State management of migration processes in the Russian Federation. State management of migration processes

Introduction

In the process of economic and political transformations in the late 1980s and early 1990s, a new institutional environment emerged in Russia, the migration situation changed dramatically, new forms of migration emerged, and funding for a number of state migration programs ceased. As a result, many methods of regulating internal migration processes, which were actively used within the framework of a planned economy and an administrative-command management system, largely lost their effectiveness with the beginning of market reforms. In the context of a transitional economic system, the achievements of the Soviet period in the field of formation of a permanent population in the regions of the Far North, regions of Siberia and the Far East in connection with the curtailment of industrial and housing construction, as well as the growth of unemployment in these regions, have become an acute socio-economic problem, for the solution of which it was necessary to develop new approaches and tools. Thus, there is a need for a new migration policy that is adequate to the realities of Russia’s transitional economic system.

One of the negative aspects of the 1990s should be recognized as the chaotic development of migration legislation, which was largely due to the lack of a clear conceptual basis for state migration policy.

1. Migration management at the federal level

At the federal level, migration management has long focused on the reception and accommodation of forced migrants (refugees and internally displaced persons). IN last years The emphasis shifted to the fight against illegal immigration, which was clearly reflected in the laws on citizenship and foreign citizens. At the same time, the problems of settling refugees and internally displaced persons faded into the background, despite the fact that the state never fulfilled its obligations to a significant part of them in the 1990s. For the Ministry of Internal Affairs, which is currently in charge of migration management, migration problems are obviously of secondary importance. most importantly, they seem to be solvable using traditional prohibitive and control methods for this ministry. The real contribution of the state to the regulation of migration lies in the increasingly complex system of control and registration, which is mandatory for both internal and external migrants. This system is extremely bureaucratic and at the same time ineffective, because it is very easy to “bypass”, given its corruption . Today in Russian legislation the number of regulatory legal acts affecting certain aspects of managing migration processes includes more than a dozen federal laws, over fifty current decrees of the President of the Russian Federation, decrees and orders of the Government of the Russian Federation, regulations of various ministries and departments, as well as several dozen interstate and intergovernmental agreements. However, despite such a variety of federal legal experience, as well as a huge array of laws and other regulatory legal acts adopted in the constituent entities of Russia, issues of managing internal Russian migration processes are practically not reflected in the modern migration legislation of the Russian Federation. Currently, the Federal Migration Service of the Ministry of Internal Affairs of Russia, in the figurative expression of the deputy. the director of this service, General M. Tyurkin, “basically only monitors internal migration processes, but does not regulate them.”

Thus, internal migrations (so significant for the socio-economic development of the country and representing the usual object of management in pre-revolutionary Russia during the Soviet period) are practically ignored without any logical explanation for this approach of the state. This is all the more unjustified, given that the scale of internal population movements significantly exceeds external migration. We have to admit the fact that in Russia there is still no officially approved state strategy in the field of managing migration processes, which would take into account the objective factors of the present and future development of the country and link together all types and types of migration movements, the interests of the federal state and its individual, and Also various groups population, including migrants. The concept of regulating migration processes in the Russian Federation, approved by decree of the Government of the Russian Federation on March 1, 2003 (No. 256-r), does not eliminate this gap, since it addresses issues of improving legislation in the field of migration in a generalized form and does not contain clear guidelines regarding the country’s migration policy . However, the most The big failure of the current state migration policy is the absence of any policy regarding internal migration .

To achieve optimal results, in our opinion, it seems advisable to quickly develop and adopt Concepts of state migration policy, which is designed to determine the main directions for the implementation of state policy. The concept should act as a general approach, a general idea that unites all migration policy measures into a consistent system. The fundamental idea of ​​the concept should be the understanding that migration - this is not an evil that needs to be fought using the entire powerful repressive apparatus of the state, but good for Russia.

The economic growth observed in Russia, leading to the emergence of inevitable territorial and sectoral disproportions in the distribution of the population and labor force, along with a significant reduction in the working-age population due to an unfavorable demographic situation, necessitate interregional redistribution of the population, taking into account the needs of the economy and the interests of Russia's national security. Theoretically, the mechanism for such population redistribution should be internal migration, designed to mitigate significant regional differences and more effectively use Russia's scarce labor resources. At the same time, as we have shown in previous chapters, administrative barriers and the insufficient degree of development of the Russian labor and housing markets, as well as the financial market, lead to the ineffectiveness of market mechanisms for regulating migration flows within the country.

2. Historical experience in regulating migration

Historical experience shows that in Russian conditions, solving resettlement problems is possible only with the organizing role of the state at all stages of the migration process, right up to settlement. The latter necessitates a targeted state policy in the field of internal migration management and, accordingly, the development of a set of measures to improve state migration policy at the federal and regional levels, aimed at encouraging the movement of residents between regions of the country. Such a set of measures, among other things, should be based on the historical practice of regulating migration processes in Russia, the results of ongoing monitoring of the socio-economic development of territories, and coordination of the efforts of federal and regional authorities in this direction.

As our analysis of Russian migration policy in historical retrospect has shown, the practice of state regulation of migration processes in Russia has deep historical roots and a theoretical basis developed in relation to specific historical, natural, climatic and socio-economic conditions of the country's development. Certain methods of regulating (primarily economic) internal migration of the population, used both during the Russian Empire and in the Soviet Union and which have shown their effectiveness, can be successfully used in modern Russia.

Internal migration policy is a system of generally accepted at the level of ideas and conceptually combined measures to stimulate or limit population movements within the country in volumes and directions that take into account the specific historical conditions of the country and meet the current and future development goals of the country and its individual regions.

To ensure optimization of the structure and scale of intra-Russian migration flows within the framework of state migration policy, the following provisions provided for by regulatory legal acts may be applied: methods of migration regulation (migration policy measures), How:

administrative ( providing for administrative liability, including civil servants, for violation of existing regulations);

economic ( providing tax benefits, providing financial assistance for moving and settling in a new place, regulating the cost of renting and purchasing housing, etc.);

propaganda, socio-psychological ( providing for a targeted impact on the system of preferences and value orientations that shape the migration behavior of the population).

All measures can also be divided into stimulating and limiting the migration mobility of the population. Modern realities predetermine the need for state management of migration processes, primarily through the use of economic incentives for resettlement to certain regions of the country.

In our opinion, state policy in the field of regulation of internal migrations in the Russian Federation must combine the interests of the individual, society and the state. Her fundamental goals should become:

Protecting the rights and freedoms of citizens of the Russian Federation, ensuring the fullest realization of the economic potential of individuals;

Ensuring sustainable socio-economic and demographic development of the country, rational distribution of the population in the country, taking into account the needs of the country’s economic development;

Protecting national interests and ensuring the security of the Russian Federation. As part of the implementation of the first fundamental goal, it is necessary to eliminate (formal and informal) administrative barriers to internal migration and ensure freedom of movement for Russian citizens and their choice of their place of residence and stay within the country. Currently, without permanent registration in a given region (locality), it is almost impossible to get a job not only in Moscow and St. Petersburg, but also in other regions and individual cities, even those where the unemployment rate is low.

It is necessary to bring the established practice of formal and informal restrictions on internal migration of citizens through the institution of registration at the place of residence and place of stay in accordance with the norms of federal legislation. A real solution to this problem will be the transition from permitting to application-based registration at the place of residence. It should be noted that this measure can be introduced in short term, since it is prepared by law and does not require significant financial costs. The main thing is to provide state control on the part of the internal affairs bodies for its compliance. Disciplinary and administrative measures should be immediately applied to persons who create administrative barriers for migrants.

It also seems appropriate creation of a single centralized information resource (information system), which would reflect the movements of citizens and their permanent location, as well as the state guarantees and social support provided to them. The creation of such an information system will improve the statistical accounting of intra-Russian migrations, and is also necessary for the development and implementation of effective state regional policy. Only the availability of complete and reliable information about migration processes will make it possible to rationally and effectively regulate migration movements in the region.

Similar systems existing in economically developed countries (for example, the social insurance and social security system in the USA) can be taken as a model. At the same time, when creating a system, issues of security of personal information must be considered.

To achieve the first and second fundamental goals, it is necessary to eliminate economic barriers to migration, that is, to ensure the financial opportunity to move labor resources from labor-abundant regions to labor-deficient ones, as well as solve the problem of employment and settlement of migrants in a new place. At the moment, a significant part of the population of Russia has fallen into the so-called “poverty trap,” the essence of which is that, despite the desire to change their place of residence, individuals do not have the minimum financial means to allow them to move.

In our opinion, it is necessary to develop measures of state financial support for certain categories of migrants. Such measures should be addressed, first of all, to citizens registered with regional employment authorities and living in depressed regions, as well as citizens traveling to regions of the country that are important from the point of view of national security interests.

