Budget policy of the Russian Federation: concept and main directions at the present stage. Main directions of budget policy in the Russian Federation Directions of budget policy and budget regulation

Budget device It is the final “ridge” on which the entire system of state administration is built, therefore the budgetary structure depends on the state structure of the country.

According to the degree of distribution of power, it is divided into : unitary, federal and confederal.

Unitary state characterized by single authorities in a single constitution, a single legislation, a single monetary system and the components of such a state are not subject to signs of sovereignty.

Federal state has its own autonomy and has political independence within its competence.

Confederate state (or union)– uh. a union of sovereign states created to achieve certain goals.

Principles of the budget system :

1)unity of the budget. systems– is provided by a unified legal framework and is based on the interaction of budgets of all levels in terms of income and expenses;

2)independence of budgets– ensuring the presence of our own sources of income and the right to determine the direction of their use;

3)transparency– all budget laws are published in the media;

4)balanced budgets– means that the volume of budgeted expenses must correspond to the total volume of budget revenues and receipts from sources of financing the budget deficit;

5)unity of the box office– all cash receipts were transferred to a single budget account from which all budget expenses were made.

6)completeness– implemented through a complete determination of all income sources and directions for each level of the budget system;

7)budget credibility– means the reliability of indicators, forecasts, social-ecological development of the corresponding territory;

8)the principle of differentiation between income and expenditure, sources of financing the budget deficit means assigning the corresponding types of income, expenses, sources of financing to the relevant authorities;

9)effectiveness and efficiency of budget use– means that when drawing up and executing budgets, authorities and budget recipients must proceed from the need to achieve the specified results using the determined volume of the budget;

10)general budget coverage means that all expenses are covered by a certain volume of income and sources of financing budget deficits;

Subsidies– allocation of budgetary funds from one budget to another to cover current expenses.

Subsidies– budgetary funds provided for the purpose of co-financing expenditure obligations.

Subvention– budget resources provided for the implementation of certain targeted expenses.

11)targeting and targeted nature of the budget means that budgetary resources are allocated at the disposal of specific budget recipients indicating the direction of their financing;

12)jurisdiction of expenditure budgets means that recipients of budgetary funds have the right to receive budgetary allocations and limits of obligations only from the main managers of budgetary funds.

Budget allocations- budget funds provided for by the budget schedule to the recipient or manager of budget funds.

Interbudgetary transfers– funds provided by one budget to another budget of the budget system of the Russian Federation.

That., the implementation of the principles of building a budget system is determined by the need to implement public, social and economic programs.

Budget system of Russia – uh. the totality of the federal budget, budgets of constituent entities of the Russian Federation, local budgets and budgets of state extra-budgetary funds, based on economic relations and legal norms.

The budget system of the Russian Federation includes three levels :

1) federal budget and federal extra-budgetary funds;

2)budgets of the constituent entities of the Russian Federation and territorial extra-budgetary funds(budget of republics, territories, regions, budget of autonomous regions and budget of the cities of Moscow and St. Petersburg, Sevastopol (new: now there are 85 subjects in the Russian Federation: new sub. Federal Republic of Crimea, city of Sevastopol);

3)Local budgets– uh. budgets of districts, cities, rural, townships, urban districts and intra-city budgets of Moscow and St. Petersburg, Sevastopol.

Budget half – uh. real obligations that the state can assume. It is an integral part of the financial regiment, which reflects the interests and functions of the state.

The budget policy of the Russian Federation plays a decisive role in shaping the living conditions of citizens and the development of the country . The ultimate goal of fiscal policy is to improve the quality of life of the population.

For this it is necessary :

1.creating conditions for future development, i.e. development of natural and scientific potential, competitive education system, formation of an innovative environment, support of advanced technologies.

2.ensuring defense capability and security, i.e. ensuring high combat readiness of the armed forces, their technical re-equipment, combating terrorism, preventing local conflicts, eliminating the consequences of emergency situations.

3.effectiveness of legal regulation– uh. the ability of the state to pass fair laws and ensure their implementation, along with financial security. In order to meet these expectations, the most important tasks of the new stage of the budget policy are:

a) priority of long-term and medium-term budgeting;

b) introduction of the program-target principle in the budget process;

c) increasing the efficiency of using budget funds;

d)increasing energy efficiency in the public sector;

4)openness and accessibility of information on the implementation of expenditure operations at all levels of the budget system.

This was largely the result of consistent anti-crisis actions by the state aimed at maintaining the stability of the budgetary and financial system and supporting the sectors of the economy most affected by the crisis.

And what is very important, it was possible to maintain social stability, mitigate the social consequences of the crisis, and ensure, even in difficult economic conditions, a real increase in the volume of state support for the least protected categories of citizens, primarily pensioners. The implementation of active measures in the labor market made it possible to stabilize the unemployment rate.

The competent use of budget policy instruments made it possible to create the financial support necessary for the implementation of such measures.

The crisis has highlighted the main problem that makes the Russian economy vulnerable to fluctuations in world markets, and in general to changes in the global economic environment. The country's economy remains dependent on the situation in the commodity markets. Sufficient conditions and incentives have not yet been created for the introduction and development of modern technologies, increasing the energy and environmental efficiency of the economy and labor productivity, for the development of economic sectors and industries that produce products with a high share of added value, for the implementation of innovative projects, and in general for modernization socio-economic system of the country.

These features of the Russian economy determine a wide range of challenges and risks for its further development.

The most important of them are associated with the danger that the short-term improvement in the economic situation that has become customary as a result of the action of predominantly extensive and temporary factors (rising oil prices, etc.) will lead, as has happened many times in the past, to unjustified complacency and will not allow the use of a chance to renew and modernize the country's economy.

Today, when the Russian economy has to a certain extent managed to overcome crisis trends, it is necessary to concentrate on new tasks.

II. MAIN GOALS AND OBJECTIVES OF BUDGET POLICY FOR 2011 – 2013 AND FURTHER PERSPECTIVE

Budget policy as an integral part of economic policy should be aimed at carrying out a comprehensive modernization of the economy, creating conditions for increasing its efficiency and competitiveness, long-term sustainable development, improving the investment climate, and achieving specific results.

A clear understanding of the consequences of implementing any fiscal policy measures is necessary in terms of their impact on the pace of progress towards achieving the set goals.

New spending commitments should only be accepted on the basis of a thorough assessment of their effectiveness and if resources are available to ensure their implementation within accepted budgetary constraints.

Based on this, it is necessary to solve the following problems.

First. Ensuring macroeconomic stability, which includes, among other things, a balanced budget, a consistent reduction in the budget deficit, and predictable inflation parameters. Already in the previous budget message the task of limiting and consistently reducing the size of the deficit was set. It remains relevant, especially in conditions when oil prices are at a fairly high level and the economy is showing some signs of recovery.

I propose to proceed from the need to reduce the federal budget deficit by at least two times in 2013 compared to the 2009 level.

In the medium term, it is necessary to limit the use of oil and gas revenues, focusing on ensuring a balanced federal budget with reasonable forecast estimates of the cost of oil. Second. Coordination of long-term strategic and budget planning.

Strategic planning remains poorly linked to budget planning; there is no reliable assessment of the entire set of instruments (budgetary, tax, tariff, customs, regulatory) in relation to their role in achieving the stated goals of public policy, as well as an assessment of all ongoing expenditure obligations.

It is necessary to soberly assess the priority of strategic tasks, comparing them with real opportunities. Only an integrated approach to making strategic decisions that fully takes into account the lessons of the crisis, new internal and external conditions for the development of the Russian economy, will make it possible to redistribute resources in favor of effective directions of public policy.

During the crisis period, the task of drawing up long-term financial development plans faded into the background. With the normalization of economic life, it is necessary to return to the development of long-term economic development plans, which should also include scenarios for a possible re-deterioration of the economic situation.

Developing a long-term fiscal strategy will require expanding the horizon and increasing the reliability of economic forecasts, which must be based on reasonable estimates of market parameters and macroeconomic indicators that depend on budget expenditures.

It is necessary to introduce clear rules for assessing the volume of existing expenditure obligations and procedures for accepting new expenditure obligations, providing for increased responsibility for the reliability of their financial and economic justification.

The practice of underestimating their financial assessment when considering new initiatives, followed by an annual increase in costs for decisions that have already been made and, it would seem, carefully justified, is unacceptable.

Any proposed new solution must be analyzed from the point of view of its financial support and contribution to achieving the strategic development goals of the country.

Third. Ensuring that the budget system is focused on achieving specific results.

