«Размывание ответственности»

Фото rugrad.eu

{"ID":"779911","~ID":"779911","TAGS":"субсидии, минэкономики, Управление государственной поддержки юридических лиц, ОЭЗ, анастасия кузнецова","~TAGS":"субсидии, минэкономики, Управление государственной поддержки юридических лиц, ОЭЗ, анастасия кузнецова","NAME":"«Размывание ответственности»","~NAME":"«Размывание ответственности»","IBLOCK_ID":"54","~IBLOCK_ID":"54","IBLOCK_SECTION_ID":"829","~IBLOCK_SECTION_ID":"829","DETAIL_TEXT":"\u003Cp\u003E\r\n\tНа прошлой неделе из\u0026nbsp;\u003Ca href=\u0022http:\/\/rugrad.eu\/news\/779642\/\u0022\u003Eпроекта\u003C\/a\u003E\u0026nbsp;постановления областного правительства о предоставлении федеральных субсидий резидентам ОЭЗ стал понятен механизм, через который областные чиновники планируют распределять деньги между местным бизнесом. Руководитель региональной приёмной «Трансперенси Интернешнл – Россия» Илья Шуманов по просьбе RUGRAD.EU проанализировал разрабатываемый чиновниками механизм распределения средств объёмом до 60 млрд руб. в год и обратил внимание на риски его внедрения.\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\t – Форма юридического лица в виде государственного казённого учреждения «Управление государственной поддержки юридических лиц, осуществляющих деятельность на территории Калининградской области», которое будет заниматься администрированием и контролем за использованием субсидий, имеет менее защищенную форму, нежели структурное подразделение Министерства экономики с точки зрения контроля за процессом выделения субсидий со стороны органов власти (субсидии сельхозпредприятиям в Калининградской области распределяются министерством сельского хозяйства без создания дополнительных \u0022прокладочных\u0022 структур - прим. RUGRAD.EU). \u0026nbsp;\u0026nbsp;\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\t Это связано с тем, что ГКУ – это форма некоммерческой организации, фактически выводящая сотрудников учреждения из-под действия федерального закона о противодействии коррупции. Сотрудники учреждения могут не отчитываться о собственных доходах, на них не будут распространяться нормы о конфликте интересов, также к ним нельзя применить запреты и ограничения, распространяемые на государственных служащих. Фактически контроль за деятельностью этой организации будет сводиться к внутреннему контролю со стороны учредителя (Министерство экономики Калининградской области), выводя данную организацию из-под системы внешнего, в том числе общественного (гражданского), контроля.\u0026nbsp;\u0026nbsp;\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\t Кроме того, статус ГКУ приведёт к размыванию ответственности со стороны учредителя за деятельностью организации. Ответственность за ошибки и нарушения в деятельности может быть возложена на руководителя учреждения, без возможности привлечения к солидарной ответственности сотрудников отраслевого министерства. Аналогичную практику мы могли уже наблюдать при потере 317 млн руб., размещённых\u0026nbsp; на расчётных счетах банка «Огни Москвы», которые составляли гарантийный фонд правительства области, используемый для получения кредитов в коммерческих банках, и фонда микрофинансирования малого и среднего бизнеса. Тогда руководитель фонда государственного автономного учреждения Калининградской области «Фонд поддержки предпринимательства», утратив контроль за третью миллиарда рублей, был уволен с занимаемой должности, а два региональных министра промышленности и финансов отделались строгими выговорами. Этому способствовала особенность построения корпоративной структуры органов власти, когда решения принимаются представителем органа власти, а фактическое исполнение перенесено на некоммерческую организацию, учреждённую органом власти.\u0026nbsp;\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\t Механизм распределения субсидий также вызывает определённые вопросы. Заявленный в проекте постановления правительства Калининградской области механизм субсидирования носит «компенсационный» характер, в рамках которого происходит выделение субсидий резидентам ОЭЗ и юридическим лицам в рамках затрат, понесённых последними. Однако в рамках механизма предполагаемого контроля порядка получения субсидий будет осуществляться контроль за целевым расходованием субсидий получателями, и для этого предполагается даже выделение дополнительных штатных единиц.