Russian model of public administration of the tourism industry. The structure of the tourism industry Federal authorities in tourism

In terms of the scale of international tourism, the federal structure and the way of organizing the tourism industry, the third management model is most acceptable for Russia.

Tourism in the Russian Federation is subject to state regulation and management, the state forms the tourism policy. The main goals, objectives, principles and directions of the state policy of Russia in the field of tourism are defined in Federal law "On the basics of tourism in Russian Federation"(1996), as well as in the Strategy for the Development of Tourism in the Russian Federation until 2015 (2008). The link between politics and tourism lies in the fact that the state regulates the development of tourism, and tourist activity requires intervention from the state from the standpoint of legal regulation. Political power similar to economic factors, it has the ability to directly (by issuing legal acts regulating relations in the field of tourism) and indirectly (the country's political course, decisions taken by the authorities in the international political arena, state ideology) impact on tourism.

The system that has developed to date reflects the ongoing process in Russia of the transition from a super-centralized administrative system based on the domination of state forms of ownership to an economic mechanism that combines various forms of ownership. Decentralization in a market economy involves the transfer of the right to carry out tourism activities to any enterprise, regardless of ownership. This process is accompanied by the creation of various kinds of associations, unions and unions. The management of the tourist complex is carried out within organizational structure, which includes three levels: macroeconomic, mesoeconomic and microeconomic (Fig. 1).

Figure 1. Organization of management of the tourism industry in Russia Sahak, AE, Pshenichnykh, Yu.A. Management in social and cultural services and tourism: Tutorial... - SPb .: Peter, 2007 .-- P. 52

Macroeconomic level

Onat this - federal - level, the subjects of tourism management include the President of the Russian Federation, the State Duma of the Russian Federation, the Government of the Russian Federation, Federal agency for tourism and the Federal Agency for physical culture and sports of the Ministry of Health and Social Development of the Russian Federation.

Under the President of the Russian Federation, there is a Council for Physical Culture and Sports, which should ensure:

Development of the foundations of state policy in the field of sports tourism;

Participation in the development of the legislation of the Russian Federation on sports tourism;

Coordination of work on the examination of regulatory legal acts and federal programs in the field of sports tourism;

Analysis of the state of national tourism and the development of proposals for its development.

The decisions of the Council for Physical Culture and Sports are of a recommendatory nature, its activities are carried out on a voluntary basis and with the frequency necessary for setting tasks and solving them.

In the highest legislative body - the State Duma of the Russian Federation - in 2003, legislative support for tourism was referred to the jurisdiction of the Committee on economic policy, entrepreneurship and tourism, and was previously carried out by a special Commission on Sports and Tourism. In the structure of the committee, there is a subcommittee on the development of the tourist services market, an Expert Council has been created, which includes leading representatives of the tourist industry and government agencies.

The general management of the tourist complex, the implementation of the tourist policy is carried out by the Government of the Russian Federation.

According to article 16 of the Federal Constitutional Law "On the Government of the Russian Federation", tourism and the sanatorium-resort sphere are part of social sphere Russia and constitute a single object state regulation... The Federal Law "On Natural Medicinal Resources, Medical and Recreational Areas and Resorts" (1995) states: "The Government of the Russian Federation determines the main directions of state policy in the field of sanatorium treatment and recreation." In accordance with common world practice and international legal acts spa treatment belongs to the category of medical and health tourism, which, if subsidized by the state, is also a type of social tourism.

The purpose of the tourism policy is to ensure the constitutional right of Russian citizens to rest and leisure, freedom of movement, health protection and other rights when traveling by creating a competitive tourism industry in the Russian Federation capable of self-development and ensuring high level life of Russians.

Tourism policy should be based on compliance with the Constitution of the Russian Federation, generally recognized principles and norms of international law and obligations arising from international treaties and legislation of the Russian Federation, as well as social and economic indicators and research of Russian and foreign tourist markets.

The priority directions of the tourism policy should be domestic, inbound and social tourism, including health-improving, sports, ethnocultural, ecological.