The Government of the Russian Federation is working to create a set of interrelated measures to improve the efficiency of the entire public administration system. These issues are reflected in the Program for Increasing the Efficiency of Budget Expenditures for the Period until 2012, which is based on program-target principles for the activities of executive authorities at all levels, including expanding their independence and increasing responsibility for decisions made. Since 2012, a significant part of the federal budget must be presented in the form of a set of long-term government programs.

Changes in the legal status of state and municipal institutions are aimed at increasing the accessibility and quality of state and municipal services (the corresponding federal law comes into force on January 1, 2011 with a transition period until July 1, 2012).

The practical implementation of these decisions will finally allow us to get away from paying only for the very fact of the institution’s existence, regardless of the results of its work.

The Government of the Russian Federation, regional and local administrations are obliged to ensure the systematic introduction of new principles for the activities of state and municipal institutions and their real impact for citizens.

Fourth. Development and implementation of innovation support tools.

It is necessary to begin work on the gradual winding down of forced anti-crisis measures. During the crisis, the state provided serious support to many sectors of the economy and specific enterprises; various measures of this support continue to be implemented today. However, state support on the previous preferential terms cannot be provided for a long time.

The state should not replace the private sector or choose promising areas of development for it. Taking this into account, the preferred form of support should be co-financing of certain projects or stimulation of activities that contribute to modernization within the framework of public-private partnerships.

In the next three years, it is necessary to ensure an integrated approach to the formation of the innovation system and the investment environment as a whole, to create conditions for the full cycle of innovation development, including by ensuring macroeconomic stability, protecting competition and property rights, and eliminating administrative barriers.

At the same time, it is necessary to develop and put into practice specific mechanisms for introducing and supporting innovative technologies, primarily within the framework of projects in such areas as energy efficiency, medical technology and pharmaceuticals, space and telecommunications, nuclear technologies, strategic computer technologies and software.

The project approach to the implementation of the modernization strategy should be reflected in the activities of the Skolkovo innovation center, in relation to which it is necessary to ensure, in the shortest possible time, the creation of a special legal regime for the implementation of scientific, entrepreneurial and other activities, maximally facilitating the conditions for the implementation of innovative developments for participants in this project.

At the same time, support for innovation should not be limited to the implementation of individual projects. Each government program must meet the requirements for creating an innovative environment, including the development of human capital, the formation of government demand for innovative products, and improvement of the investment climate.

It is necessary to increase the efficiency of using public investments. Along with the tasks for which the state is fully responsible, they should become a catalyst for investing private sector funds in those areas and projects where, simultaneously with the use of budgetary funds, it is possible and advisable to attract extra-budgetary resources. At the same time, it is worth using public-private partnership mechanisms more intensively.

The privatization of federal property should be more actively carried out, including at the expense of large investment-attractive companies. The goal is not only to increase the flow of funds into the budget, but also to ensure support for competition and a favorable investment climate, without which one cannot count on large-scale improvements in the field of modernization and innovative development of the economy.

To increase the competitiveness of Russian products on the foreign market, it is necessary to actively use the potential of trade missions, improve the system of providing export credit, export insurance and government guarantees. First of all, this concerns the export of products from high-tech industries, nuclear and power engineering, as well as military equipment.

Fifth. Improving the quality of human capital.

No modernization is possible without qualified specialists, talented scientists, without quality education and constant professional training.

It is necessary to strive to grow the scientific potential of our country, accumulate intellectual property, ensure, for these purposes, the continuity of generations in the field of scientific research and technological development, attract and retain young people in it.

In addition to developing our own scientific schools, attention should be paid to attracting highly qualified foreign specialists, as well as promoting the qualifications of Russian specialists in foreign educational institutions.

Serious attention should be paid to both education and improving the health of citizens, creating a healthy lifestyle, and creating conditions for increasing labor and creative activity.

Within the framework of the government programs being formed, work should continue on priority national projects, the implementation mechanisms of which have proven their effectiveness.

III. MAIN PRIORITIES OF BUDGET EXPENDITURES

When forming federal budget expenditures for 2011-2013, it is proposed to pay special attention to the following key issues.

First. Increasing the efficiency of social protection of the population.

The state will ensure the unconditional fulfillment of all legally established obligations for the payment of social benefits and compensation.

At the same time, the social protection system should be reoriented to support families with incomes below the subsistence level, including taking into account regional characteristics. In this regard, I consider it possible to expand the powers of the constituent entities of the Russian Federation in the formation and application of social policy instruments.

Serious long-term problems face the pension system. According to demographic forecasts, in the next 20 years we will see a significant reduction in the working age population and an increase in the older population.

It is necessary to develop a clear program for the long-term development of the pension system, ensuring a socially acceptable level of pensions compared to wages (at least within the limits of the amount for which social contributions are calculated) and at the same time excluding both a further increase in the rate of social contributions and an increase in the deficit pension system.

Second. Assessing the possibilities of increasing wage funds for public sector workers and the salaries of military personnel.

Taking into account the dynamics of wages in the economy and the decline in inflation, I consider it possible to increase by 6.5 percent from April 1, 2011, the monetary allowance of military personnel and persons equivalent to them, from June 1, 2011 - the wage funds of employees of federal government institutions (or the volume of subsidies to budgetary and autonomous institutions in the appropriate amount) and the salary of judges and prosecutors, and from September 1, 2011 - a scholarship fund.

I propose that the Government of the Russian Federation consider the issue of mechanisms for increasing the efficiency of federal civil servants, including the possibility of reducing their number within three years by up to 20 percent, while leaving up to 50 percent of budget savings at the disposal of federal government bodies.

Third. Development of education, health and social services.

Both the improvement of the quality of education and the connection between education and economic modernization, meeting the needs of the labor market for qualified specialists not only with higher vocational education, but also with secondary and primary vocational education must be ensured.

Within the framework of relevant state programs, it is necessary to ensure the implementation of the national educational initiative “Our New School”, continue the development of federal universities and national research universities, and also consolidate the positive results of demographic policy, achieved largely thanks to the implementation of the national project “Health”.

I consider work aimed at creating a healthy lifestyle and the development of mass physical culture and sports to be an important investment in future development.

When planning social budget expenditures, it is necessary to provide funds for the implementation of measures to ensure the comprehensive safety of social facilities, primarily organizations providing services to children (including the removal of school buildings from disrepair) and elderly citizens, as well as to ensure full access for people with disabilities to facilities and services social sphere. Fourth. Ensuring the country's defense capability.

Financing expenditures on national defense should make it possible to solve all the tasks facing the Armed Forces of the Russian Federation, including the purchase of new types of weapons, provision of combat training, indexation and reform of the pay of military personnel (taking into account the reduction in their total number and improving the structure of the Armed Forces of the Russian Federation), implementation social guarantees for military personnel.

One of the priorities is to provide housing for the military. By the end of 2010, all previously undertaken obligations to provide needy military personnel with permanent housing must be fulfilled, and by 2012 - with service housing.

In 2011, the implementation of the State Armament Program for 2011–2020 should begin, ensuring a comprehensive re-equipment of troops with modern types of new systems and types of weapons and military equipment. A new federal target program for reforming the defense-industrial complex should be aimed at implementing the State Armament Program.

Fifth. Reform of internal affairs bodies. It is necessary to ensure increased efficiency of the activities of internal affairs bodies.

From 2012, financial support for the public security police will be provided entirely from the federal budget. Today it is necessary to prepare for such a serious change in the spending obligations of the Russian Federation and the constituent entities of the Russian Federation and the corresponding financial flows.

Sixth. Development of transport infrastructure.

The presence of a developed transport infrastructure is a necessary condition for economic growth and increased investment activity. Improving transport infrastructure with the introduction of modern innovative technologies continues to be one of the main tasks for the medium term.

At the same time, new approaches are needed to the implementation of infrastructure projects with the attraction of private investment, including under the terms of concluding life cycle contracts.

In this regard, one of the priority areas of budget policy should be sustainable financial support for the maintenance and development of highways. This requires a detailed study of all issues, including those related to the creation of a system of road funds, taking into account the criteria of both social justice and economic efficiency.

It is necessary to ensure the functioning of a comprehensive system of public safety in transport, primarily in the subway and other types of public transport.

Seventh. Optimizing the scale and forms of economic support.

The absolute priority of budget expenditures to support the economy should be the support of innovative projects and the most important scientific developments aimed at ensuring the modernization and technological development of the economy, increasing its energy efficiency (projects approved by the Commission under the President of the Russian Federation for the modernization and technological development of the Russian economy).

The mechanism for allocating budget grants to support domestic innovation projects should be focused on ensuring national priorities.