\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\t Не совсем понятен механизм контроля за целевым характером субсидий. По логике, изложенной в проекте постановления, компания будет получать компенсацию за уже понесённые убытки. То есть весь контроль документов, подтверждающих эти убытки, может быть произведён до выплаты субсидии. Последующий контроль распоряжения данными средствами может быть вмешательством чиновников в частные дела компании и созданием рисков злоупотребления для необоснованного отзыва субсидии.\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\t Ещё один вопрос, на который стоит обратить внимание, – это сама процедура получения субсидии, а именно её излишняя забюрократизированность.\u0026nbsp;\u0026nbsp;\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\t Фактически вместо одного субъекта – ГКУ «Управление государственной поддержки юридических лиц, осуществляющее деятельность на территории Калининградской области» – заявителю придется иметь дело с тремя властными структурами:\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\t 1. Министерством экономики Калининградской области – при заключении соглашения о предоставлении субсидий между Министерством экономики Калининградской области и получателем субсидий;\u0026nbsp;\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\t 2. Администрацией ОЭЗ – при получении заключения об отсутствии фактов нарушений со стороны резидента ОЭЗ в условиях реализации инвестиционного проекта;\u0026nbsp;\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\t 3. ГКУ «Управление государственной поддержки юридических лиц, осуществляющих деятельность на территории Калининградской области» – при сдаче пакета документов на получение субсидий.\u0026nbsp;\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\t Помимо этого, резиденту ОЭЗ и юридическим лицам, желающим получить субсидию, придётся самостоятельно собирать справки из ФНС, государственных внебюджетных фондов (Пенсионный фонд РФ, Федеральный Фонд обязательного медицинского страхования, Фонд социального страхования РФ), что не отвечает принципам предоставления госуслуг. Логика предоставления госуслуг предполагает организацию межведомственного взаимодействия, в рамках которого органы власти обязаны самостоятельно запрашивать документы, имеющиеся в распоряжении иных органов власти, снижая объём документов, требуемых с заявителя.\r\n\u003C\/p\u003E","~DETAIL_TEXT":"\u003Cp\u003E\r\n\tНа прошлой неделе из\u0026nbsp;\u003Ca href=\u0022http:\/\/rugrad.eu\/news\/779642\/\u0022\u003Eпроекта\u003C\/a\u003E\u0026nbsp;постановления областного правительства о предоставлении федеральных субсидий резидентам ОЭЗ стал понятен механизм, через который областные чиновники планируют распределять деньги между местным бизнесом. Руководитель региональной приёмной «Трансперенси Интернешнл – Россия» Илья Шуманов по просьбе RUGRAD.EU проанализировал разрабатываемый чиновниками механизм распределения средств объёмом до 60 млрд руб. в год и обратил внимание на риски его внедрения.\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\t – Форма юридического лица в виде государственного казённого учреждения «Управление государственной поддержки юридических лиц, осуществляющих деятельность на территории Калининградской области», которое будет заниматься администрированием и контролем за использованием субсидий, имеет менее защищенную форму, нежели структурное подразделение Министерства экономики с точки зрения контроля за процессом выделения субсидий со стороны органов власти (субсидии сельхозпредприятиям в Калининградской области распределяются министерством сельского хозяйства без создания дополнительных \u0022прокладочных\u0022 структур - прим. RUGRAD.EU). \u0026nbsp;\u0026nbsp;\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\t Это связано с тем, что ГКУ – это форма некоммерческой организации, фактически выводящая сотрудников учреждения из-под действия федерального закона о противодействии коррупции. Сотрудники учреждения могут не отчитываться о собственных доходах, на них не будут распространяться нормы о конфликте интересов, также к ним нельзя применить запреты и ограничения, распространяемые на государственных служащих. Фактически контроль за деятельностью этой организации будет сводиться к внутреннему контролю со стороны учредителя (Министерство экономики Калининградской области), выводя данную организацию из-под системы внешнего, в том числе общественного (гражданского), контроля.