The governing bodies of the tourism industry of the Russian Federation in the period 1991-2004. underwent constant reorganization (Table 1).

Table1. Chronology of reorganizations of the state bodies of management of tourist activity in the Russian Federation Sahak, AE, Pshenichnykh, Yu.A. Management in social and cultural services and tourism: a textbook. - SPb .: Peter, 2007 .-- P. 53

On November 18, 2004, the Decree of the President of the Russian Federation was adopted, approved by the Regulation of the Government of the Russian Federation No. 901 of December 31, 2004, on the creation of the Federal Agency for Tourism, directly subordinate to the Government of the Russian Federation.

The Federal Agency for Tourism is the authorized federal executive body involved in the implementation of state policy, legal regulation, and public services and management of public property in tourism.

Central economic departments, such as the Federal customs Service countries perform important functions related to monitoring the observance of state interests in the field of state economy. This service is entrusted with the organization of customs and currency control, the publication of regulations on customs issues. These issues are important for the development of tourism.

The Ministry of Finance and the Central Bank of the Russian Federation play a significant role in the regulation of tourist business, which determine the procedure for financing and lending to tourist activities, monitor compliance with tax legislation, and issue regulations on these issues.

The main directions of state regulation of tourist activities are:

Protection of the rights of consumers of tourism services;

Creation of legal conditions for the effective functioning of the tourism market, including for attracting investments in the construction and reconstruction of tourist display facilities, hotels, as well as infrastructure necessary for the development of tourism;

Support for small and medium-sized businesses in the field of tourism; creating a competitive environment that does not allow the development of monopoly;

Promotion of Russian tourism on the international market;

Preservation and protection of cultural monuments;

Preservation of the cultural identity of the peoples of Russia;

Sustainable tourism development.

1. Development tourism in the Leningrad region

   Thesis \u003e\u003e Physical culture and sports

   ... , "ABOUT tourist activities in subject Russian Federation "," On support development tourism "," About development internal and ... organs government at all levels: 1. Organize work to improve tourist legislation RF and subjects ...

2. Formation features tourist market of the Sverdlovsk region

   Thesis \u003e\u003e Physical culture and sports

   Regional (municipal) program structures development tourism subject RF recommended by the Federal Agency for ..., objects of pilgrim tourism. Lack of organs management tourist activities at the level of the vast majority of municipal ...

3. Legal support tourist activities (2)

   Coursework \u003e\u003e Physical Education and Sports

   To the uncivilized development tourist market. The state should promote development tourist activities and create ... with bodies management special economic zones implementation agreement tourist-recreational activities in order...

4. Government regulation tourist activities (1)

   Abstract \u003e\u003e Physical culture and sports

   Established by law RF... Coordination tourist activities in RF implements federal organ executive power... development tourist industry. Although many programs have declared that for development tourism and effective management ...

5. Legal support tourist activities (3)

   Examination \u003e\u003e Physical culture and sports

   Local regulations organs government and management obligatory for all ... regional (municipal) programs development tourism subject Russian Federation "from ... 10 of the Law on the basics tourist activities in RF: Each side ...

Tourist office

Forms of ownership

Travel agents and tour operators can have a variety of forms of ownership. They can be private, public, joint stock companies - essence business activities and their market functions do not change from this.

Despite the fact that many firms, especially those operating in underdeveloped markets tourist services, simultaneously perform both functions, i.e. there are agents who undertake the organization of a trip, and tour operators who, to one extent or another, independently implement retail sales, one should distinguish between these two groups of economic entities, since the agent retail is a retailer and a tour operator is a manufacturer of a tourism product.

Depending on the nature of the activities carried out, the bureaus are classified into those engaged in tourism: domestic, international, departures and arrivals, services on the way.

The most common office model is:

Small (up to 6 people),

Organizes own trips abroad to a specific country or area,

Mediates the sale of offers from large travel agencies,

· Organizes own trips inside the country,

Mediates the sale of travel packages domestic tourism other bureaus or owners of the hotel base,

Mediates the sale of international bus tickets,

· Mediates in the sale of tickets for various sports, cultural, entertainment, etc. activity,

- on behalf of the client, deals with the registration of passport and visa formalities,

· Provides insurance.