At the same time, a business must be financed primarily through the sale of its goods and services, and budget support can only be a stimulating, multiplicative measure and should not provide the bulk of financing.

IV. MAIN DIRECTIONS OF TAX POLICY AND FORMATION OF REVENUE OF THE BUDGET SYSTEM

It is necessary to look for opportunities to increase budget system revenues. At the same time, it must be understood that revenue growth must be ensured primarily through improving the administration of existing taxes. At the same time, in certain areas it is possible to optimize taxation in order to stimulate and expand business activities, primarily innovative ones.

The state's tax policy in the long term should be aimed at ensuring the conditions for innovative development of the economy: motivating the production of new goods, works (services) and stimulating demand for them.

In this regard, action is needed in the following key areas.

First, we should support companies where intellectual work is core.

A significant part of the tax burden in such companies falls on the wage fund. Therefore, to support them, the aggregate rate of insurance premiums should be reduced for the period until 2015, and for certain categories of organizations until 2020, to 14 percent within the limits of insured annual earnings.

Secondly, it is necessary to create additional conditions for enhancing innovation activities.

In particular, when determining the tax base for corporate income tax, one should take into account the costs of taxpayers for the acquisition of rights to use computer programs and databases under sublicense agreements, as well as one-time payments for the use of rights to the results of intellectual activity and means of individualization.

There is a reserve of support for innovation in the economy and in depreciation policy. For calculating depreciation, not only the physical service life of fixed assets is important, but also other factors, for example, the speed of technology development, which forces the renewal of fixed assets and their decommissioning before the end of the physical service life.

Thirdly, in order to stimulate the implementation of innovative activities in the Skolkovo innovation center, the following benefits should be provided for project participants: mandatory insurance contributions must be paid by project participants at a rate of 14 percent, income tax, corporate property tax and land tax - at the rate 0 percent. As for value added tax, exemption from its payment should be carried out depending on the choice of the taxpayer.

These benefits must be valid for project participants for 10 years from the date of their registration or until the total profit received by the organization exceeds 300 million rubles from the beginning of the year following the year in which the amount of revenue received by such organization exceeded 1 billion rubles.

Fourthly, stimulation of energy saving and rational use of natural resources is required.

In particular, it is necessary to more actively use such public policy instruments as accelerated depreciation of introduced energy-efficient equipment and the provision of investment tax credits.

To ensure the introduction of new technologies into the economy, it is advisable to exempt organizations operating on energy-efficient equipment from property tax for a period of 3 years from the date of its commissioning. Since this tax is a regional tax, the introduction of additional federal benefits should be offset by the abolition of other benefits currently applied.

Fifthly, to develop the social sphere it is necessary to attract private investment in the healthcare and education systems. For these purposes, I propose to exempt organizations operating in these industries from income tax (at least until 2020), regardless of their form of ownership. At the same time, the corresponding benefits should apply only to those types of activities that are of a socially significant nature.

Sixth, in the medium term, it is necessary to further expand and strengthen the tax base of the budgets of the budget system of the Russian Federation. The circle of taxpayers should expand due to the emergence of new active business entities.

It is necessary to speed up preparations for the introduction of a real estate tax, including the formation of appropriate cadastres, and also develop a system that allows the collection of this tax based on the market value of taxable property with a non-taxable minimum for low-income families.

Seventh, the issues of improving tax administration remain relevant. It is necessary to take inventory and evaluate the effectiveness of the influence on social and economic processes of already adopted tax and customs incentive mechanisms.

Their implementation should not be allowed to be associated with complex procedures, which are largely of a reinsurance nature and significantly complicate the economic life of organizations and the daily life of citizens.

The reliability of tax control should not worsen the operating conditions of bona fide taxpayers.

The problem with value added tax reimbursement also remains. Once again, it is necessary to evaluate the “cost” of such administration for both the taxpayer and the state, paying attention first of all to the redundancy of “supporting documents” and the requirements for them.

Eighth, during this period, special attention should be paid to uninterrupted and effective work on the implementation of agreements reached within the customs union on the administration of indirect taxes and the distribution of import customs duties between member countries of the customs union.

V. POLICY IN THE SPHERE OF INTER-BUDGETARY RELATIONS

In the sphere of interbudgetary relations, it is necessary to ensure the expansion of the financial independence of the constituent entities of the Russian Federation and municipalities, the possibilities of their influence on strengthening the revenue base of regional and local budgets.

Increasing the level of financial support for the powers of state authorities of the constituent entities of the Russian Federation and local governments at the expense of their own revenues is a prerequisite for increasing the efficiency of spending regional and local taxes, increasing the stability and predictability of regional and local budget revenues and creating conditions for a closer linkage of taxes paid taxpayers to the relevant budgets, with the volume, quality and accessibility of the provided state or municipal services, and consequently, to increase the responsibility of state authorities and local governments for the results of their policies.

However, the problem of shortfall in budget revenues of the constituent entities of the Russian Federation and local budgets remains acute due to the tax benefits and exemptions provided for by federal legislation.

The Government of the Russian Federation should decide on ways to solve this problem, including developing a realistic plan for the phased abolition of such benefits.

One of the most important directions in creating their own tax base in financially insecure constituent entities of the Russian Federation and municipalities is the transition to independent regulation and collection of real estate taxes (instead of taxes on land and property).

The possibility of participation of local governments in the exercise of certain powers for the administration of local taxes in accordance with agreements concluded with tax authorities should be considered.

In order to strengthen the interest of local governments in the development of small and medium-sized businesses and, as a consequence, in order to increase revenues to local budgets, it seems advisable to assign to the budgets of municipal districts and urban districts a fixed amount of deductions from the tax levied in connection with the use of the simplified taxation system.

At the same time, it is necessary to consider the possibility of granting local governments the right to determine individual elements of this tax.

A serious adjustment to the principles of providing interbudgetary transfers will also be required.

It is advisable to move to providing interbudgetary transfers mainly in the form of subsidies to the budgets of the constituent entities of the Russian Federation, which is due to the need to ensure greater independence of the authorities of the constituent entities of the Russian Federation and increase their responsibility for the results of their activities.

Subjects of the Russian Federation and municipalities must develop regional programs to improve cost efficiency in 2010 and begin their implementation in 2011.

In this regard, it is necessary to develop a mechanism for monitoring the implementation of these programs and providing financial assistance to regional authorities, taking into account their results.

The idea of ​​consolidating subsidies provided to regions within the framework of government programs (in areas of joint jurisdiction) deserves attention. At the same time, it is advisable at the federal level to set specific goals for subsidy recipients, monitor the results of this work, and leave the choice of ways to achieve them to subsidy recipients.

It is necessary to provide for the possibility of providing additional financial assistance to constituent entities of the Russian Federation that are actively promoting the development of the innovative sector of the economy.

Conditions should be created to improve the financing of road construction in the constituent entities of the Russian Federation.

It is necessary to take a serious approach to improving the legal status of state institutions of the constituent entities of the Russian Federation and municipal institutions, so that as a result the quality of the state and municipal services they provide actually improves, and the costs for these purposes are optimal.

The work is not easy, and much needs to change both in the organization of the activities of such institutions and their financing, and in the minds of those who provide such services. The Government of the Russian Federation needs to methodologically assist government bodies of the constituent entities of the Russian Federation and local self-government bodies in this work, including in determining the criteria for changing the type of existing budgetary institutions, taking into account their scope of activity and developing recommendations for making changes to employment contracts with the heads of budgetary institutions, which follow from federal legislation.

Coursework on the subject: Finance

Performer Borovensky Petr Alekseevich

Novosibirsk State Agrarian University

Budget policy as a purposeful activity of the state to determine the main tasks and quantitative parameters of the formation of budget revenues and expenditures, and management of public debt is one of the main instruments of the state’s economic policy.

Budget policy for the next financial year is determined by the Budget Message of the President of the Russian Federation, sent to the Federal Assembly at the beginning (no later than March) of the previous year.

Since the most important areas of budget policy are the collection of budget revenues, the fulfillment of budget obligations, the management of the budget deficit and public debt, the effectiveness of the entire budget policy can be assessed by the performance of executive authorities in these areas. The state of public finances has a very strong impact on the real economy, so the dynamics of the main macroeconomic indicators can also serve as one of the criteria for the success of the implemented budget policy option.

The state budget, being the main financial plan of the state, the main means of accumulating financial resources, gives political power a real opportunity to exercise power, gives the state real economic and political power. On the one hand, the budget, being just a set of documents developed by one branch of government and approved by the other, performs a rather utilitarian function - it fixes the style of governing the country chosen by the state. The budget in relation to the economic policy pursued by the authorities is a derivative product; it completely depends on the chosen option for the development of society and does not play an independent role.