An example of such assistance can be taken from state guarantees and social support measures provided to participants in the State Program to Assist the Voluntary Resettlement of Compatriots Living Abroad to the Russian Federation, including:

compensation for the costs of moving an internal migrant (in some cases also members of his family) to a new place of residence;

compensation for the costs of transporting a migrant’s personal property;

provision of a one-time allowance for arrangement ("lifting");

providing long-term loans for the construction or purchase of housing, provision of land for building a house;

receiving a monthly benefit in the absence of income from labor, entrepreneurial and other activities not prohibited by the legislation of the Russian Federation, but not more than for six months. The amount of the benefit should be determined taking into account the minimum subsistence level established in the relevant constituent entity of the Russian Federation;

receiving a social package that includes services from state and municipal institutions of preschool education, general and vocational education, social services, health care and public employment services.

State financial assistance can be provided both on a reimbursable basis (for example, for unemployed citizens who have found work in another region of the country) and on a gratuitous basis (for citizens traveling to regions that are strategically important from the point of view of the national security interests of Russia, characterized by a population decline ).

3. Main difficulties in migration management

Internal movements of citizens are significantly limited by the underdeveloped institutions of the Russian housing market. At the same time, the obstacle to increasing the migration mobility of the population is no longer the absence of the housing market as such, not the inability to rent or change housing, but a combination of institutional factors (underdevelopment of mortgage lending, narrowness of the low-cost housing market combined with low labor costs and the almost complete impossibility of accumulating funds for purchase of an apartment for the majority of citizens), and geographically natural barriers (wide price range for housing in different regions and in different types settlements). Now, if a person moves from region to region, it is impossible to rent municipal housing - to do this, you have to be on a waiting list for years; enterprises have practically no dormitories left. The only alternative is to buy or rent housing on market conditions, which is tens and hundreds of times more expensive than municipal housing.

It is necessary to overcome the enslavement of the population by the underdevelopment of housing market institutions. The solution to this problem can be provided using the following methods: promoting the widespread dissemination and development of the mortgage institution; promoting the development of a system of affordable municipal and/or corporate housing; promoting the creation of a civilized housing rental market; state support for development companies (taking into account the region’s needs for population and labor). Maximum availability of housing on market conditions for the vast majority of the population must be ensured. An average-paid worker who finds a job in a particular region should be able to use his salary to find acceptable housing without going hungry, wearing rags, or sacrificing the education of his children. It is also necessary to develop a mechanism for effectively ensuring the protection of private property, primarily housing, since currently home owners often refuse to register tenants for fear of losing their housing.

The creation of an effective housing market will lead to the fact that the priority when choosing a location will be the availability of vacancies in a given region and the proposed salary level. The latter will allow the formation of an effective interregional labor market in Russia. A significant barrier to internal migration is the segmentation of the Russian labor market. As the analysis shows, at present, intra-regional migration predominates in intra-Russian migration flows (almost 60%). The consequence of the latter is a decrease in the influence of intra-Russian migration on equalizing disproportions in the socio-economic development of regions through the redistribution of labor between regions. As a result, in modern Russia, instead of a “single labor market,” there are relatively closed, independent and autonomously developing regional labor markets. In addition, in Russia there is no developed information base about available vacancies; a significant part of people (especially in the regions) are forced to look for work through friends, acquaintances, using other informal job search channels.

Increased migration mobility of individuals will be facilitated by creation of a network of regional (interregional) information and legal consultation centers and labor exchanges ; the formation of a unified Russian vacancy bank (national vacancy bank) and a national bank of citizens ready to change their place of residence (taking into account their wishes); support for recruiting companies; creation of a federal system for recording information on labor force needs in various regions; promoting the development of lending for self-employment and small businesses. It seems important to combine the efforts of government services and non-state information intermediaries, primarily in the electronic employment market. The main task of interregional labor centers should be to provide citizens-potential migrants with information about the possibilities of intra-Russian resettlement; about territories and settlements that are promising or not recommended for settlement; providing support to migrants from unpromising settlements, allowing migrants to consciously and purposefully make decisions about resettlement. Interregional labor centers, as well as territorial departments of the employment service, should have a database of available vacancies throughout the country, a list of leading enterprises and organizations in a given region with characteristics of their industry structure and professional qualification requirements for employees; promising areas for the development of private entrepreneurship and small business. If possible, the data bank should include information about the availability and possibility of obtaining housing, a list. Since at present enterprises do not always provide information about open vacancies to the employment service, it may be necessary to legislate the company’s obligation to provide information about it to the employment service when a vacancy opens.

As part of the implementation of the third fundamental goal, it is necessary to create conditions for the preservation and further formation of the population in geopolitically important regions of the northern, eastern and border regions of the Russian Federation. The dramatic change in the directions of intra-Russian migration flows that occurred in the 1990s compared to previous decades led to a significant reduction in the population in regions of Russia that are strategically important from the point of view of national security interests. The decline in the population of the northern and eastern regions of Russia, in turn, destroys the labor potential adapted to the natural conditions of these regions and in the future may become a threat to the implementation of large investment projects.

Public policy measures should be aimed at restoration of economic activity of enterprises located in the Far North, Siberia and the Far East, by pursuing an active economic policy in these regions, including the development and implementation of investment programs, provision of tax incentives and subsidies; for the development of social, transport and market infrastructure, housing construction in these regions.

Conclusion

Thus, increasing internal mobility of the population is a necessary condition for ensuring sustainable socio-economic development of Russia. In this case it is necessary systematic approach to regulating internal migration flows and organizing interaction between federal government bodies and the authorities of the constituent entities of the Russian Federation, public organizations and the business community. The goals and objectives of the migration policy of the Russian Federation must be consistent with forecasts and programs for the socio-economic and demographic development of individual territories and subjects of the Federation; Migration policy should be carried out in close connection with state employment policy and regional development policy. The practice of patching up migration holes must give way to a comprehensive, balanced migration policy aimed at encouraging the internal migration mobility of citizens, taking into account the priorities of the country’s socio-economic development. In turn, increasing population mobility will make it possible to more quickly respond to challenges related to the implementation of economic modernization policies and the promotion of sustainable economic growth, including increasing the role of the processing and innovation sectors in economic development.

Bibliography

1. Aleshkovsky I.A. Internal migration of the population in modern Russia: trends, determinants, policies. M.: Faculty of Economics of Moscow State University, TEIS, 2008.

2. Vorobyova O.D. Migration policy. Series "Population Migration". Supplement to the magazine "Migration in Russia". Issue 6.M., 2001.

3. Mukomel V.I. Migration policy of Russia: post-Soviet contexts / Institute of Sociology of the Russian Academy of Sciences. M.: Dipol-T, 2008.

4. Regent T.M. Migration in Russia: problems of public administration. M.: ISPEN Publishing House, 2007.

Migration policy of Russia in modern conditions

Awareness of the demographic problems of the Russian Federation has become widespread. The proportion of people of working age in the age structure is becoming smaller and larger, and the number of pensioners is increasing, including for health reasons. Migration flows within the country do not meet the needs of economic development; some regions are threatened by the outflow of an already small population.

After the collapse of the Soviet Union, migration policy in Russia was carried out largely unsystematically and uncoordinated, since it was a direct reaction to the flows of refugees resulting from interethnic and military conflicts. Since then, the nature of migration has changed - it has moved to a calmer stage, where migration is determined not by situational challenges, but by long-term trends - the state of economic, demographic and regional policies.

To implement migration policy as part of the state management system, an institutional structure has been created in the country and has been operating for many years - the Federal Migration Service of Russia, which includes: a central institution with regional branches, personnel and an appropriate budget; distribution of responsibilities between central, regional and local authorities, public and non-governmental organizations dealing with migrant issues; information system, including research support; regulatory framework on issues of population migration, immigration and citizenship; a mechanism for monitoring the implementation of legislation and the expenditure of budget funds; technical capabilities to implement immigration controls; system for training qualified personnel.

The state initiates the formation legal framework and the corresponding strategy for regulating migration processes. However, the functioning of the modern Russian migration system is contradictory and this stimulates the search promising directions and approaches to resolve them. Today, neither in society nor in the government there is unity in approaches to state migration policy. The Ministry of Labor and Economic Development puts increasing labor mobility among its immediate priorities, while law enforcement agencies are pursuing a restrictive migration policy, contributing to the spread of migrant phobia.

Thus, the “Concept of demographic development of the Russian Federation for the period up to 2025” enshrines the complexity of solving demographic problems, which, along with others, includes population migration, but this document is only advisory in nature.

The lack of a scientifically based state migration policy in the Russian Federation has a negative impact on the situation in this area as a whole. Thus, new bills adopted at the end of 2006, liberalizing the practice of attracting foreign labor, seriously transformed the migration system and led to mixed results. The introduction of a quota system for attracting foreign labor did not pay off in the metropolitan metropolis due to low level development of the control system necessitated the need to adjust the number of quotas downwards, which inevitably caused an increase in the illegal component of labor migration. The introduction in 2010 of a certification system for attracting foreign labor to the private sector of the economy will entail considerable problems taking into account the flow of labor migrants. However, these measures were dictated by the needs of the labor market and the need to legalize a large number of migrant workers working illegally in the private sector. Thus, the labor market acts as an institution for indirect regulation of migration processes.

