysis argues that the state even as they seek an equitable distribution of resources, the probability of achievement of the opposite main goal, which increases the local share of economic transactions and spread of the criminal subculture. Therefore, attempts of direct regulatory influence of the state in the correction of social outcomes of market processes are doomed to "failure of the market".

Fair to say the supporters of the constitutional economics of John. Buchanan, V., Winberg, L. V. Tambovtsev, the regulatory impact of the state on the market economy must be carried out in accordance with the limits acceptable from the standpoint of justice values of efficiency, rationality and efficiency.

The participation of the state in a market economy it is expedient to reduce to legislative support and control over the observance of boundaries between spheres of activity, not to develop boundaries, criteria, thereby creating an incentive for self-use of economic entities of adequate criteria equitable use of resources.

Note that the interference criteria of justice does not allow to create a universal criterion, therefore, the boundaries of criteria it is advisable to install only in relation to specific areas, with the result that the role of the state as an institutional regulator is not to "market failures", but to "the actor and the guarantor of the distribution of the spheres".

Modern evolutionary economic theory actualizes the issues related to the evolution of institutions in shaping and defining the standards, rules, and constraints in the functioning of economic agents ' effectiveness, rationality and efficiency. Denote that the procedure of selection and selection institutions do not necessarily lead to the formation of an effective institutional organization of the economy, contributing to the expansion of socioeconomic exchanges and the process of adaptation of introduced institutions possible the phenomenon of exaptation. Exaptation of institutions, in fact, represents the situation when an embedded Institute in the evolution of the institutional organization of the economy is able to perform previously planned, which partly explains the continued operation of inefficient and sub-optimal economic institutions.

Consequently, the type of government, determines the peculiarities of functioning of the institutional mechanism which determines the interaction of the basic and complementary institutes, defining the vector of development of the main socio-economic processes in society. Basic institutions determine the possible trajectory of development of institutional environment, forming the basis for the functioning complementary institutions. Each society has its own institutional structure, represented by a combination of institutions and their functional characteristics. fiscal financial stability competitive

The role of the state as the basic actor shaping the institutional structure of the state increasingly focuses on the formation of effective institutions of financial decision-making and reducing transaction costs and meet the following criteria:

- correspondence between the objectives of creation of formal institutions and their performance;

- the efficiency of formal financial institutions from the perspective of implementation of tasks and monitoring their execution.

With the author's point of view, institutional change and institutional order, are the components of the concept of institutional matrices, which we need to understand the system of interaction of the basic (formal) and complementary (informal) institutions and mechanisms of state regulation. Each type of state was characterized by a system of interdependent and mutually reinforcing institutions, that is institutional matrix. Therefore, identify the institutional matrix of the States determining the content and direction of socio-economic development of society is a current research problem the optimal level of state regulatory impact on the socio-economic processes of the country.

Let us denote that the optimal amount of regulatory impact does not depend on the parameters of the market, and the type of the institutional matrix because the state is a managerial structure is functionally related to the universal and non-local elements of the institutional framework designed for implementation of powers and protection of the rights of ownership.

In Economics we distinguish the following qualitatively different institutional matrix of X - and Y - matrix are different sub-systems of society (spheres) forming the institutions (table 1).

It represents the areas of the institutional matrix leads to the conclusion that in modern Russia dominates the X - matrix, the fundamental characteristics of which are the following: functioning of the institutions characteristic of a unitary centralized states, but an alternative to the institutions of the state Federal structure with the redistribution of the economy (accumulation-combining-distribution), cooperation, joint work and proportionality Kirdina S. G. Institutional matrices and development in Russia: an introduction to X-Y-theory. Edition 3, revised, enlarged and illustrated. -- SPb. : Nestor-History, 2014. -- 468 p..

Table 1 - Comparative characteristics of the subsystems of society X - and Y - matrices

In the context of ongoing studies budget system is seen as a major element of the institutional matrix that organizes the movement of financial flows between the center, regions, economic entities and population with the aim of harmonizing local and national interests in the socio-economic development of the country. What determines the feasibility of the study, the institutional structure of the budget system in the territorial projection.

The institutional structure of the budget system reflects an ordered set of financial institutions located in the dynamic development based on formal and informal rules of the show and complement in the interaction process. We believe that institutional matrix of the functioning of the budget system, is the fundamental component that determines the regularity in the implementation of fiscal policy agents in all areas of activity. Consequently, the institutional matrix of the budgetary system (grounded its budgetary institutions formed during the evolution of the economy in the direction of complementarity), affects the economic mechanism of interrelations of the state, affecting socio-economic development of all spheres of the country.