However, it is the budget, showing the size of the financial resources needed by the state and the actual reserves available, that determines the tax climate of the country; it is the budget, fixing specific areas of spending of funds, the percentage of expenses by industry and territory, that is a specific expression of the economic policy of the state. The budget redistributes national income and gross domestic product. The budget acts as a tool for regulating and stimulating the economy, investment activity, increasing production efficiency; it is through the budget that social policy is implemented.

Thus, the budget, combining the main financial categories (taxes, state credit, government spending), is the leading link in the financial system of any state and plays both an important economic and political role in any modern society.

The purpose of this course work is to consider the theoretical features of the budget policy of the Russian Federation, as well as the main directions for the development of budget policy for the future.

The objectives of the work are dictated by the goal:

give the concept of the budget system of the Russian Federation;

consider the theoretical foundations of budget policy;

determine the main directions of the budget policy of the Russian Federation for the future.

The theoretical basis for writing the work are educational materials and scientific articles by the following authors: Yu.N. Vavilova, E.T. Gurvich, A.N. Dvorkovich, G.A. Polyaka, V.A. Romanovsky, S.V. Khursevich and others.

To write the course work, special literature, periodicals, and methodological recommendations were used.

The structure of the course work consists of an introduction, three chapters, a conclusion and a list of references.

The state budget, as the main component of the budget system, is the part of the national income subject to redistribution; the budget is organized in the form of a balance of income and expenses for the reporting period. The Budget Code of the Russian Federation offers the following definition of the budget: a budget is a form of formation and expenditure of funds intended for financial support of the tasks and functions of the state and local government.

The budget system of a country (region) is usually divided into levels. This is due to significant differences between the authorities to which these levels correspond. The administrative-territorial structure of the country presupposes the subordination of some government bodies to others and varying degrees of their independence in the budgetary and financial sphere.

The budget system of the Russian Federation consists of budgets of three levels: the first level – the federal budget and the budgets of state extra-budgetary funds; second level – budgets of the constituent entities of the Russian Federation and budgets of territorial state extra-budgetary funds; the third level is local budgets. First-level budgets are developed and approved in the form of federal laws, second-level budgets are developed and approved in the form of laws of constituent entities of the Russian Federation, third-level budgets are developed and approved in the form of legal acts of representative bodies of local self-government. The annual budget is prepared for one financial year, which corresponds to the calendar year and lasts from January 1 to December 31. The federal budget, the budgets of the constituent entities of the Russian Federation and local budgets make up the consolidated budget of the Russian Federation.

The budget classification of the Russian Federation is a grouping of income and expenses of budgets of all levels, as well as sources of financing the deficits of these budgets. It includes: classification of budget revenues of the Russian Federation, functional classification of budget expenditures of the Russian Federation, economic classification of budget expenditures of the Russian Federation, classification of sources of internal financing of budget deficits of the Russian Federation, classification of sources of external financing of federal budget deficits, classification of types of state internal debts of Russian budgets, classification of types of external debt of the Russian Federation and state external assets of the Russian Federation, departmental classification of federal budget expenditures.

In addition, there are some principles on which the budget system of the Russian Federation is based: the principle of unity of the budget system of the Russian Federation, the principle of delimitation of income and expenses between the levels of the budget system of the Russian Federation, the principle of budget independence, the principle of completeness of reflection of budget income and expenses, the principle of budget balance, the principle of efficiency and economical use of budget funds, the principle of general (aggregate) coverage of budget expenses, the principle of transparency, the principle of budget reliability, the principle of targeting and targeted nature of budget funds.

1.2. Budget process in the Russian Federation federation

Participants in the budget process are: the President of the Russian Federation; bodies of legislative (representative) power; executive agencies; monetary authorities; state and municipal financial control bodies; state extra-budgetary funds; main managers and administrators of budgetary funds.

The preparation of draft budgets is preceded by the development of forecasts for the socio-economic development of the Russian Federation, as well as the preparation of consolidated financial balances, on the basis of which executive authorities develop draft budgets. The information necessary for drawing up draft budgets includes information about: current tax legislation; standards for deductions from own and regulatory revenues of budgets of other levels of the budget system of the Russian Federation; the expected volumes of financial assistance provided from the budgets of other levels of the budget system of the Russian Federation; types and volumes of expenses transferred from one level of the budget system of the Russian Federation to another; standards of financial costs for the provision of state or municipal services; standards of minimum budgetary provision.

In turn, budget preparation is based on: Budget message of the President of the Russian Federation; forecast of socio-economic development of the relevant territory for the next financial year; the main directions of the budget and tax policy of the relevant territory for the next financial year; forecast of the consolidated financial balance for the relevant territory for the next financial year; development plan of the state or municipal sector of the economy of the relevant territory for the next financial year.

The forecast of the socio-economic development of the territory is developed on the basis of data on the socio-economic development of the territory for the last reporting period, the forecast of the socio-economic development of the territory until the end of the base year and the trends in the development of the economy and social sphere for the planned financial year and precedes the preparation of the draft budget. Its change during the preparation and consideration of the draft budget entails a change in the main characteristics of the draft budget. The main macroeconomic indicators for drawing up the draft budget are: the volume of gross domestic product for the next financial year and the GDP growth rate in the next financial year; inflation rate (rate of price growth) (December of the next year to December of the current year).

To ensure the necessary degree of confidentiality in the consideration of individual sections and subsections of federal budget expenditures and sources of financing the federal budget deficit, the State Duma approves the personal composition of working groups, whose members are responsible for maintaining state secrets in accordance with the legislation of the Russian Federation.

On July 11, 2018, the Ministry of Finance published a new Draft of the main directions of budgetary, tax and customs tariff policies. Within the framework of this document, the authorities will carry out economic regulation in 2019, as well as during the planning period from 2020 to 2021. So what does the Project say, and what changes should Russians expect?

Base for transformations

The first part of the document is a listing of the results and results that have already been achieved thanks to the budget policy of 2017-2018. It says here that the systematic actions of the government provided the country with:

1. Formation of a sustainable economic environment, which is stable even in the face of constant changes in oil prices. Not only tax and non-tax conditions, but also inflation indicators remain constant.
2. Creating a competitive space in which there are no barriers to personal disclosure and, on the contrary, there are prospects for the development of human capital.

The authorities managed to develop a promising trajectory of economic growth, characterized by:

• increasing gross domestic product;
• expanding the range of dynamically developing areas;
• restoration of the investment system;
• stabilization of wages of the population;
• profitability of domestic industry, which is expressed in active exports of products.

Future plans

The Project notes that foreign economic conditions in 2019, 2020 and 2021 may be extremely unstable and even unfavorable, for example, if the United States tightens sanctions against Iran, which will lead to an imbalance in the international oil market, and possibly price collapse. That is why the main directions of Russia's budget policy will be concentrated around internal structural reforms, which will reduce dependence on external factors.

What will the economy be like: forecasts

Economic growth is expected to slow in 2019, reducing not only investment activity, but also consumer demand and real wage growth (from an expected 6.3% by the end of this year to less than 1% next year). The savings rate will also become lower, i.e. people will begin to cut back their own consumer spending more; this value will fall from 3.5% this year to 2.6% in 2019. However, ministers predict that the economy will adapt to difficult conditions by 2020, which will be facilitated by:

• redistribution of state budget funds;
• attracting investors to business (the share of investment in GDP is planned to be raised from the current 21.5% to 25%);
• creating conditions for the development of private entrepreneurship.

The latter will be achieved through the development of a stable and unburdensome tax and tariff policy for the next 6 years (the so-called “adjustment”), as well as a system of incentive banking regulation. The state itself will cease to strictly control small and medium-sized businesses, giving their participants more freedom to conduct business.

Changes in tax legislation

In 2019, the authorities are going to adopt a new edition of the Budget Code (BC). In order to mitigate taxation on the business sector, VAT for consumers is planned to be raised from 18% to 20%, and the insurance premium rate for employers will remain unchanged at 30%.