According to A. S. Chesnokov, “Analysis of the problems of institutional design of migration policy - its support, delimitation of powers and functions of government bodies, their departmental interaction, as well as coordination of efforts at all levels of state, regional government and local self-government - shows the complexity and inconsistency of existing approaches with their permission."

Social design in regulating population migration

The liberalization of migration practices has confronted authorities and management with the need to find ways and methods of transforming population migration into a factor in the development of society while maintaining a balance of interests of the individual and the state.

In this regard, the issue of using social design in the field of population migration and the use of targeted comprehensive programs as a tool for implementing state migration policy was resolved based on the methodology developed by Russian and foreign scientists

It was in the long-term target program “Migration” that, for the first time in modern practice, the priority directions of Russia’s migration policy, the principles of attitude towards forced migrants, and the list of requirements for its legal, organizational and financial support were formulated. Subsequently, this program was modernized, created the basis for developing the concept of migration policy, measures and mechanisms for its implementation, but inevitably faced the problem of underfunding, typical of that period, and was not implemented in full. However, the constructive potential of the program-targeted method of regulating migration problems was developed in subsequent program documents at both the federal and regional levels.

A new stage was the adoption of the Federal Migration Program for 1998-2000, which set a high standard not only for development, but also for ideological elaboration, instrumental support of migration policy, and contained schedules for the adoption of regulatory legal acts and financing of activities for various categories of migrants. This made it possible to fulfill all the main objectives of this document, provide housing to 17.2 thousand people, benefits to 345 thousand forced migrants, carry out medical and psychological rehabilitation of almost 6 thousand people, provide financial assistance to 29 subjects of the Federation in the creation of engineering and social infrastructure in places of compact settlement of forced migrants, more than 50 thousand people were not admitted for immigration reasons. and about 40 thousand were deported.

The next Federal Migration Program for 2002-2005, according to experts, was even more carefully worked out, because took into account many new trends, but along with other similar documents, was rejected by the Government of the Russian Federation. To this day, migration processes are regulated by the Concept of Demographic Development of Russia until 2025 and the Concept of Migration Policy of Russia - a document that is only advisory in nature.

Social design is currently actively used in solving migration issues in a number of regions of Russia as part of the implementation of the State Target Program for promoting the resettlement of compatriots. It is important that resettlement organizations and communities actively participate in the development and implementation of regional programs, which sometimes independently developed their own program documents based on a program-targeted approach. However, one of the main disadvantages of this method is the deficit of regional budgets and their incomplete fulfillment of program obligations.

The effectiveness of regulating migration processes in Moscow is one of the most pressing and most complex tasks being solved by the Moscow Government, which actualizes the need for an appropriate regulatory framework. An important milestone in the development of the capital's model for regulating migration processes was the policy documents that established the program-targeted approach as the main management tool.

Thus, the Moscow City Target Migration Program for 2008-2010, differing from the previous three, has noticeably evolved in the formulation of tasks and principles for regulating migration.

The entry into force (January 2007) of updated migration legislation, which simplified the procedure for attracting and employing foreign workers, showed that the notification procedure for migration registration and strengthening of sanctions for violating the rules, although they contribute to the reduction of illegal migration, at the same time minimize the rights of the subjects of the Federation in regulation of migration processes taking place on their territory deprives them of the opportunity to control the number of labor migrants, receive timely information about the scope of their employment, living conditions and health status.

In this regard, the strategic goal of the mentioned migration program was a consistent refusal to attract low-skilled foreign workers, the use of domestic labor resources, and overcoming labor dumping by radically increasing the level of pay based on growth in labor productivity.

An integral part of the capital model is the Moscow City Action Plan to facilitate the voluntary resettlement of compatriots living abroad to the regions of the Russian Federation for 2007-2009, the peculiarity of which is that the capital, being the largest transport hub, is actively involved in this area .

A characteristic feature of the Moscow model for regulating migration processes is the traditionally close attention to the sanitary and epidemiological situation in the city in conditions of the spontaneous nature of population migration. The new legislation turned out to be not fully developed in this area either; the current scheme provides for obtaining a work permit before undergoing a medical examination, and 14.5% of migrants who arrived in Moscow were infected with diseases dangerous to others.

The basis of the Moscow migration model remains the program-targeted approach, which has proven its effectiveness, allowing it to solve specific problems in the sphere of economics, demographic and social development; an uncompromising position in defending the legitimate interests of Muscovites and the entire city in matters of regulating migration processes; consistent steps to replace foreign labor migrants with Russian citizens arriving from other regions; priority in employment for those who intend to stay in the capital permanently; flexible and generally effective interaction with the Federal Migration Service of Russia and its structural unit in Moscow in terms of joint preparation of draft laws and policy documents.

Thus, the following conclusions can be drawn:

To implement migration policy as part of the state management system, an institutional structure has been created in the country and has been operating for many years - the Federal Migration Service of Russia.

The state initiates the formation of a regulatory framework and an appropriate strategy for regulating migration processes. However, the functioning of the modern Russian migration system is contradictory, and this stimulates the search for promising directions and approaches to resolve them. Today, neither in society nor in the government there is unity in approaches to state migration policy.

Obvious is the weak coordination of the main institutions for regulating migration processes - the state, the labor market and the system of contractual relations, which is largely due to the undeveloped technology of their interaction, the inadequacy of the regulatory framework and the lack of clearly defined and recognized goals and objectives of state migration policy.

Social design is currently actively used in solving migration issues in a number of regions of Russia as part of the implementation of the State Target Program for promoting the resettlement of compatriots.

The basis of the Moscow migration model remains a program-targeted approach that has proven its effectiveness, allowing it to solve specific problems in the sphere of economics, demographic and social development.

It can be stated that social design, as one of the methods in the system of state management of the migration behavior of the population, fully justifies itself, because based on the modernized legal framework for regulating migration processes in Russia, allows you to quickly respond to changes in the migration situation. A methodological and methodological basis for the application of social design in this area has been developed and can be applied when restoring the practice of developing federal and regional medium-term migration programs.

COURSE WORK

“Migration policy in the Russian Federation at the present stage”

Plan

Introduction

General features of migration processes in the Russian Federation

1.1 State of the migration situation in the Russian Federation

1.2 Assessments of the migration situation and prospects for migration policy of the Russian Federation

National Security and Migration Policy

2.1 Problems of developing an effective state migration policy

2.2 Mechanisms for regulating migration processes

3. State management of migration processes in the Russian Federation

3.1 Goals, principles and objectives of regulating migration processes in Russia

3.2 State regulation of migration processes in the Russian Federation

Conclusion

Bibliography

Introduction

At the turn of the 20th and 21st centuries, Russia, like most developed countries, faced a significant decline in population as a result of rising mortality and declining birth rates. In comparison with other countries, the decline in Russia's population is exacerbated by the geopolitical contradiction between the vast state territory, the possession of countless natural resources and the need to preserve this unique territory, population, and other material and spiritual resources.

The current migration situation in Russia has formed as a result of changes in the political, socio-economic, legal, demographic and other spheres that have occurred in the post-Soviet space since the early 90s of the 20th century.

The transformation of the labor market, living conditions of people, social, family and other relations was clearly manifested in the migration of the population, leading to a sharp decrease in its migration activity, and the formation of qualitatively new migration flows.

The legal regulation of the state's dynamic migration policy basically adequately reflects the quantitative and qualitative changes in the emerging migration situation.

Currently, population migration is a socio-economic, regulatory and legal phenomenon, ambiguous in its essential, substantive and procedural basis. Streamlining the migration process, as a rule, affects the flow of population leaving one area and the arrival of migrants from other areas. The peculiarity of the migration process lies in the diversity of its types (immigration, emigration, resettlement, readmission, external labor migration, etc.)

The end result of the migration process is the survival of the displaced population in the new area, confirmed by regulatory and legal government documents.

Migration policy is a system of ideas generally accepted at the management level and conceptually combined means, with the help of which, first of all, the state, as well as its public institutions, observing certain principles corresponding to the specific historical conditions of the country, involves the achievement of goals adequate to both this and subsequent stage of development of society.

General features of migration processes in the Russian Federation

1.1 State of the migration situation in the Russian Federation

Migration processes in Russia in the past decade were determined by the influence of negative and positive factors. Negative factors include the collapse of the former USSR, manifestations of nationalism, terrorism, insecurity of certain sections of the country's state border, deterioration in the quality of life of people and the state of the environment, economic instability and social conflicts. At the same time, positive factors include the democratization of socio-political life, the implementation of the constitutional principle of freedom of movement, the development of market relations and entry into the international labor market.

Immigration to Russia, including from countries with difficult socio-political, economic and sanitary-epidemiological conditions, is large-scale. Foreign communities are intensively forming in border areas. There is no effective state control over migration processes.