Topic 2.2. Tourism management in the Republic of Belarus

The relevant authorities are dealing with tourism problems in Belarus. a kind of system of organizational and managerial measures for the development of tourism has been formed in the republic and is constantly operating and improving.

Activities of the Ministry of Sports and Tourism of the Republic of Belarus

The main role belongs to the Ministry of Sports and Tourism, which is designed to create conditions for being involved in active tourism. He is entrusted with tasks related to planning and financing of mass tourism activities, economic support of this work, management of planned amateur tourism, as well as private issues (development and approval of classification routes, tourist trips, rules for conducting tourist events).

The Ministry of Sports and Tourism of the Republic of Belarus is the central governing body and is subordinate to the Council of Ministers of the Republic of Belarus. The Ministry is responsible for the implementation of state policy in the field of physical culture, sports and tourism. In its activities, the ministry is guided by the legislation of the Republic of Belarus.

The Ministry carries out its activities in cooperation with other ministries and departments, public health and fitness and sports associations, local executive and administrative bodies.

The main tasks include solving problems related to the implementation of a unified state policy in the field of tourism, developing concepts aimed at improving this area, monitoring the organization personnel policy, implementation of research activities and innovations in the field of travel services.

The Ministry has the right to issue decrees, orders and instructions that are binding on other ministries and other central government bodies, local executive and administrative bodies, as well as legal and individuals; it has the right to represent the republic in the international arena, sign treaties and agreements in the field of tourism.

The ministry is headed by a minister who is appointed and dismissed by the President of the Republic of Belarus. Currently it is Oleg Leonidovich Kachan.

To consider the most important issues in the ministry, a collegium is formed consisting of a minister (chairman of the collegium), deputy ministers by office, as well as other employees of the ministry and subordinate organizations and institutions. The composition of the board is approved by the Council of Ministers of the Republic of Belarus. The decisions of the collegium are implemented by orders of the minister.

The Republic of Belarus has a system of tourist authorities and organizations that covers all issues related to tourism. Its influence covers all labor and educational collectives. Its main tasks are to create maximum conditions for the mass involvement of people in active tourism.

Shulga Cheslav Kazimirovich - Deputy Minister of Sports and Tourism, in charge of tourism issues.

The unitary enterprise "National Agency for Tourism of the Republic of Belarus" was created by the Ministry of Sports and Tourism in September 2001 and is designed to provide service maintenance participants tourist market... Today the agency's team employs 36 people, it is represented by the head office in Minsk and 5 branches in the regional centers.

Together with the UNESCO Bureau in Moscow, the National Tourism Agency supports the information project “Youth Cultural and Educational Tourism in Belarus”.

The agency acts as a partner in the joint project Tempus ib-jep-23015-2002 "Creation of a center for retraining and advanced training for leaders and specialists of the tourism industry of the Republic of Belarus."

State Duma deputy said he was ready to initiate a relevant bill

On January 26, a deputy from the LDPR faction, Roman Khudyakov, in his interview to the Mir24 TV channel, expressed the idea of \u200b\u200bthe need to create a ministry of tourism in Russia. Despite the fact that he spoke about it in the subjunctive mood - "we can be one of the initiators of the development of this bill", the topic caused a great resonance in the media, and they started talking about the bill on the creation of a new government body as something already real, if not say - inevitable.

The topic itself is not new: market participants periodically advocate the creation of a separate Ministry of Tourism. As a rule, this happens with the next reshuffle in the structures of power, and the last time they started talking about it at the time of transfer of Rostourism to the subordination of the Ministry of Culture. Now the topic has become relevant against the backdrop of both everything that is happening on the market and the legislative processes taking place in the power structures.

It should be noted that Roman Khudyakov spoke about the creation of a ministry exclusively in the context of the development of domestic tourism: “The Ministry will provide a specific approach to tourist destination... Frankly, we need a separate structural unit that would directly deal with our resorts, ”– the deputy said.