For beneficiaries and socially vulnerable categories of the population, VAT on vital goods and essential services will remain the same as it is now. In addition, changes may affect:

Name	What will happen
Movable property tax	Cancellation possible
VAT refund process for exporters	Will become faster
Investment tax deduction	From now on, INV will be able to be used by all members of the Consolidated Group of Taxpayers The scope of use of INV will expand to compensate for the costs of those people who carry out activities within the framework of an agreement on the integrated development of the territory (construction of construction, social or transport infrastructure facilities)
Tax on professional income (pilot project in 4 regions since 2019)	It will need to be paid to self-employed people who are not registered as a legal entity or individual entrepreneur (for example, nannies, tutors, etc.). The amount can be 3-6% of wages
Tariffs of insurance premiums for residents of the Territory of Advanced Social and Economic Development in the Far Eastern District of the Russian Federation and for residents of the Free Port of Vladivostok	Benefits and preferences will be provided if residents open new enterprises here before December 31, 2025
Oil industry	From January 1, 2019, a new test tax on additional income from hydrocarbon production (AIT) will appear. It will be tested only in some regions. At the same time, export customs duty and mineral extraction tax (MET) will be reduced.
Oil transportation	From January 1, 2019 until 2024, the export duty on oil and petroleum products will be gradually reduced (the so-called “completion of the oil and gas tax maneuver”) - from 30% to 0%. In this case, the mineral extraction tax will increase in proportion to the reduced value. special types of compensation will be offered - this is a negative excise tax (for refineries producing gasoline) and the so-called. “floating” excise tax, which will partially reimburse enterprises’ operating costs and support the oil market as a whole.
Taxation on real estate of individuals	The transition to contributions calculated from the cadastral value of objects will continue

Creating a competitive environment

The authorities will continue to create an open space for honest business activities. The main priority of this area is the widespread introduction of digital sources of information storage and processing and, in particular, the creation of a unified information base for tax and customs authorities.

Newly opened companies and firms will be offered a benefit called “start for 0” - if the application for registration of an individual entrepreneur or legal entity is submitted in electronic format, there will be no need to pay a fee for it. This is how the authorities plan to support start-up organizations.

From now on, national projects will receive priority in matters of sponsorship and government assistance. For these purposes, savings from the Infrastructure Development Fund, which will appear in 2019, will be used. Funding and support for key developments will be carried out jointly by federal and regional authorities. To ensure that subjects are interested in maximizing their own economic potential, the federal authorities will provide them with the opportunity to receive annual grants in the amount of 20,000,000,000 rubles for achieving the highest growth rates of tax potential.

How deputies adopted the budget for 2019-2020: video

Test on the topic

"Budget policy of the Russian Federation"

Introduction

1. Budgetary system and budgetary structure of the Russian Federation

1.1 The concept of a budget, its main functions

1.2 Budget structure and budget system of the Russian Federation

1.3 Principles for constructing the budget system of the Russian Federation

1.4 Budget income and expenses

2. Budgetary policy of the Russian Federation

2.1 Essence and types of budget policy

2.2 Dependence of budget policy on external conditions. Stabilization Fund

2.3 Main directions of budget policy 2006-2008, its results

2.4 Budget strategy for 2008-2010

Conclusion

Bibliography

Introduction

Currently, Russia has entered a new stage of its development. The world community has recognized the Russian economy as a market structure, there is a relative stabilization of the economy and finances, and the social functions of the state and local governments are expanding.

A strong Russian state is an effectively functioning system, the elements of which are federal relations, a developing economy, effective public administration and power. One of the most important mechanisms that allows the state to carry out economic and social regulation is the financial system, the main link of which is the budget system. The budget is not only the financial basis for the implementation of the functions of government bodies, but also the basis of its sovereignty.

Budgetary relations that shape the state's budget policy are built primarily on the interest of citizens in receiving from the state certain services that they have essentially already paid for by transferring part of their income to the state in the form of taxes and other obligatory payments. But at the same time, both the state and its citizens are equally interested in macroeconomic stabilization and in the growth of the economic potential of the entire society. Those. the problem of forming an effective budget policy throughout the country as a whole and at the sub-federal level is of particular importance, since the financial stability of such a huge country as Russia will be guaranteed only with the financial well-being of its numerous territories.

1. Budgetary system and budgetary structure of the Russian Federation

1.1 The concept of a budget, its main functions

In the formation and development of the economic and social structure of society, state regulation, carried out within the framework of policies adopted at each historical stage, plays a large role.

One of the mechanisms that allows the state to pursue economic and social policies is the financial system of society and its component - the state budget. In economic literature, the term “budget” contains concepts that are different in nature:

• The form of education and expenditure of funds to ensure the functions of government bodies;
• Main centralized fund of funds;
• Basic financial plan of the state;
• The set of monetary relations as a financial regulator.

With the help of the state budget, state authorities receive financial resources for the maintenance of the state apparatus, the army, the implementation of social events, the implementation of economic tasks, i.e. The budget, understood as the totality of all elements of the country's budget system, is essentially the basis of the financial basis of state regulation of the market economy.

The state budget, being the main financial plan of the state, gives authorities a real economic opportunity to exercise power. The budget reflects the size of the financial resources needed by the state and thereby determines the tax policy in the country. The budget fixes specific areas for spending funds, redistribution of national income and gross domestic product, which allows it to act as an effective regulator of the economy.

As an economic category, the budget is a system of financial relations, including not only formal relations regarding the formation, distribution and expenditure of monetary resources intended to finance the functions of state authorities and local governments in the provision of public services to the population of the country, but also relations associated with the implementation relationships between the elements of the budget system, the organization of the budget device and the budget process.

The economic essence of the budget is realized through such categories of budget process management as budget law, budget system, budget system, budget mechanism, and all of them taken together find their expression in budget policy.

There are three main functions of the state budget:

1. The distribution function (or the function of economic regulation) is characterized by the distribution and redistribution of financial resources not only between different levels of government, but also between different divisions of social production. The main object of budget redistribution is net income. This function is implemented in the process of forming budget revenue sources and using them to implement the state’s economic policy. The financial resources available in the budget system are redistributed both to the spheres of material production, which are of priority importance for the country’s economy, and to the sphere of intangible production, which is supported by the budget.
2. The control function is that the budget objectively reflects economic processes. Thanks to this function, you can find out how the state receives financial resources from business entities, whether the size of the resources corresponds to the needs of the state, and whether they work effectively enough in the economy. This function helps to identify weaknesses in the country’s economy and the Government of the Russian Federation has the opportunity to adjust the direction of movement of financial resources to these pain points.
3. The fiscal function involves, on the one hand, providing financial resources for the state to fulfill its direct tasks assigned to it by society. On the other hand, in order to increase the efficiency of public services, it is necessary to create conditions for the efficient use of available resources and maintain a certain level of economic activity. Therefore, the fiscal function is closely related to the distribution function.

Budget revenues reflect the economic relations that arise between the state, citizens and organizations in the process of forming the budget fund. Budget expenditures represent economic relations that arise between the state, citizens and organizations in the process of distribution and use of budget fund funds for various needs.

1.2 Budget structure and budget system of the Russian Federation

The budget structure determines the organization of the state budget and the country's budget system, the relationships between its individual links, the legal basis for the functioning of budgets included in the budget system, the composition and structure of budgets, etc. An integral part of the budget device is the budget system. The budget system of the Russian Federation is a set of federal budgets, budgets of constituent entities of the Russian Federation, local budgets and budgets of state extra-budgetary funds, based on economic relations and the state structure of the Russian Federation, regulated by the legislation of the Russian Federation. The structure of the budget system includes:

• the federal budget and the budgets of state extra-budgetary funds of the Russian Federation;
• budgets of the constituent entities of the Russian Federation and budgets of territorial state extra-budgetary funds;
• local budgets, including:

budgets of municipal districts, budgets of city districts, budgets of intracity municipalities of federal cities of Moscow and St. Petersburg;

budgets of urban and rural settlements.

At the same time, the budgets included in the budget system of the Russian Federation are independent and are not included in each other, i.e. budgets of the constituent entities of the Russian Federation are not included in the federal budget, and local budgets are not included in regional ones.

The federal budget is understood as the main financial plan of the country as a whole, adopted annually by the highest legislative body of state power - the Federal Assembly. Federal budget revenues are collected throughout the Russian Federation according to uniform standards, and expenditures are made in the interests of all the people inhabiting the country. The bulk of the revenue potential of the federal budget is formed from tax revenues; non-tax revenues make up a small share - about 1%.

The budget of a constituent entity of the Russian Federation is a form of formation and expenditure of funds intended to provide tasks and functions that fall under the jurisdiction of constituent entities of the Russian Federation.

As an economic category, the budget of a subject of the Russian Federation is a system of economic relations through which the distribution and redistribution of national income is carried out in order for the authorities of the subject of the Federation to perform their functions related to the economic and social development of the region.

A completely separate concept in the structure of the budget structure of Russia is the concept of a consolidated budget - a set of budgets of all levels of the budget system of the Russian Federation. The consolidated budget of the Russian Federation includes the federal budget and the consolidated budgets of the constituent entities of the Russian Federation. In turn, the consolidated budget of a constituent entity of the Russian Federation includes the budget of a constituent entity of the Russian Federation and local budgets.

