Единая система публичной власти: дискуссионные аспекты нормативной регламентации (О.А. Кожевников, А.Н. Костюков, А.А. Ларичев, журнал "Правоприменение", том 6, N 3, июль-сентябрь 2022 г.)

Кожевников О.А., Костюков А.Н., Ларичев А.А. Единая система публичной власти: дискуссионные аспекты нормативной регламентации

О.А. Кожевников - доктор юридических наук, профессор, профессор кафедры конституционного права, профессор кафедры конституционного и международного права, Уральский государственный юридический университет, Уральский государственный экономический университет, г. Екатеринбург, Россия

А.Н. Костюков - доктор юридических наук, профессор, заслуженный юрист Российской Федерации, заведующий кафедрой государственного и муниципального права, Омский государственный университет им. Ф.М. Достоевского, г. Омск, Россия

А.А. Ларичев - доктор юридических наук, доцент, заместитель декана по научной работе факультета права, профессор департамента публичного права, Высшая школа экономики, г. Москва, Россия

Дается характеристика теоретических подходов и практики законодательного регулирования единой системы публичной власти, разворачивающейся после принятия поправок в текст Конституции РФ в 2020 г. По мнению авторов, в текущем законодательстве присутствуют как проблемы отражения целевого характера формирования единой системы публичной власти, вызванные в том числе спецификой конституционно-правового статуса местного самоуправления, так и сложности, связанные с законодательным отражением конструкции публичной власти и ее элементов. Авторы полагают необходимым для законодателя более внимательно осуществлять связанное правовое регулирование, обеспечивая непротиворечивость положений новых нормативных актов, принимаемых в развитие положений Основного закона государства.

Ключевые слова: единая система публичной власти, законодательное регулирование, местное самоуправление, государственная власть, структурные элементы

Kozhevnikov О.А., Kostyukov A.N., Larichev А.А. Unified system of public authority: debatable aspects of legal regulation

О.А. Kozhevnikov - Doctor of Law, Professor; Professor, Department of Constitutional Law; Professor, Department of Constitutional and International Law, Ural State Law University, Ural State University of Economics, Yekaterinburg, Russia

A.N. Kostyukov - Doctor of Law, Professor, Honoured Lawyer of the Russian Federation; Head, Department of State and Municipal Law Dostoevsky Omsk State University, Omsk, Russia

А.А. Larichev - Doctor of Law, Associate Professor; Deputy Dean for Research, Faculty of Law; Professor, Department of Public Law Higher School of Economics, Moscow, Russia

The subject of this study is the legal regulation of the unified system of public authority in the Russian Federation. Its purpose is to determine the theoretical approaches and practice of legislative regulation of a unified system of public authority, which is unfolding after the adoption of amendments to the text of the Constitution of the Russian Federation in 2020. The main hypothesis, which authors propose is that there is a contradiction between the norms of the acts, governing organization and activities of public authorities, and those norms in their relationship with the constitutional norms governing the relevant relations. In the course of the work, the authors used both general research methods, including methods of analysis and synthesis, as well as field-specific ones, including the formal legal method. The authors believe that the difficulties in reflecting public authority in normative regulation lie primarily in the fact that neither in Soviet legal research, nor in the current Russian legal thought, issues of public authority have been considered meaningfully and in detail. Its content and structure do not have a clear, complete doctrinal understanding. Foreign experience, however, shows that such a clear understanding at the theoretical level is absent in foreign jurisdictions either.

The authors maintain that the current Russian legislation pertains, firstly, the problems of reflecting the targeted nature of the formation of a unified system of public authority, caused, among other things, by the specifics of the constitutional and legal status of local government. On the one hand, world practice shows that although local government is a form of decentralization of public power in the state, it cannot be taken out of the brackets of public power as such. At the same time, in Russia, the basic constitutional characteristics of a unified system of public authority as an association of state and municipal authorities are supplemented by the intended purpose of this system, which is clearly defined in constitutional text. Going beyond this intended purpose and its unreasonable expansion in the current legislation raises the question of the constitutionality of the related regulation. Secondly, adopting new legislative acts and amending existing ones also raises difficulties associated with the legislative reflection of the very structure of public authority and its elements. It should be considered unreasonable to expand the list of public authorities outside the framework defined by the Constitution, as well as to introduce the category of a "single system of public authority of the subject of the Russian Federation". In light of the respective analysis, the hypothesis put forward in the article is confirmed. The authors, accordingly, consider it necessary for the legislator to implement the related legal regulation more carefully, ensuring the consistency of the provisions of new legislative acts - both in relation between the norms of the adopted acts, as well as in relation to the norms of the Constitution of the Russian Federation.

Keywords: Unified system of public authority, legislative regulation, local government, state power, structural elements