The long-term problems of many forced migrants who decide to stay in the Russian Federation are being slowly resolved. They often face serious problems in terms of social protection. Due attention is not paid to solving the problems of organized resettlement of forced migrants, the transition from providing them with first emergency assistance to creating conditions for a normal life, ensuring employment and respecting human rights. Problems of socio-economic adaptation of migrants who do not have the status of forced migrants or refugees remain.

The positive socio-economic migration of the population within the country, which is necessary for economic development, continues to decline. The processes of external labor migration are developing in the form of attracting and using the labor of foreign citizens in the Russian Federation, and the departure of Russian citizens abroad for the purpose of hired work. At the same time, among foreign workers employed in Russia and Russian citizens working abroad, there is a large proportion of people working illegally, which leads to a violation of their labor and social rights. In Russia, this creates a threat to the national labor market and favors the development of the shadow economy.

The growth of the permanent population of Russia is decreasing. Migration is making up for less and less of the natural population decline. In many regions of the Russian Federation, a decrease in population growth due to migration occurs against the background of a significant decrease in population as a result of increased mortality and decreased birth rates.

According to the forecast, starting from 2006, significant changes in the structure of the population are expected; the working age population, the main source of labor resources, will decline.

The need of the country's economy for additional labor resources will necessitate a regulated influx of immigrants, primarily from the CIS member states. In this situation, the urgent problem for Russian society is the formation of attitudes of tolerant consciousness.

In recent years, population migration has not ensured the redistribution of the population throughout the country in order to balance supply and demand in the labor market. The revival of the national economy and the inevitable territorial and sectoral imbalances will require a more active redistribution of the population and labor resources within the country, which will necessitate the development of mechanisms to stimulate labor migration of citizens, including through the development of the housing market. It is necessary to promote in every possible way the desire of migrants to self-establishment and work.

The market mechanism predetermines the need for state management of migration processes based on ensuring the rights of citizens to freedom of movement and creating a system of economic incentives for this purpose.

1.2 Assessments of the migration situation and prospects for migration policy of the Russian Federation

Largely due to a number of objective and subjective external and internal factors, closely interconnected with dynamically developing political and socio-economic processes, the reasons had an impact on the migration situation in the country.

The most significant factors influencing the development of both positive and negative migration trends are:

processes of globalization in the world, actively involving colossal labor resources in the world economic and, accordingly, migration turnover;

increasing rates of population growth in Asian and African countries, which are the main suppliers of illegal migration to the EU countries and Russia;

high levels of poverty in most CIS countries, the African and Asia-Pacific regions, contributing to the active outflow of the population to countries with a more favorable socio-economic and political climate;

the economic attractiveness of the Russian Federation, emerging against the backdrop of the degradation of Europe and the improving economic situation within the country, as well as the growing dependence of the world community on Russia’s colossal natural resources;

The longest state border in the world is the Russian Federation, 13 thousand kilometers of which in the key Asian direction are completely unstructured and not even laid out on the ground, and this, in turn, largely contributes to the unhindered movement of illegal immigrants.

Important and rather dangerous features of the migration process that have developed in recent years are:

1. Active penetration and consolidation of immigrants into border regions that have strategic reserves of forest and biological resources, and the creation on the territory of the Russian Federation of fairly organized ethnic “community communities”, whose social and economic bridgeheads are being created in Russian megacities. It is the fraternity as a form of existence of foreigners on the territory of the Russian Federation that is quite dangerous for maintaining the ethnic balance in the country. And this feature lies in the fact that this type of ethnic education is focused both on preserving one’s national identity and on the full expansion and capture of ever new positions in the host society.

2. The steadily declining level of the indigenous population of the Russian Federation, which is the main incentive for attracting foreign labor to the country’s economy. Therefore, the trend towards an aging population will constantly increase the burden on the pension system of the Russian Federation, and almost all countries of the European Community are already fully experiencing this.

3. Increasing internal and external migration activity of the indigenous population of the Russian Federation, which significantly affects the disproportion of the population in Russian regions and increases the level of “migration pressure” on economically attractive regions and megacities, especially Moscow and the Moscow region. Moreover, many regions that are strategically important for the country are becoming practically defenseless against the pressure of immigrants.

In this regard, the growing outflow of Russian citizens from the Far Eastern region, which is inadequately replaced by foreign (mainly Chinese and Korean) migrants based on ethnicity, cannot but cause concern, which is fraught with threats to the country’s national security. Since the formation of the Russian Federation, the population of the Far East has decreased by 12%, and the migration component is three times higher than the natural population decline. According to Rosstat's forecast, by 2010 the number of those leaving may exceed the number of arrivals by 16.5 thousand people, and the region may lose about 250 thousand more people.

In addition, in the near future, the threat of “migration pressure” will increase on the Siberian region with its declining population of 30 million, of which 76% is concentrated in the Krasnoyarsk and Altai territories, Tyumen, Kemerovo, Irkutsk and Novosibirsk regions. It must be taken into account that the Tyumen, Irkutsk, Kemerovo regions and Krasnoyarsk Territory provide more than 70% of Russia’s total profit.

It should also be noted that negative migration and socio-political trends are and will be influenced in the future by a number of subjective factors, the most important of which are:

an increase in the crime of foreign citizens, a significant proportion of whom are illegal immigrants who are socially maladapted to their new living and working conditions;

the formation in Russia of an illegal “migration business” associated with the bureaucratic lobby, which, on the one hand, makes it difficult for potential migrants to form objective migration intentions, and on the other hand, sharply complicates the process of migrants’ accommodation in their places of settlement, incl. registration, employment, etc.

In addition, despite the active declaration of the fight against illegal migration, few crimes under Art. 322.1 of the Criminal Code of the Russian Federation “Organization of illegal migration”, which indicates the low efficiency of the work of law enforcement agencies of the Russian Federation in suppressing the activities of organized criminal groups involved in the illegal import and legalization of immigrants. This is despite the fact that there are many structures in the country that provide illegal, often fraudulent intermediary services for the legalization of foreigners who have illegally entered or are staying on Russian territory.

In addition, the activities of the International Organization for Migration (IOM), which has 116 member states in its ranks and which is actively trying to involve Russia and China among them, requires special study. Despite the declared tasks of regulating international migration processes, the main activity of this and other international organizations is to reconfigure migration flows from developed Western countries oversaturated with immigrants to the vast expanses of Russia. And at the same time, there is a desire to actively finance and develop regional Russian projects in the field of resettlement and employment of resettled foreigners from the countries of the African and Asia-Pacific regions.

At the same time, it is obvious that sounding the alarm about the shortage of labor resources for the Russian economy seems somewhat premature for a number of reasons:

firstly, a significant part of the territories of the Far North, Siberia, as well as steppe natural and climatic zones are unsuitable for mass living due to the high cost of maintaining industrial, social and housing and communal infrastructure;

secondly, Russia's more than 144 million population, including 90.4 million working-age Russians (more than at any time in our history), is not a disaster for the country, but an active engine of economic progress.

As an example, we can cite the fact that the economy of Japan, with its 127 million population, is three times larger than the Russian economy, at least the “white” economy. At the same time, the age structure of Japan's population is noticeably different from Russia's, for the worse, with a lower birth rate, which does not prevent this state from pursuing a strict policy of restricting the entry of labor immigrants.

In this regard, an interesting historical fact is that in 1926 the population of the RSFSR was 93.2 million people, incl. There are 48.5 million people of working age, but this did not prevent the mobilization of forces for industrialization, and in the first decade after the end of the Great Patriotic War, 67.3 million people. The population of the RSFSR of working age actively erected the “great construction projects of communism”, created the military-industrial complex and fundamental science.

This leads to the idea that the number of residents is not a determining factor in economic development; on the contrary, in many cases it creates an additional burden on the country’s economy. This idea is confirmed by many examples from the history of the development of densely populated countries in Africa and Asia, the population of which, fleeing poverty and hunger, is forced to emigrate to less populated but economically developed countries in Europe and North America.

Therefore, when building an economic policy for the development of regions, we believe it is advisable to systematically develop the strategically important and climatically favorable regions of the south and east of the Russian Federation, which require less resource expenditure, based on the construction of million-plus cities connecting the space of a vast territory. In addition, it is important to develop medium and small cities in which to concentrate small and medium-sized businesses that introduce innovative resource-saving technologies into their activities in the areas of extraction and production of raw materials, construction, transport and transport infrastructure, energy, and the housing and communal services sector.

It is necessary to figure out whether liberal migration policies are so attractive.

In this regard, it is necessary to pay special attention to two main problems:

1. This approach does not completely solve the problem of preventing illegal migration, since, on the one hand, not all immigrants will want to leave the “shadow” for tax and other reasons, and on the other hand, the migration pressure of foreigners on strategically important regions of the Russian Federation will significantly increase, which, in turn, can create explosive social conflicts.

2. There will be a spontaneous movement of immigrants from regions that are less “attractive” in economic and climatic terms to regions with favorable natural, climatic, socio-economic and political conditions. This creates threats of overpopulation by immigrants in regions that are strategically important for the country, as well as the creation of powerful and well-organized ethnic communities in them.