Consolidated budgets are not reviewed or approved by legislative authorities. This is a statistical summary of budget indicators used in budget or financial planning or in calculations characterizing various types of security for the country's residents, for example, budget expenditures per capita for medical care.

1.3 Principles for constructing the budget system of the Russian Federation

The country's budget system is based on a number of principles:

The unity of the budget system is based on the country's unified monetary system and on the interaction of budgets at all levels. The practical application of this principle lies in the use of a unified budget classification of the Russian Federation, unity of forms of budget documentation, provision of the necessary information from one level of the budget system to another to ensure uniform principles of organization and coordinated procedures of the budget process at all levels of the budget system.

The principle of separating income and expenses means assigning income and expenses to the subjects of the budget system, as well as determining the powers of public authorities to generate income, establish and fulfill expenditure obligations. State authorities and local governments are required to maintain registers of expenditure obligations - a list of regulations that provide for the occurrence of expenditure obligations to be fulfilled at the expense of budget funds.

Based on international experience, two main principles for securing revenue powers can be distinguished:

1. local governments should be able to finance services provided to the local population by using their own revenues;
2. own incomes should be generated only at the expense of their own population in accordance with the benefits they receive in the form of local services.

The principle of budget independence means for state authorities and local self-government:

1. independently carry out the budget process;
2. establish regional or local taxes;
3. independently determine the direction of spending funds.

The principle of equality of budgetary rights means that for all constituent entities of the Russian Federation the state establishes identical and binding norms and rules that define the competence of government bodies of constituent entities of the Russian Federation and local governments in the field of regulating budgetary relations and implementing the budget process. Equality of budget rights also means the use of uniform formalized methods for distributing federal financial assistance to lower budgets.

The principle of completeness of reflection of budget income and expenses means:

1. all income and expenses of budgets, budgets of state extra-budgetary funds are subject to reflection in budgets without fail and in full;
2. all state and municipal expenses are subject to financing from budget funds accumulated by the budget system of the Russian Federation;
3. tax credits, deferments and installment plans for the payment of taxes are fully accounted for separately for budget revenues, budgets of state extra-budgetary funds and for budget expenditures.

There are gross and net budgets. The gross budget includes all gross income and expenses of the state, and the net budget includes only net income and expenses. Expenditures on public enterprises are included in the gross budget, while the net budget reflects only the difference between income and expenses.

The principle of budget balance assumes that the volume of budgeted expenses must correspond to the total volume of budget revenues. When drawing up, approving and executing the budget, authorized bodies must proceed from the need to minimize the budget deficit.

The principle of efficiency and economy in the use of budgetary funds means that when drawing up and using budgets, authorized bodies and recipients of budgetary funds must proceed from the goal of achieving specified results using the least amount of funds or achieving the best result using the amount of funds determined by the budget.

The principle of general (total) coverage of expenses means that budget revenues and receipts cannot be linked to certain budget expenses, except for the income of targeted budget funds.

The principle of budget reliability assumes that all amounts of income and expenses must be justified. The reality of the budget is based on the reliability of the socio-economic development forecast indicators.

The principle of targeting and targeted nature of budget funds means that budget funds are allocated to specific recipients and used to finance specific purposes.

The principle of transparency means:

• mandatory publication in the open press of approved budgets and reports on their use;
• mandatory openness to society of procedures for reviewing and making decisions on draft budgets;
• secret items can only be approved as part of the federal budget.

The principle of cash unity means crediting all cash receipts and making all cash payments from a single budget account.

1.4 Budget income and expenses

Budget revenues are subject to centralization in budgets of different levels and express the economic relations that arise between the state and enterprises, organizations and citizens in the process of forming the country's budget fund. The form of manifestation of these relations are various types of payments from the population to the state budget. Calculations of income of the budget system of the Russian Federation are formed on the basis of laws of legislative bodies of state power and local government bodies on budgets for the corresponding financial year.

Budget revenues can be generated on a tax and non-tax basis and through gratuitous transfers in accordance with budget and tax legislation. Tax income includes federal, regional and local taxes and fees provided for by the tax legislation of the Russian Federation, as well as penalties and fines. Non-tax - income from the use of property owned by the state or municipality; from paid services provided by relevant local governments; funds received as a result of the application of civil, administrative and criminal liability measures, including fines, confiscations, compensation, as well as funds received in compensation for damage caused to the Russian Federation and other amounts of forced seizure; income in the form of financial assistance and budget loans received from budgets of other levels of the budget system of the Russian Federation and other non-tax income.

Revenues from federal taxes are distributed between budgets of different levels in accordance with federal legislation, and revenues from some federal taxes are redistributed between regional and local budgets by the authorities of the constituent entities of the Russian Federation. Currently, part of some federal taxes (in particular, income tax, personal income tax, excise taxes on drinking alcohol, vodka and alcoholic beverages, tax on the purchase of foreign banknotes) goes to the budgets of the constituent entities of the Russian Federation. Revenues from corporate income taxes are transferred to local budgets.

Budget expenditures are funds allocated to financially support the tasks and functions of the state and local government. Depending on the economic content, expenses are divided into current and capital.

Capital expenditures include:

• investments in existing or newly created legal entities;
• expenses for major repairs;
• other expenses associated with expanded reproduction;
• expenses during the implementation of which state property is created or increased.

Current budget expenditures include:

• current functioning of government bodies;
• current financing of budgetary institutions;
• providing state support to other budgets and individual sectors of the economy in the form of grants, subsidies and subventions for current functioning;

In addition, budget expenditures differ in the following areas:

1. federal budget expenditures;
2. expenditures of the budgets of the constituent entities of the Russian Federation;
3. expenses of local budgets.

Each level of government in the process of spending budget funds performs the following functions:

1. carries out legal regulation of budget expenditures;
2. provides its own spending powers with financial resources;
3. finances public services.

Expenditures of budget funds can be carried out in the following forms:

• budget allocations;
• transfers;
• budget loans to legal entities;
• subventions and subsidies to individuals and legal entities;
• appropriations for the implementation of state powers transferred to other levels of government;
• investments in authorized capitals of legal entities;
• loans to foreign countries;
• funds for servicing debt obligations.

Budget allocations are budget funds allocated in accordance with the budget schedule to the recipient of budget funds. They can be provided for the maintenance of budgetary institutions, payment for goods and services performed by individuals and legal entities under government contracts, as well as the implementation by local governments of mandatory payments to the population.

Transfers are free transfers of funds from budgets of various levels to recipients: citizens, enterprises, budgets of other levels.

Budget loans provide funds to legal entities on a reimbursable and repayable basis. Repayment of loans, as well as fees for using them, are equal to payments to the budget.

Subventions are budget funds provided to the budget of another level of the budget system of the Russian Federation or to a legal entity on a free basis for the implementation of certain targeted expenses.

A subsidy is budget funds provided to the budget of another level of the budget system of the Russian Federation, to an individual or legal entity on the basis of shared financing of targeted expenses.

In case of misuse or non-use within the established time frame, subsidies and subventions are subject to return to the appropriate budget.

Expenses for financing budget investments are provided for by the federal budget when they are included in the federal target program. Such a program approves federal investment objects that provide for expenses of more than 200,000 minimum wages. In table 1 provides a list of individual federal target programs.

Table 1. List of federal target programs in 2005-2007, million rubles.

Name of the target program	Period, years	2006	2007	2008
Modernization of the Russian transport system
Russian culture
Children of Russia
Education Development Program
Russian space program
Development of civil aviation technology
Electronic Russia

It should be noted that funding for federal programs has generally increased over the past two years, and the most significant funding is aimed at modernizing the transport system.

The structure of budget expenditures is not the same in different countries and even in one country at different periods of its development. The structure of expenses changes under the influence of both external and internal factors. These may be economic, social, military, political and other factors. In table Figure 2 shows the structure of federal budget expenditures.

Table 2. Structure of federal budget expenditures for 2006-2008.

Type of expenses	2006	2007	2008
	billion rubles	billion rubles	billion rubles
National expenditures
National Defense
National security
National economy
Environmental protection
Education
Culture and cinematography
Healthcare and sports
Social politics
Interbudgetary transfers
Financial assistance to budgets
Compensation funds
Other intergovernmental transfers
Transfers to off-budget funds
Total expenses

As can be seen from the table, expenditures on national defense and security occupy a large share; expenditures on education increased by 73% compared to 2005, and on healthcare and sports - by 120%.