\u0026nbsp;\u0026nbsp;\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\t Кроме того, статус ГКУ приведёт к размыванию ответственности со стороны учредителя за деятельностью организации. Ответственность за ошибки и нарушения в деятельности может быть возложена на руководителя учреждения, без возможности привлечения к солидарной ответственности сотрудников отраслевого министерства. Аналогичную практику мы могли уже наблюдать при потере 317 млн руб., размещённых\u0026nbsp; на расчётных счетах банка «Огни Москвы», которые составляли гарантийный фонд правительства области, используемый для получения кредитов в коммерческих банках, и фонда микрофинансирования малого и среднего бизнеса. Тогда руководитель фонда государственного автономного учреждения Калининградской области «Фонд поддержки предпринимательства», утратив контроль за третью миллиарда рублей, был уволен с занимаемой должности, а два региональных министра промышленности и финансов отделались строгими выговорами. Этому способствовала особенность построения корпоративной структуры органов власти, когда решения принимаются представителем органа власти, а фактическое исполнение перенесено на некоммерческую организацию, учреждённую органом власти.\u0026nbsp;\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\t Механизм распределения субсидий также вызывает определённые вопросы. Заявленный в проекте постановления правительства Калининградской области механизм субсидирования носит «компенсационный» характер, в рамках которого происходит выделение субсидий резидентам ОЭЗ и юридическим лицам в рамках затрат, понесённых последними. Однако в рамках механизма предполагаемого контроля порядка получения субсидий будет осуществляться контроль за целевым расходованием субсидий получателями, и для этого предполагается даже выделение дополнительных штатных единиц.\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\t Не совсем понятен механизм контроля за целевым характером субсидий. По логике, изложенной в проекте постановления, компания будет получать компенсацию за уже понесённые убытки. То есть весь контроль документов, подтверждающих эти убытки, может быть произведён до выплаты субсидии. Последующий контроль распоряжения данными средствами может быть вмешательством чиновников в частные дела компании и созданием рисков злоупотребления для необоснованного отзыва субсидии.\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\t Ещё один вопрос, на который стоит обратить внимание, – это сама процедура получения субсидии, а именно её излишняя забюрократизированность.\u0026nbsp;\u0026nbsp;\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\t Фактически вместо одного субъекта – ГКУ «Управление государственной поддержки юридических лиц, осуществляющее деятельность на территории Калининградской области» – заявителю придется иметь дело с тремя властными структурами:\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\t 1. Министерством экономики Калининградской области – при заключении соглашения о предоставлении субсидий между Министерством экономики Калининградской области и получателем субсидий;\u0026nbsp;\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\t 2. Администрацией ОЭЗ – при получении заключения об отсутствии фактов нарушений со стороны резидента ОЭЗ в условиях реализации инвестиционного проекта;\u0026nbsp;\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\t 3. ГКУ «Управление государственной поддержки юридических лиц, осуществляющих деятельность на территории Калининградской области» – при сдаче пакета документов на получение субсидий.\u0026nbsp;\r\n\u003C\/p\u003E\r\n\u003Cp\u003E\r\n\t Помимо этого, резиденту ОЭЗ и юридическим лицам, желающим получить субсидию, придётся самостоятельно собирать справки из ФНС, государственных внебюджетных фондов (Пенсионный фонд РФ, Федеральный Фонд обязательного медицинского страхования, Фонд социального страхования РФ), что не отвечает принципам предоставления госуслуг. Логика предоставления госуслуг предполагает организацию межведомственного взаимодействия, в рамках которого органы власти обязаны самостоятельно запрашивать документы, имеющиеся в распоряжении иных органов власти, снижая объём документов, требуемых с заявителя.\r\n\u003C\/p\u003E","DETAIL_TEXT_TYPE":"html","~DETAIL_TEXT_TYPE":"html","PREVIEW_TEXT":"Антикоррупционеры о «чистоте» механизма, предлагаемого командой Кузнецовой для освоения федеральных субсидий объёмом до 60 млрд руб.","~PREVIEW_TEXT":"Антикоррупционеры о «чистоте» механизма, предлагаемого командой Кузнецовой для освоения федеральных субсидий объёмом до 60 млрд руб.","PREVIEW_TEXT_TYPE":"text","~PREVIEW_TEXT_TYPE":"text","DETAIL_PICTURE":{"ID":"3551137","TIMESTAMP_X":"08.06.2015 13:44:32","MODULE_ID":"iblock","HEIGHT":"280","WIDTH":"450","FILE_SIZE":"42136","CONTENT_TYPE":"image\/jpeg","SUBDIR":"iblock\/6e4","FILE_NAME":"6e4ff3048c03339cd5f13dcd3948825b.JPG","ORIGINAL_NAME":"правительство 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