Now domestic tourism is really in a demand trend - many tour operators and agents are switching to it. However, how much does the market really need the Ministry of Tourism? The opinion of experts on this matter is not unambiguous: on the one hand, it will not change anything globally, but on the other hand, this question may be economically justified.

Georgy Mokhov, Deputy Minister of Culture of the Moscow Region:

“Today, and so there is a ministry in charge of tourism issues - everything that is needed has already been created and is quite well-organized. Of course, if the structures are transferred to a separate ministry, then the status of the tourism industry will noticeably increase, although, in fact, nothing will change from this in terms of work.

But if back in 2013 I was against the allocation of a separate Ministry of Tourism, now I rather support this idea– due to how much the economic conditions in which the tourism industry exists. Perhaps the creation of a separate ministry would be a serious step towards changing the attitude of the state machine towards tourism as an independent economic sphere. "

Ilya Umansky, cEO tour operator "Alean":

“It is fashionable now to raise the topic of domestic tourism, although in reality it would be fairer to talk about the development of both inbound and outbound tourism. The desire to get their own ministry is due to the fact that the industry was constantly transferred from one structure to another, and therefore everyone, of course, wants certainty and stability. But, by and large, it is not so important which organization controls the industry, but who exactly is at the helm. If this is a person who understands the specifics of the market, can lobby for its interests and knows what and for whom he is doing, then it does not matter whether he is the Minister of Tourism or the head of a federal agency. "

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The system of organizing tourism management in Russia at the federal and regional levels.

Tourism, like any industry, requires regulation: tourism management is an important area of \u200b\u200bactivity that helps to achieve the best result.

The main goal is, first of all, economic effect, not only for the components of the sphere, but also for the region as a whole.

Russian tourism management looks like this:

1) The president is at the head of any sphere and industry.

2) He carries out direct interaction with the Council for Culture and Art under the President of the Russian Federation, and indirect links - with the Government of the Russian Federation and legislative bodies.

3) The above Council is directly related to the Ministry of Culture of the Russian Federation. The Government of the Russian Federation and the Committees of the State Duma on culture and legislation in the field of tourism are indirectly connected with it.

4) The Ministry of Culture of the Russian Federation, which regulates tourism, has indirect or methodological ties with the state, social and private sectors.

5) B public sector there are Tourism Committees of the administrations of the constituent entities of the Russian Federation, which are directly related to the tourist organizations of the regions.

6) The committees for tourism of the administrations of the constituent entities of the Russian Federation have direct links with the committees and commissions in the legislative bodies of the constituent entities of the Russian Federation.

In the state regulation of tourism, there are two levels - federal and regional (the level of the subject of the Federation). Both the first and the second levels use different forms and methods of regulation. At the same time, some forms and methods are inherent in only one level, which is predetermined by the division of powers in this area between the federal center and the regions. The support of the subjects of the tourism sector on the part of state authorities (the state) can be direct and indirect. For example, the issuance of a state loan to an enterprise of the tourism industry is its direct support, and the training of personnel for such enterprises in state educational institutions - indirect support.

In Russia there are:

Russian Association of Travel Agencies;

All-Russian People's Tourist Society

Russian Hotel Association, etc.

The main tasks that any tourism management bodies are called upon to solve are to support the stability of the economy, increase the indicators of the tourism industry, and increase the amount of incoming foreign currency.

The methods of state regulation of tourism are disclosed in sufficient detail in the Federal Law, a number of laws of the subjects of the Federation and scientific literature on this issue.

Since regulation is one of the management functions, it is carried out by the executive authorities in the field of tourism. On federal level such a body is the Federal Agency for Tourism (Rostourism). The subjects of the Federation themselves establish the bodies responsible for the tourism sector and their structure.

Depending on the scale of the tasks solved through tourism activities, in the constituent entities of the Federation, the government (administration) may have specialized committees, such as in Moscow and the Moscow region, or structural units as part of a multidisciplinary committee, such as the tourism department in The Committee for Physical Culture, Sports, Tourism and Youth Policy of the Leningrad Region or the Department of Tourism in the Committee for Investments and Strategic Projects of St. Petersburg.