2. Budgetary policy of the Russian Federation

2.1 Essence and types of budget policy

One of the most important directions of the state’s economic policy is its financial policy, since success in building a strong society can only be achieved with success in financial policy. The main component of financial policy is budgetary. It is the budgetary policy, which reflects the interests of the state, its functions that require budgetary funds to solve set tasks, that largely determines the economic course of development of the state.

Fiscal policy is closely related to such concepts as inter-budgetary relations, budget potential, and tax burden. As an organizational and financial category, budget policy is a system of measures and actions of government authorities in the field of managing the budget process based on the concept of developing budget relations as part of general economic policy, aimed at implementing all functions of the budget in order to achieve the economic and social effect determined at this stage.

Budget policy has its own subjects and objects. The subjects are state legislative and executive authorities that develop, approve, control and implement the adopted budget policy, as well as the direct executors of budgets at all levels of government. Most often, the object of budget policy is understood in various combinations as fiscal legislation, the budget system and the budget mechanism. However, some authors consider it more correct to recognize the entire budget process, including fiscal law, the budget system, the budget system and the budget mechanism, as an object of budget policy. Each of these elements must perform its functions and tasks within the framework of the adopted budget policy.

Budget policy should be based on the following principles:

• the principle of objectivity - reflection in budget policy of objective processes occurring in the economy;
• the principle of continuity - the formation of budget policy for the coming financial year, taking into account the tasks and achievements of the previous period;
• principle of obligatoryness - budget policy must be mandatory for execution;
• the principle of openness - openness, transparency and controllability of budgetary relations at all stages of the budgetary process.

Budget policy can be divided into types and forms of implementation:

1. Based on the scale and long-term nature of goals and objectives, a distinction is made between strategic long-term (3 or more years) and tactical budget policy;
2. Depending on the priorities of budget policy, the following types are distinguished:

• income type characterized by the fact that planning, execution and organization of budgets are based on income, budget expenses and main tasks are adjusted to their volume.
• consumable type based on the subordination of budget revenues to its expenses.
• control and regulating type. Characteristic features of this type of policy are excessive regulation of the economy, government orders, tax incentives, and the expansion of state ownership in areas of activity traditionally occupied by the private sector.
• combined type is aimed at ensuring a balance between all functions of the budget, the interests of the state, taxpayers, users of public services and society as a whole.

It is difficult to draw clear boundaries between these types of fiscal policy. In practice, the budget policy pursued by the state is of a combined, but not always equilibrium, nature.

1. Depending on the strategic direction of budget regulation, a distinction is made between stimulating and contractionary budget policies.
2. On a territorial basis, federal, regional and local budget policies can be distinguished. However, this division is very conditional, since regional and local authorities in Russia are not endowed with such budgetary and tax powers that allow them to fully implement independent budget policy.
3. Based on subject specialization, tax, social, investment and other types of budget policies can be distinguished.

The budgetary policy of the Russian Federation is based on the Budget Message of the President of Russia to the Federal Assembly of the Russian Federation, which sets long- and short-term guidelines for budgetary policy, consistent with the general goals and objectives of the state's economic policy.

2.2. Dependence of budget policy on external conditions. Stabilization Fund

For several years now, the focus has been on the dependence of the Russian economy on fluctuations in the external environment and the problems arising in connection with this, since the problem of macroeconomic security imposes certain restrictions on fiscal policy.

The main factor in the instability of the external environment is the sharp fluctuations in world prices for goods exported by our country, and above all oil prices. The deviation from average prices in some years was: for oil - from -42 to +50%, for gas - from -32% to +23%, for ferrous metals - from -33 to +63%. In 2005, oil prices exceeded the average level by more than twice, and gas prices by 66%.

The dependence of the Russian economy on the external environment is determined by its resource orientation. In 2004-2005 hydrocarbons and metals provided more than ¾ of the value of Russian commodity exports, and the share of taxes in the oil and gas complex amounted to about 30% of all budget system revenues.

Fluctuations in export commodity prices lead to instability in budget revenues, which requires frequent revisions of either government spending, tax rates, or borrowing levels.

In addition, the unpredictability of changes in commodity prices should be taken into account. From the table below you will see that actual oil prices in recent years have not matched the forecasts used in preparing budgets. Therefore, the main macroeconomic indicators seriously deviated from the expected values.

There is a fiscal policy that smoothes out external fluctuations. It assumes that the external environment influences fiscal policy by influencing budget revenues. The worsening economic situation leads to a slowdown in economic growth and a decrease in budget revenues. On the other hand, income associated with favorable market conditions is usually subject to increased taxation. The excess of actual income over their standard value due to favorable market conditions is market income. Accordingly, a shortfall in income due to unfavorable conditions is a market loss. With a correctly chosen base level, over a long period they should generally cancel each other out.

Table 3. Forecast indicators provided for by the laws on the federal budget and their actual values

Indicators
Oil prices, dollars/barrel.
Inflation, %
Average annual exchange rate, rub./dollar.
Federal budget revenues	Deviation from forecast, %

The degree to which CDs are withdrawn from the budget is largely determined by their nature. Thus, the taxation system of the oil industry was aimed at increasing the withdrawal of CDs arising in the oil industry. At the same time, in other industries, CDs are withdrawn mainly through income tax, i.e. A significantly smaller share of them ends up in the budget. The oil industry provides 84% ​​of the total CD of the economy and 91% of the budget's CD.

A standard tool for smoothing expenses when budget revenues fluctuate is a countercyclical debt policy: increasing borrowings in the recession phase and reducing them in the recovery phase. The implementation of this policy in Russia has ensured a relatively stable level of government spending; in addition, positive results can also include a reduction in public debt, which in itself accelerates economic growth due to reduced risks. So, in Russia in 2000-2005. the ratio of external debt to exports decreased from 209 to 33%, which corresponds to an increase in growth rates of 1.5-2.5%.

To ensure the sustainability of market spending, the Stabilization Fund was created in 2004. The SF is defined as “a part of the federal budget funds generated by the oil price exceeding the base oil price, subject to separate accounting, management and use in order to ensure the balance of the federal budget when the oil price decreases below the base price.” The formation of the SF came from two sources: income generated by the excess of actual oil prices over the base price and the balance of federal budget funds at the beginning of the corresponding year. However, the Federation Council did not fulfill one of its tasks - stabilizing the standard of living in the country. In Russia there is a large gap between the level of production per capita and the quality of life, i.e. the standard of living is significantly lower than potentially possible.

Currently, the Budget Address of the President of Russia to the Federal Assembly, in order to ensure the sustainability of budget expenditures regardless of current commodity prices, provides for the transformation of the Federation Fund into the Reserve Fund and the Fund for Future Generations.

The Reserve Fund represents a part of the federal budget funds that are subject to separate accounting and management for the purpose of carrying out an oil and gas transfer in the event of insufficient oil and gas revenues to financially support the specified transfer. The Reserve Fund is formed from oil and gas revenues of the federal budget and income from the management of the Reserve Fund.

The Fund for Future Generations must accumulate revenues from oil and gas, which are generated as a result of the excess of revenues from the oil and gas sector over contributions to the Reserve Fund and funds used to finance federal budget expenditures.

2.3 Main directions of budget policy 2006-2008, its results

2006 was a turning point for the Russian budget process. At this time, new approaches to financial management are being adopted, and there is a transition to results-oriented medium-term budgeting. Many things are being done for the first time in our country.

For the first time, the federal budget becomes an integral part of the financial plan formed for three years.

For the first time, divisions between existing and assumed obligations of the state are being introduced. This ensures the fulfillment of all obligations, including those arising from planned decisions to increase wages for public sector employees, pensions, pay for military personnel, support for economic growth and strengthening of national defense and security.

For the first time, clearly defined goals and priorities of state policy become the basis for budget formation, and budget expenditures are linked to specific measurable results of the activities of federal executive authorities.

The budget policy of the Russian Federation is based on the Budget Message of the President of the Russian Federation to the Federal Assembly. Let us highlight the strategic goals of this message for 2006-2008. and see how successfully they were completed.

The main goal of the Address is to improve the level and quality of life of the population. The state should help increase the level of income and employment of the population and increase savings. His direct responsibility is to improve the availability and quality of budget services. To achieve this goal, it is necessary, first of all, to ensure a decent and competitive level of remuneration for workers in education, healthcare, culture, and other sectors of the social sphere (Table 4).