The above problems imply the implementation of the following possible directions of migration policy, including:

identification of priority sectors of the economy that are especially in need of labor, and the corresponding professions and vacant positions to which qualified foreign specialists can be invited;

building a unified system of migration control from the arrival and placement of foreigners to their departure to their homeland;

large-scale and systematic work on the socio-economic and cultural adaptation of both compatriots and foreigners moving to Russia;

conduct monitoring of the legality of obtaining Russian citizenship by foreign citizens, incl. from former Soviet republics that came to the attention of law enforcement agencies for illegal activities;

involving the wider scientific community and specialists in the discussion of the conceptual framework of migration policy proposed for priority implementation.

National Security and Migration Policy

2.1 Problems of developing an effective state migration policy

National and economic security are directly related to migration processes. Illegal migration, like legal migration not controlled by the state, is one of the factors in the formation of new challenges and threats to national economic security.

The geopolitical and geostrategic position of Russia in the modern world makes migration problems particularly acute for Russian society. Due to its geographical location, Russia is a trans-Eurasian bridge between West and East, North and South, the focus of a wide variety of cross-border migration flows. They have a deeply contradictory impact on national economic interests, the state of the economy and markets, and the demographic situation. Illegal migration is directly related to the criminological situation in the country, the establishment of new types of crime such as economic, organized, transnational, and the consolidation of ethnocrime within them based on individual ethnic communities. Unregulated mass migration contributes to the growth of corruption in society.

Of course, in conditions of a demographic crisis, serious deformations in the professional qualification structure, and tensions in the labor market, migration can alleviate the shortage of workers. But, as experience shows, it is not able to compensate for the “brain drain”, the decline in the labor potential of the national economy, or solve the problem of human capital for the modernization of the Russian economy. Even the most cursory analysis of the impact of mass migration on key national economic interests, the formation of threats and risks in the economic field, the severity of these threats, the dynamics of economic security indicators associated with a decrease in the quality of the labor force, an increase in the share of unskilled and unproductive labor, and its competitive pressure on income levels workers, the criminalization of labor markets and the increasing corruption burden on the economy, shows that the problem of migration cannot be considered either narrowly pragmatically (from the standpoint of labor shortages) or from the point of view of abstractly understood categories of universal human values ​​and human rights.

Today it is necessary to clearly link the understanding of migration, migration policy and migration regulation with the economic security of the country, to see all aspects of migration through the prism of correctly understood national interests, objectively emerging threats and dangers in the economy and society, real socio-economic consequences that can be quantified and compared with threshold values ​​of economic security in relation to this area. It is also necessary to clearly and impartially see, analyze, predict and manage the trends that arise at the intersection of economic, demographic, social and cultural security.

As long as there are differences, often polar, in the socio-economic development of territories and countries, in pay and working conditions, migration flows will remain an objective and inevitable necessity. It is neither possible nor necessary to completely close national borders from the flow of migrants. But questions about the most appropriate institutions for migration regulation and effective mechanisms of migration policy continue to remain more than relevant. It is almost impossible to stop or strictly limit migration flows solely through administrative and legal mechanisms (including prohibitive ones).

To develop effective solutions that can ensure tactical and strategic national economic security, along with the direct regulation of migration processes, it is necessary to influence the entire complex of factors in the development of the economy and social sphere, which are the main reason giving rise to mass migration and its socially, culturally and politically unacceptable forms . It is also important to identify cause-and-effect relationships between migration processes and socio-economic phenomena.

The regulation of migration processes should be based on a serious scientific basis, objective expert and analytical developments; have a sufficient regulatory framework. The conceptual and legislative framework creates the prerequisites for the formation of a migration strategy and the implementation of an appropriate migration policy. We need to start with the Concept of State Migration Policy, which should be linked to the entire complex of basic documents on national and economic security. The regulation of migration processes should be based on the target function, which should be taken as the basis for program-target planning. In the absence of a formulated goal (group of goals), a chaotic and internally contradictory set of regulatory mechanisms is inevitable. Setting goals organizes the set of means and mechanisms. In this regard, it is necessary to clearly define and approve in the text of the Concept of State Migration Policy the goals that are aimed at regulating migration. Goals and priorities aimed at ensuring the strategic economic security of the country may be the following: attracting additional labor resources to Russia in the necessary specialties for employment in specific regions; a radical reduction in chaotic migration flows (primarily illegal) that create socio-economic problems; regulation and provision of social living conditions for migrants who arrived in Russia, both in terms of social and labor relations, and in terms of their compliance with the laws of the country, respect for traditional values ​​and traditions of the indigenous population; suppressing the involvement of migrants in the criminal business and the use of migration to replenish the contingents of organized crime, political extremism and international terrorism, maintaining illegal smuggling channels, trade in human goods, drugs, weapons, and counterfeit goods. Among the priority goals are the attraction of the Russian and civilizationally identical (or similar) Russian-speaking population from the countries of the former USSR; reducing the outflow of highly educated and qualified personnel from the country.

There are three main groups of interests in relation to migration, which often do not coincide and contradict each other: a) national-state; b) regional and municipal; c) production and corporate. Today, the main migration flows are largely a consequence of the private economic interests of individual business structures, motivated by cheapness, social insecurity and political inertia of the migrant labor force attracted. Migration policy cannot follow these interests. The interests of economic security require, when formulating migration policy, to coordinate the entire range of interests: national interests; interests of regions and municipalities; most social groups (traditional ethnic groups and religious communities).

These interests must be taken into account in current laws and law enforcement practice, and expressed in regulated economic, political and cultural forms. A set of mechanisms for effectively solving this problem lies in coordinating the interests of the country, regions and enterprises, which must be translated into the framework of contractual procedures stipulated by law and put into regulated economic, political and legal forms. In the meantime, the number and composition of accepted and released migrants is formed spontaneously, largely chaotically, without taking into account the interests of the country, the subjects of the Federation, and the main groups of citizens inhabiting our country. The presence of economic interests simultaneously forms a system of lobbying and corruption, which currently operates more effectively than government regulatory mechanisms. It is clear that without lobbying and corruption, illegal migration is impossible in principle.

2.2 Mechanisms for regulating migration processes

A set of measures to regulate migration as a whole should include: national and regional structural policies determining the demand for labor in labor markets; a system of federal target programs in the field of social and labor relations of demographic regulation; regional target programs.

Only on the basis of a comprehensive government analysis of the dynamics of labor resources, personnel problems of industries, enterprises and regions as a whole, labor market research can we talk about identifying the motivation for migration, forming mechanisms to eliminate the causes of migration, and not migration flows as a consequence. Mechanisms for macroeconomic regulation of legal migration must be reasonably combined with a set of restrictions and prohibitive measures dictated by both strategic and tactical guidelines in the field of economic security. At the same time, options are possible for issuing licenses for businesses to use migrant labor, indicating in the license the conditions for the use of labor resources; migration quotas; the procedure for their approval; mandatory procedures for pre-advertising vacancies among the indigenous population; introduction of special taxes on enterprises and regions that attract migrants. It is necessary to stimulate business, introduce insurance systems for migrants, which should not only ensure the rights of the latter, but also level the conditions of competition in the labor markets between the indigenous population and migrants.

A set of special mechanisms to combat illegal migration, in addition to the system of measures implemented by the Russian Federal Migration Service, should also include a set of preventive measures, including:

analysis of the socio-economic state of the country's regions to identify free economic segments in which the labor of illegal migrants can be used;

developing programs to fill these economic segments through internal and legal migration;

researching trends in regional economic development and labor force dynamics in order to predict the emergence of such segments;

studying the dynamics of the shadow economy and various forms of criminal business in connection with the dynamics of migration.

It is possible to sharply reduce the influx of unskilled migrants not only through legal mechanisms, but also through the use of indirect methods, such as the normative certification of migrants for compliance with Russian qualification standards, for which it is necessary to undergo appropriate professional, legal and cultural-historical training in licensed educational institutions. This will allow you to manage the quality of migration.

It is necessary to officially legitimize and introduce into the legal field ethnic territorial diasporas, turning them into official and legal structures, accountable to the authorities, responsible for representatives of diasporas in the region, as well as for legal and illegal migration.

3. State management of migration processes in the Russian Federation

3.1 Goals, principles and objectives of regulating migration processes in Russia

The goals of regulating migration processes in Russia are to ensure sustainable socio-economic and demographic development of the country, the national security of the Russian Federation, meeting the needs of the growing Russian economy for labor resources, rational distribution of the population in the country, using the intellectual and labor potential of migrants to achieve the well-being and prosperity of the Russian Federation .

The regulation of migration processes in Russia is based on the following principles:

protection of human rights and freedoms on the basis of legality and strict adherence to international law;

protecting national interests and ensuring the security of the Russian Federation;

combination of interests of the individual, society and state;

a differentiated approach of the state to solving the problems of various categories of migrants;

interaction between federal and regional authorities, local governments and public associations of migrants.