This has allowed to formulate the author's definition of the institutional matrix of the budgetary system of the Russian Federation, under which we propose to understand a system component of the economic order of the country, carrying out budget activities in a formalized complex (basic and complementary institutions, institutional structures and rules of control over the functioning of institutions and the institutional toolkit implementation) and informal institutions (the standards and stereotypes of behavior, take subjective decisions) and their mechanisms of state regulation, promote long-term balance and stability of the budgetary system with the compulsory execution of the state obligations all the institutions of the budget system.

In fact, the institutional matrix of modern budgetary system of the Russian Federation, is quarto- holistic form consisting of a set of institutions functioning in a particular relationship and providing alternative and combined directions of socio-economic development of the country. The composition and architecture of the institutions of the budget system includes the following main groups of institutions (picture 1):

Under the proposed legal institutions to understand the institutions of legislative, judicial and administrative systems ensuring the rights and freedoms of citizens and protection of property rights. In countries with developed legal institutions are characterized by a high degree of independence of the legislative and judicial system, the legitimacy of the functioning of the administrative system. The qualitative characteristics of the functioning of legal institutions have a significant impact on key features of the national investment climate that determines the efficiency of operation of existing business entities, as well as attracting domestic and foreign investment innovation on the market.

Legal institutions of direct and indirect influence on efficiency of functioning of budgetary system, the adoption of rational management decisions at the Federal, regional and local levels. The implementation of task budget task is accompanied by the emergence of a complex of rights and obligations between subjects of budgetary relations, a clear legal regulation which shall be implemented through the functioning of the legal institutions of the budgetary system of the country. Regulatory institutions of the budget system regulate, and control over the activities of economic entities in a fair and rational distribution and redistribution of resources, taking into account the interests of the state and business entities. From a quality and effective functioning of regulatory institutions depends on economic efficiency and investment attractiveness of the private sector.

The institutions of human capital development, in its essence determine the functioning of the main recipients of budget funds implementing major social programs of the state in education, health and social security.

Post-industrial stage of economic development of society, contributes to the increase of the role and importance of the human factor, shows increased requirements to the quality of life of the population, and reflects performance of a number of basic social institutions (local government, healthcare, education, non-governmental organizations).

Qualitative characteristics of the functioning of the institutions of human capital development have a significant impact the quality and level of life of the population, as well as accessibility to all segments of the population to a minimum set of social services guaranteed by the state.

The institutions of economic coordination and distribution of financial risks ensure the accumulation, mobilization and consolidation saving financial resources in all spheres and echelons of the financial system, coordination of investors, to reduce transaction costs. Denote that the quality and efficiency of development institutions of economic coordination and distribution of financial resources depends on the efficiency of the innovation process and dynamics of innovation development of economy. We believe that the study of the development of the institutional matrix of the budgetary system of the territory it is advisable to consider in the context of preserving stability in the country established institutional order from a position of complementarity of financial institutions. We believe that the basis of the organization interaction between the basic (formal) and informal institutions based on the following methods of interaction:

- complementary - determining interaction of an ordered nature to ensure the integrity of internal differentiation and self-development of economic systems in the process of functioning;

- matching - determining a consistent, legally regulated, interaction between the participants of the budgetary system in terms of flow of financial resources;

- competitive - defining interaction with the creation of territories of priority development drivers that stimulate the creation of effective competitive environment;

- substitute - indicates the possibility of substitution of financial instruments of state regulatory action for the purpose of increasing their effectiveness adequate to specific socio-economic situation in the country.

Note that the formation of the institutional environment of budgetary relations has a significant influence the state, shaping and building a strategic vector of development with reference to formal and informal institutions, using modern tools for implementation of goals and objectives. Any fiscal transformation implemented in the context of the government socio-economic policies form the basic institutional guidelines for behavior of economic entities, must account for institutional inertia in order to preserve the efficiency of the rationality and effectiveness of economic policies.

Thus, the government of the Russian Federation in the document "Main directions of budget policy for 2016 and the planning period of 2017 and 2018" dated July 14, 2015. define the main goals and objective to strengthen the role of the budget in structural changes in the economy, the long-term sustainability of the budget system and improving the efficiency of public Finance management, the achievement of which is intended to improve the quality of administration of the centralized financial system of the country.

The analysis of the architecture institutions of the state budgetary policy allows to formulate the following conclusions:

- scientific differences between the various currents of research to the fact state financial regulation of the market economy, and how to determine the optimal directions of state influence on market transactions;

- the amount of government intervention depends on the characteristics of the institutional environment of state institutions and procedures for their exaptation in the market system;

- effective development of modern budgetary system of Russia depends on the selection and functioning of the modern financial institutions as the main backbone of the elements forming the regulatory base, a set of rules of economic behavior in the allocation of resources from the use of property between the economic and social spheres, leveling the uncertainty in the socio-economic development of the country.

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