Table 4. Indicators of wage growth in the public sector

	2004 (report)
Average monthly salary in the public sector, rub.
Wage growth rates exceeding inflation rates
Living wage of the working population, rub./month.
The ratio of wages and living wages

The basis for solving social problems is high rates of sustainable economic growth. To achieve this growth, it is necessary to maintain macroeconomic stability and improve the tax system. Thanks to this, favorable conditions will be created to attract investment and develop entrepreneurship. Since 2000, the Government of the Russian Federation has been pursuing a policy of reducing the number of taxes and reducing the tax burden on the economy, which allows enterprises to use the saved funds to increase salaries for their employees, create new jobs, and technical re-equipment. In 2006, it was planned to continue improving tax legislation. In particular, it is envisaged to simplify the VAT refund procedure for capital construction, and from 2007 - for the export of products. The list of expenses accepted for deduction when taxing profits is expanding. Since 2006, the upper income limit for small business organizations entitled to a simplified taxation regime has been increased from 15 to 20 million rubles. The tax on property transferred by inheritance is abolished. Tax benefits will be introduced for investors in special economic zones. Starting from 2007, it is planned to differentiate mineral extraction tax rates depending on the conditions of oil production, which will increase the investment attractiveness of the oil industry. It should be noted that simplification and increased transparency of tax procedures still come first, since it is expected that the real reduction in the tax burden for enterprises due to these measures will be even more significant than direct savings from lowering tax rates.

A necessary condition for the development of a country is to ensure its security and defense capability, because social progress is impossible in a country whose citizens suffer from military conflicts, crimes and terrorism. The federal budget provided for an increase in expenses for the implementation of the State Armament Program by 59 billion rubles. in 2006, 69 billion rubles. - in 2007 and 83 billion rubles. - in 2008. As a result of this, it is planned to significantly increase the level of provision of military formations with modern weapons and military equipment.

Now let's move on to the results of the budget policy of this period.

Since 2000, the federal budget has been executed with revenues exceeding expenses, which has made it possible to eliminate long-term budget debts to citizens for the payment of wages, pensions and social benefits. In addition, the scale of public debt was radically reduced (from more than 100% of GDP in 1999 to 9% of GDP by the end of 2006).

As part of the tax reform, the rates of basic taxes were reduced, all individual benefits, offsets and deferments with taxpayers are a thing of the past. Thus, a single personal income tax rate of 13% was introduced, the profit tax rate was reduced from 35 to 24%, and the VAT rate was reduced from 20 to 18%. As a result of the measures taken, the scale of tax evasion has decreased and tax revenues to budgets of all levels have increased.

Regular increases in wages in the public sector and pensions contributed to a significant reduction in poverty in the country. The increase in pay for military personnel and law enforcement officers made it possible to stabilize the personnel of the RF Armed Forces.

There have been noticeable shifts in primary care staffing, with waiting times for diagnostic tests reduced from 10 to 7 days and ambulance arrival times from 35 to 25 minutes. For the development of small businesses in rural areas, with state support, loans worth 41 billion rubles were issued, which is 13 times more than in 2005. Cash grants were allocated to 10 thousand best teachers, 3 thousand schools and 17 universities. The annual volume of mortgage loans to the population exceeded 260 billion rubles, an increase of almost 5 times, and the rate on them consistently decreased.

Thus, the budget increasingly acts as a tool for carrying out structural reforms and supporting positive processes in various areas of economic activity.

However, along with the achievements of fiscal policy, some problems remain. The recent imbalance in the Pension Fund is a cause for concern, especially given the expected prospects for an increase in pension obligations. As for the tax sphere, a tax on residential real estate has not been introduced; work has been delayed on introducing criteria for assessing the effectiveness of the work of tax officials and how correctly they calculate taxes. The volume of road construction remains insufficient, and road maintenance standards are not met.

Control over the costs of maintaining the state apparatus is not effective enough, especially for territorial executive authorities.

Despite a number of remaining problems, by 2008 the formation of the foundations of the new budget system had been completed and the necessary conditions had now been created for the transition to a higher level of public finance management.

2.4 Budget strategy for 2008-2010

According to the Budget Address of the President of the Russian Federation, when implementing the budget strategy, the Government of the Russian Federation needs to focus on solving the following main tasks:

1. Transformation of the federal budget into an effective instrument of macroeconomic regulation. Those. the real growth rate of budget expenditures must correspond to the growth rate of the economy.
2. Ensuring long-term budget balance - ensuring the sustainability of budget expenditures regardless of the situation in commodity prices. For these purposes, it is planned to transform the Federation Council of the Russian Federation into the Reserve Fund and the Fund for Future Generations.
3. Further extension of budget planning. Formation of a budget for a 3-year period is considered as the basis for the transition to long-term financial planning (drawing up budget forecasts for 10-15 years).
4. Ensuring the fulfillment of expenditure obligations. Cancellation, termination or restructuring of expenditure obligations cannot be carried out after the completion of the draft budget.
5. Conducting an analysis of the effectiveness of all budget expenditures from the point of view of the ultimate goals of socio-economic policy and comparing the results achieved with these goals.
6. Transition to modern principles of public capital investment. For the entire period of the investment project, a contract is concluded regulating the relationship between the state customer and the contractor.
7. Application of mechanisms to stimulate budgetary institutions to improve the quality of services they provide. Budgetary institutions should be given the right to independently determine the direction of spending funds to achieve specified indicators.
8. Improving the quality of financial management in the public sector. It is planned to strengthen the responsibility of executive authorities for the effectiveness of budget expenditures, creating incentives to increase transparency and efficiency in the use of budget funds.
9. Determining the strategy for further implementation of the pension reform, solving the problem of imbalance of the Pension Fund of the Russian Federation.
10. Formation and implementation of a federal target program aimed at promoting the development of the Far East and Transbaikalia and attracting investment to these regions.

Tax policy should be aimed at further reducing tax evasion and creating conditions for the expansion of economic activity.

It is necessary to regulate the collection of tax on residential real estate of citizens, calculated from the market price of the property, by providing such a system of deductions so that the tax burden on low-income citizens remains at the same level. Work should continue to reform the excise tax system in order to stimulate the consumption of higher quality goods. In particular, it is necessary to differentiate excise tax rates on gasoline, i.e. setting lower rates for high-quality gasoline and higher rates for low-quality gasoline.

As for the budgetary policy in the field of expenditures, it is necessary to ensure the allocation of funds for the implementation of priority national projects. In 2010, the first payments from maternity capital will be made, so a system for managing family capital must be created and the necessary budget expenditures must be provided for.

It is necessary to gradually increase the minimum wage and social pensions to a level not lower than the subsistence level.

In addition, there is a need to develop transport infrastructure, increase the capacity and safety of roads.

Federal budget funds allocated to state academies of sciences for scientific research should be provided in the form of subsidies and grants. At the same time, academies of sciences should be given independence in the disposal of these funds.

Conclusion

The last decade in Russia has been a transition to a new system of public relations in various spheres; by the beginning of 2000, it was time for transformations in the state and municipal sectors. An effective financial management system is the most important factor in modern sustainable economic growth. Therefore, the target of budget policy, first of all, should be to ensure sustainable economic growth based on increasing the efficiency of government spending. A long-term financial plan should become the basis for the formation of annual budget projections.

In fiscal policy, it is very important to listen to market trends. Built into the market system, it is formed taking into account market prices, profitability levels, financial and income potential of market economy entities. We can say that fiscal policy directly depends on the market. But, on the other hand, the budget is an active tool for influencing not only market participants. Budget policy should contribute to the growth of business activity, structural reforms, and ensuring social stability.

It is important that budget funds are used efficiently and effectively.

Bibliography

1. Budget Code of the Russian Federation (with amendments and additions for 2008).
2. Godin A.M., Maksimova N.S., Podporina I.V. Budget system of the Russian Federation: Textbook. - 3rd ed., rev. and additional - M.: Publishing and trading corporation "Dashkov and Co", 2006.
3. Dementyev D.V., Shcherbakov V.A. Budget system of the Russian Federation: Textbook. - 2nd ed., erased. - M.: KNORUS, 2008.
4. E. Gurevich. Budget and monetary policy in conditions of unstable external conditions // Questions of Economics. - 2006. - No. 3.
5. Kovaleva T.M. Budget and fiscal policy of the Russian Federation: Textbook. - 2nd ed. - M.: KNORUS, 2006.
6. O. Dmitrieva. Formation of Stabilization Funds: Prerequisites and Consequences // Questions of Economics. - 2006. - No. 8. - With. 22.

Budget Address of the President of the Russian Federation to the Federal Assembly of the Russian Federation on budget policy in 2008-2010.

Budget Address of the President of the Russian Federation to the Federal Assembly of the Russian Federation on budget policy in 2008-2010.