In the field of science and information, the following tasks are expected to be solved:

further development of fundamental scientific research into the fundamentals of regulating migration processes in Russia and the world;

organizing monitoring and scientific forecasting of the migration situation in the Russian Federation;

research and use of foreign experience in preventing and suppressing illegal migration that poses a threat to the national security of the country;

introduction of new technologies for passport and visa, tax, customs, border and immigration control;

creation of a federal system for registering foreign citizens and a federal automated data bank for fingerprint registration of immigrants;

formation of public opinion and promotion of funds mass media in objectively informing the Russian population about the problems of migrants.

3.2 State regulation of migration processes in the Russian Federation

The main areas of activity to regulate migration processes are:

In the field of ensuring control over immigration processes in the Russian Federation:

development and creation of a unified system of immigration control on the territory of Russia;

improving the activities of state authorities exercising immigration control on the territory of Russia, coordinating their interaction with border and customs control authorities;

intensification of the contractual process with the CIS member states and the conclusion of bilateral and multilateral agreements within the Commonwealth;

introduction of criminal liability of heads of organizations, regardless of their organizational and legal form of entrepreneurs, for the illegal use of foreign workers;

expansion of the contractual base and exchange of information with immigration authorities of foreign countries on issues in the field of regulation of migration processes;

ensuring the rights of immigrants and monitoring their compliance with their duties, facilitating the voluntary return of refugees to their places of former residence;

implementation of measures for administrative expulsion and deportation of illegal immigrants.

In the field of creating conditions for adaptation and integration of migrants:

development of an effective mechanism for using budget funds at all levels allocated for the reception and accommodation of forced migrants;

creating conditions for the social and living arrangement of forced migrants, their integration into the labor market, joining trade unions, the implementation of their constitutional rights and freedoms as a person and citizen;

developing mutual understanding between the local population and immigrants, ensuring a harmonious combination of the rights and interests of Russian citizens, foreign citizens and stateless persons in the country, developing and implementing special programs for their cultural and linguistic adaptation;

creation of regional and interregional systems for exchanging information on the possibilities of settling forced migrants;

priority state support for socially vulnerable categories of forced migrants, as well as persons who arrived in Russia under emergency circumstances, ensuring a balanced national labor market, taking into account the principle of preferential employment of citizens of the Russian Federation;

creating conditions for the legal work of immigrants, developing a mechanism for managing the resettlement of immigrants throughout the country, based on the interests of the socio-economic development of the regions, taking into account the needs of regional labor markets and the demographic situation;

attracting immigrants on a temporary and permanent basis in accordance with the justified needs of the regions of the country;

implementation of measures to promote the adaptation of immigrants and their integration into Russian society;

cooperation of federal executive authorities, executive authorities of constituent entities of the Russian Federation and local governments with resettlement and public associations.

In the field of the Russian Federation’s entry into the international labor market and regulation of economic migration, ensuring interaction between federal executive authorities and executive authorities of the constituent entities of the Russian Federation in solving problems of labor migration by strengthening control over the attraction and use of foreign workers in order to protect the Russian labor market, as well as ensuring the rights of Russian citizens to occupy, as a matter of priority, vacant jobs in the Russian Federation:

compliance by employers with the conditions provided for in permits to attract and use foreign workers, as well as in employment agreements (contracts);

combating illegal labor immigration and monitoring the level of wages of foreign workers;

conducting comprehensive checks of the legality of the stay of foreign citizens on the territory of the Russian Federation, their work activities, and their compliance with tax legislation;

improving the regulatory legal framework in the field of labor emigration of Russian citizens;

creating and ensuring conditions for streamlining the employment of Russian citizens abroad, ensuring their social and legal protection;

encouraging the return to Russia of emigrants who went abroad for permanent residence or under employment contracts, primarily qualified specialists;

creation in the Russian Federation of a priority support system for qualified specialists, workers in science, culture, art and sports.

In the field of creating conditions for the voluntary return to their places of former residence of Russian citizens who were forced to leave their places of permanent residence in the Russian Federation and are temporarily located in other territories of the country:

state participation in the process of their return, including through the completion of existing programs;

ensuring in the areas of their former residence the necessary socio-economic living conditions through the restoration and development of the economy and social sphere;

ensuring their safety when returning to their places of former residence and providing complete and objective information about the situations in the places of their former residence.

In the field of supporting and developing relationships with compatriots abroad:

promoting contacts and regular meetings based on family ties;

development of cross-border cooperation, including the implementation of joint economic and cultural projects;

providing compatriots with priority when they carry out work, study, and also when implementing investment projects on the territory of the Russian Federation;

promoting the improvement of the socio-economic situation of compatriots through the conclusion by the Russian Federation of relevant international treaties with their states of residence.

In the field of optimizing internal migration processes and promoting the efficient use of labor resources:

solving employment problems and achieving a balance between the use of domestic labor resources and the attraction of foreign workers;

ensuring proportional development of the housing market and the labor market to stimulate labor migration;

development of mechanisms to stimulate territorial redistribution of the economically active population to ensure balance in regional labor markets;

development of measures to create new and preserve existing jobs, as well as basic living conditions for the population in areas with a high outflow of population and a critical state of the labor market;

state support for migrants from unpromising settlements;

development of interbudgetary relations, formation of the federal budget, budgets of the constituent entities of the Russian Federation and municipalities based on taking into account the state of the labor market in certain regions of the country;

the use of a rotation system for the formation of labor resources, the use of a rotational method in regions with severe natural and climatic conditions;

optimization of internal migration based on forecasts of socio-economic development of Russia and the General Scheme of Settlement in the country.

In the field of creating conditions for the preservation and further formation of the population in the northern, eastern and border regions of the Russian Federation:

restoration of economic activity of organizations located in the Far North, Siberia and the Far East by attracting labor from other regions of the country;

stimulating the migration of the country's population, as well as citizens of the CIS member states, to the northern and Pacific regions;

carrying out an active economic and urban development policy in these regions, including the development and implementation of investment programs, development of social, transport and market infrastructure.

Conclusion

The scale and conditions in which migration occurs give rise to a whole range of problems, the possibility of solving which is reduced due to the difficult socio-economic situation in the country.

The influx of migrants contributed to rising real estate prices, increased competition in the labor market, a decrease in the standard of living of the population, aggravation of other social problems, primarily in the field of education and health care, and the criminalization of the situation in Russia. The strengthening of nationalist and separatist sentiments in a number of cases led to clashes on an interethnic and interfaith basis. In the entire set of migration problems, the key problems are the integration of migrants into the host society and the problems of adaptation of the host society to new conditions, primarily to changes in the ethnic composition of the population and the consequences of this process.

The current migration situation in the Russian Federation, being a consequence of the socio-economic situation, indicates that achieving social prosperity and economic progress requires the strong will of the state and the attention of the entire Russian society to achieve law and order in the country in the field of regulation of migration processes.

Bibliography

Decree of the President of the Russian Federation of June 22, 2006 No. 637 “On measures to facilitate the voluntary resettlement of compatriots living abroad to the Russian Federation” // RG. 2006. June 28.

2. Vitkovskaya G.S. Illegal migration in Russia: situation and policy of counteraction // Illegal immigration. M., 2002.

3. Damaskin O.V. National security and migration policy // Migration Law. 2007, no. 3.

4. Kutin A.D. Migration in Russia: problems, forecasts and promising directions of state policy // Migration Law. 2006, no. 3.

5. Patrushev N.P. Features of modern challenges and threats to Russia's national security // Journal of Russian Law. 2007, no. 7.

6. Modern demographic policy: Russia and foreign experience // Analytical Bulletin of the Federation Council of the Federal Assembly of the Russian Federation. 2005, No. 25 (277).

7. Tyurkin M.L. Migration system of Russia. Monograph. – M.: Publishing house “Strategy”, 2005.

8. Khabibullin A.G. Migration and migration policy: mechanisms of interaction // Migration Law. 2007, no. 4.

The concept and features of internal and external migration. Characteristic features of migration in modern Russia. History of migration flows on the territory of Russia and former USSR countries. Goals and objectives of the Russian government in the field of regulation of migration processes.

Recognition of the catastrophic nature of Russia's demographic situation. The “maternity capital” program, benefits and benefits for the birth of a child as the main components of the country’s demographic policy. Characteristics of national problems of the Krasnodar region.

The study of the essence of population migration, which is understood as the territorial mobility of the population associated with its movement across the country (or between states), due to the influence of economic, social and political factors.

Concept, types and functions of migration. The main differences between migration processes in the Soviet period and in the conditions of modern socio-political transformation. The emergence of illegal immigration and features of the dynamics of migration outflow from Russia.

Basic concepts and types of population migration, causes and prerequisites for these processes, classification, directions and methods of state regulation in the Russian Federation. Factors and indicators of the intensity of population migration and labor mobility.

The inconsistency of national immigration laws of the CIS countries as one of the reasons for the development of illegal migration at the present stage. The National Program for Demographic Security of Belarus and its importance in optimizing migration processes.

Studying the essence of population migration - relocation or movement caused by a change of place of residence. Characteristics of forms (internal and external) and causes (economic, political) of migration. Features of the influence of migration on the structure of the population.

The concept of population migration: emigration, immigration, external, internal, permanent, irrevocable. Stages of development and types of migration, survival rate. Absolute and relative indicators of migration. Analysis and forecasting of migration in St. Petersburg.

Measurement problem social capital regional community. Social aspects labor migration on the example of the Republic of Mari El. Potential for return migration of Russians in the CIS and Baltic countries. Socio-economic effects of labor migration.

Reasons for attracting foreign labor to the Russian economy. The economic progress of various states is becoming increasingly dependent on global trends and patterns of social development, the active interaction of individual national economies with each other. Today not a single page...

Characteristics of population migration - movements associated with changing places of residence, in search of a better life, due to flight from places of hostilities, flight from justice. Analysis of illegal migration and xenophobia associated with this phenomenon.

The influence of demographic processes on state security. Policy Russian state in the regulation of demographic processes. Migration as a factor in stabilizing the demographic situation in Russia. Demographic forecasts for Russia until 2050.

Increase in migration caused by various conflicts and disasters in the world, causes and assessment possible consequences these processes. The problem of forced migrants as one of the most important demographic problems in the Near and Middle East, its resolution.

After the collapse of the USSR, the North Caucasus became a border territory of the Russian Federation. Dynamics of population movement. Migration situation. Reasons for migration. Forced migration and problems of migrants. Adaptation of migrants. The influence of migration on interethnic relations.

Ural State University named after. A.M. Gorky Faculty of Political Science and Sociology Department of Theory and History of Sociology Abstract on Demography

Since the second half of the twentieth century, migration processes have acquired a truly global scale, covering all continents of the planet, social strata and groups of society, and various spheres of social life.

Migrations of individuals and entire societies are the most important characteristic development of civilization. Analysis of civil legislation on disclosing the reasons for emigration from Central Asia. Forecasts for the next decade. Ways to regulate migration.

Assessment of trends in the demographic situation of Russia in recent years. Analysis of the size and age-sex composition of the population, natural movement, migration. Threats to national and economic security associated with the demographic situation of the Russian Federation.

Global migration processes in modern theories of migration. The concept of transnational migration. Migration flows of China and regional security of the Far East. The attitude of young people to the problem of labor migration using the example of the city of Yakutsk.

Contents Introduction 2 Chapter I. The problem of migration and its current state 6 1.1 Theoretical foundations of the problem of migration 6 1.2 Migration processes in modern Russia 11

480 rub. | 150 UAH | $7.5 ", MOUSEOFF, FGCOLOR, "#FFFFCC",BGCOLOR, "#393939");" onMouseOut="return nd();"> Dissertation - 480 RUR, delivery 10 minutes, around the clock, seven days a week and holidays

Semyonova, Aza Vladimirovna. Public administration in the sphere of implementation of migration policy of the Russian Federation: dissertation... Candidate of Legal Sciences: 12.00.14 / Semenova Aza Vladimirovna; [Place of protection: Sarat. state University named after N.G. Chernyshevsky] - Saratov, 2011. - 208 p.: ill. RSL OD, 61 11-12/1040

Introduction

Chapter I Systematic approach to the implementation of public administration in the field of migration policy of the Russian Federation.

1.1 Characteristics of the current migration situation in Russia 20

Chapter II Legal regulation of migration policy in the Russian Federation .

2.1 Regulatory and legal support for public administration in the implementation of migration policy 68

2.2 Regulation of migration processes 107

Chapter III Problematic issues of the activities of the Federal Migration Service of Russia at the present stage .

3.1. Administrative and legal status of the Federal Migration Service of Russia 119

3.2. Structure of immigration control in the Russian Federation 134

Conclusion 164

Bibliography

Introduction to the work

Relevance of the dissertation research topic. Population migration for many states has become an important factor in their economic and social development. At the present stage of globalization, there are practically no countries left that were not involved in migration relations to one degree or another. The beginning of mass migration to the territory of the Russian Federation occurred in the 90s of the 20th century. The state at that time was not ready to regulate migration flows. The abrupt transition to an “open door” policy in conditions of unpreparedness for large-scale migration flows is not only legislative framework, but also the entire system executive power, personnel potential, border equipment and other things, led to the fact that the state essentially lost control over the migration processes. Internal social tensions, originating in the North Caucasus region, and changes in the general situation on the labor market also played a certain role. Thus, Russia entered the third millennium without a conceptually sound state migration policy and legislation that would allow the rights of refugees, internally displaced persons and other categories of migrants to be respected.

Currently, migration (cross-border and internal) has reached a historically unique level, forming a special model of globalization, including relatively free movement of people, money and goods. Being one of the manifestations of the globalization process, migration in general has a positive impact on the socio-economic and political development of states, promotes the integration of the international community, the cultural rapprochement of peoples, and the development of productive forces. At the same time, if migration processes are uncontrollable, the level of security of states is sharply reduced. In addition, uncontrolled migration does not allow for the protection of the rights of migrants themselves, which must be taken into account at the present time, when the world community is faced with an unprecedented scale of terrorist threats.

At the present stage, our country’s policy in the field of managing migration processes has not acquired clear boundaries of national policy, for example, in the field of administrative assistance to potential migrants, whose move to the Russian Federation is also necessary for our state from an economic point of view. More than 10 million immigrants live in Russia today, and according to this indicator it ranks second in the world after the United States of America, and this is only according to official data.

The vagueness of the formulation in the Constitution of the Russian Federation of the subject of jurisdiction in the field of migration activity gives grounds for the legislator to bear the financial and organizational burden

facilitating the resettlement of compatriots from abroad, providing assistance to internally displaced persons in the constituent entities of the Russian Federation. The existing system for implementing state policy, public services, control (supervision) in the migration sphere has not received proper scientific development and, as a result, has no alternative. Independent scientific examination of bills affecting the right of citizens to freedom of movement and choice of place of residence has not yet become a rule in law-making activities. These shortcomings are complemented by Russian legislation in the field of ensuring the rights and freedoms of forced migrants, which does not meet generally accepted international recommendations. The fate of environmental refugees, residents of cities and towns liquidated and closed as a result of degradation of the city-forming base, border areas of Siberia and the Far East, the North of the country and other categories of forced migrants in need of state support remain outside the legal framework. The procedure for granting refugee status in the Russian Federation, in contrast to a similar European procedure, is unreasonably complicated and continues to be a two-step process.

The main problem of the migration legislation of the Russian Federation is the lack of systematization in this area. The modern regulatory framework for regulating migration relations includes more than two hundred legal acts, of which 57 are federal laws, which inevitably leads to contradictions and collisions in the implementation legal regulation, abuse of the use of norms of a referential nature to acts of the by-law level, etc. In this regard, the problem of forming adequate systematized legislation aimed at ensuring the national security of the country, as well as overcoming the negative consequences of migration processes, continues to remain relevant. Further development of migration legislation should be aimed at formulating basic concepts that clearly reflect the legal essence of regulated legal relations, since at present there is not even a normative definition of basic definitions.

Numerous refugees and forced migrants from the “old” and “new” foreign countries represent an almost uncontrollable flow of migrants. Given the existence of “transparent” borders with the republics of the former USSR and weakening control over transit passengers, the number of foreign citizens entering the country in violation of established rules or trying to use its territory to enter third countries has sharply increased. This category also includes persons arriving in the country to organize arms trafficking, drug trafficking, and illegal movement of people, and therefore the problem of uncontrolled migration becomes threatening, exacerbating the crime situation, especially in large cities.

For the state management of migration processes in the Russian Federation, monitoring the migration situation, and timely taking measures to normalize it, an immigration control system is needed, with the help of which the entry into Russia of foreign citizens and stateless persons is controlled, their stay in the country and compliance with the purpose of entry, the procedure for leaving the territory of the Russian Federation for this category of persons and more. In this case, measures of bilateral and multilateral cooperation between states and the definition of joint strategies in the formation of control are especially important.

The current situation in the implementation of the migration policy of the Russian Federation objectively requires the development and application of modern approaches to public administration in the field of migration policy, since the existing management system does not fully cope with the uncontrolled flow of illegal migrants, the exact number of which cannot be tracked. In addition, the procedures for the maintenance and further administrative expulsion of foreign citizens and stateless persons illegally staying in the country turn out to be too costly for the Russian Federation.

The object of the dissertation research are social relations that arise, change and cease in the sphere of implementation of migration policy by the authorities of the Russian Federation.

Subjectdissertationresearch stands

organizational and legal activities of executive authorities in charge of migration issues, as well as regulatory legal acts related to the regulation of migration in the Russian Federation.

Scientific task of dissertation research due to the need to determine the essence of public administration for the implementation of migration policy in the Russian Federation on the basis of developing proposals for improving the legislation of the Russian Federation, which consolidates this area of ​​public relations, and the functioning of the relevant executive authorities.

The purpose of the dissertation work: study of the administrative and legal foundations of migration policy through the analysis of modern migration legislation of the Russian Federation and the system of government bodies implementing migration policy in Russia.

Achieving this goal required solving the following tasks:

Conduct a comparative analysis of the basic conceptual apparatus
(“administrative and legal mechanism of population migration”,
"immigration control", "illegal migrant") subject to disclosure
the legal component of the definition of “population migration”, with the help
which describes the object of analysis;

Follow historical development migration relations;

study the migration function of the state as an independent and obligatory direction in the implementation of state activities;

analyze the legal regulation of migration processes through studying the structure of legal acts of the Russian Federation;

determine the main directions of regulation within the framework of the implementation of migration processes;

identify problematic aspects in the law enforcement activities of executive authorities in the field of population migration, in particular through determining the administrative and legal status of the Federal Migration Service of Russia;

consider the procedure for interaction of executive authorities vested with powers in the field of migration with public associations and citizens of the Russian Federation, foreign citizens and stateless persons;

study the basics of immigration control in the Russian Federation and give basic recommendations for its improvement.

Theoretical basis of dissertation research presented modern achievements science of administrative law. In addition, the results of research in the field of general theory of law, constitutional, municipal, labor, criminal law, as well as generalizations and conclusions of philosophy, sociology, and theory of public administration were used. Of particular interest were the works of A.P. Alekhina, Yu.S. Adushkina, L.V. Andrichenko, V.M. Baranova, I.N. Bartsitsa, D.N. Bakhrakha, V.P. Belyaeva, V.V. Vengerova, O.D. Vorobyova, E.I. Gabrichidze, A.V. Dmitrieva, Zh.A. Zayonchkovskaya, T.I. Zaslavskaya, I.V. Ivakhnyuk, V.A. Iontseva, E.S. Krasinets, G.N. Komkova, N.M. Konina, E.G. Lipatova, V.M. Manokhina, A.V. Martynova, V.I. Mukomelya, B.V. Russian, L.L. Rybakovsky, SV. Ryazantseva, P.P. Serguna, Yu.N. Starilova, Yu.A. Tikhomirova, M.L. Tyurkina, A.V. Filatova, T.Ya. Khabrieva, SE. Channova, T.N. Yudina, V.A. Yusupova, B.S. Ebzeeva; Caroline B. Brettell and James F. Hollifield and other scientists.

Regulatory basis of dissertation research compiled the Constitution of the Russian Federation, international regulatory legal acts, federal laws, decrees of the President of the Russian Federation, decrees of the Government of the Russian Federation, acts of federal ministries and departments, constitutions and charters of the constituent entities of the Russian Federation, laws and by-laws of the constituent entities of the Russian Federation.

Empirical basis of the dissertation research includes decisions of the Constitutional Court of the Russian Federation, court decisions of the Supreme Court of the Russian Federation, the Supreme Arbitration Court of the Russian Federation. The information contained on the official websites of executive authorities, in the materials of Internet conferences, as well as in official statistical data was analyzed.

Methodological basis of dissertation research is a set of general scientific and special methods scientific knowledge.

In particular, methods of formal logic, such as description, comparison, classification, analysis and synthesis, made it possible to characterize public administration in the implementation of migration policy from the perspective of its specific normative content and make proposals for eliminating gaps in legal regulation. The general scientific dialectical method made it possible to consider public administration in the implementation of migration policy from the point of view of the variability of regulation, to substantiate the advantages and disadvantages of various approaches to solving the issues that make up this problem.

Along with the general scientific methods of dialectical cognition and formal logic, the study used the comparative legal method in the study of both national regulatory legal acts regulating the field of migration and international ones. The legal modeling method was used to develop the concept of immigration control. In turn, within the framework of the statistical method, a large amount of statistical information was analyzed. During the writing of the work, other research methods were also used. For example, the method of historical analysis was used when referring to events and phenomena that occurred in different periods in order to illustrate the dynamics of state management of migration processes in Russia.

The degree of scientific development of the problem. In recent years, the management of migration relations has been the subject of scientific works by leading lawyers, political scientists, demographers, economists and sociologists who have addressed various problems arising in the process of population migration.

The socio-economic aspect of the development of migration relations in Russia has been studied by such scientists as A.A. Grebenyuk, A.R. Dimaev, I.V. Ivakhnyuk, P.P. Lisitsin, SE. Metelev, V.I. Mukomel, V.N. Petrov, L.L. Rybakovsky, O.L. Rybakovsky, SV. Ryazantsev, I.P. Tsapenko, T.N. Yudina and others.

The implementation of the state policy of the Russian Federation in the field of certain categories of migrants was considered in their works by political scientists O.A. Bolbot, V.A. Volokh, M.Yu. Ezhova, R.Kh. Mirzoev, O.A. Odarik, Yu.A. Tikhomirov, E.V. Sheremetyeva and others.

The results of the study of the legal status of migrants and the features of the fight against illegal migration are summed up in the publications of such legal scholars as A.S. Avtonomov, G.E. Alekseev, L.V. Andrichenko, T.N. Balashova, F.P. Vasiliev, E.V. Galuza, A.S. Dugenets, A.N. Zherebtsov, A.S. Prudnikov, S.A. Prudnikova, A.N. Sandugey, T.Ya. Khabrieva and others.

In the last decade, close attention has been paid to pressing issues of migration. Analysis of its various aspects has become

the subject of a considerable number of dissertation studies. Among the most interesting of them, devoted to the problems of administrative and legal regulation of migration and its subjects, we should mention the works of M.M. Ardavova, Yu.Yu. Byshevsky, V.V. Vostrikova, O.Yu. Vostroknutova, E.V. Galuzy, A.E. Gorban, V.V. Goshulyak, V.V. Radula, S.A. Prudnikova, E.A. Nikiforova, I.Yu. Sizova; concerning the theoretical and historical foundations of migration - M.R. Vokueva, N.A. Zorina, T.B. Nikolaeva, S.A. Smirnova; covering the problems of the constitutional and legal status of forced migrants - dissertations by K.D. Galiakhmetova, O.V. Gubina, M.V. Pleshcheeva; constitutional and legal regulation of migration processes - I.V. Plaksina, A.N. Torokhova, N.N. Totsky; ensuring the protection of human rights in the field of migration - B.A. Asriyan, A.V. Zemskova, N.N. Katkova, V.A. Korobeeva, V.M. Reshetina, A.V. Sokolnikova; regulation of external and labor migration - N.A. Azarova, O.N. Veretennikova, P.V. Konovalova, S. D. Stepanova; administrative and legal regulation of the regime of stay and migration registration of foreign citizens - L.V. Ivanova, M.B. Ilezova, N.V. Trofimchuk, O.N. Sherstoboeva.

However, no special comprehensive study of public administration problems in the implementation of migration policy has been carried out.

Scientific novelty dissertation work consists of an independent and practical study of the problems of the administrative and legal mechanism for implementing migration policy by executive authorities of the Russian Federation and executive authorities of the constituent entities of the Federation, as well as the interaction of these bodies with public associations, citizens of the Russian Federation, foreign citizens, stateless persons in order to improve state migration policy. The dissertation proposes definitions of the following concepts: “population migration”, “immigration control”, “control and supervisory activities in the field of migration”. Analysis of controversial issues made it possible to reveal insufficiently studied modern science aspects and present for defense a number of independent conclusions, provisions and recommendations, which are defined as prospects for improving legislation in this area and the activities of executive authorities implementing the migration policy of the Russian Federation. In particular, the integrated approach applied to the object of study made it possible to identify shortcomings in legal regulation and formulate recommendations for eliminating them. In addition, taking into account the degree of development of various aspects of the relevant issues, the author provides a number of proposals on the issues of introducing amendments and additions to the Code of the Russian Federation on Administrative Offenses.

Main provisions submitted for defense:

1. Due to the lack of basic definitions in the current
Russian legislation establishing migration relations,
it seems necessary to formulate a conceptual apparatus in the field
regulatory mechanism for regulating migration relations
In Russian federation. In particular, the author’s definition of the concept is given
“population migration” is a set of mass movements as
individual individuals (citizens of the Russian Federation, foreign
citizens, stateless persons), and various social groups,
caused by socio-economic and political problems,
arising in a certain territory, both limited and
unlimited duration of place of stay and residence, their
relationship with other legal categories, for example social
provision, medical care, etc., as well as types
movements of individuals and their main groups. Administrative
the legal component of this definition is to vest
legal status of the subject of displacement - “individual (citizen)
Russian Federation, foreign citizen, stateless person)", in "limited and
unlimited" nature of "duration of stay and
residence" of the specified subjects of migration (we are talking, in particular, about measures
control and supervisory activities of government bodies,
vested with powers in the field of migration), taking into account the peculiarities
state administration of migration relations in matters
social security, medical care for migrants and others.
The dissertation author believes that the concepts under consideration must be reflected in
preamble or general provisions of the Federal Law of July 25, 2002
No. 115-FZ “On the legal status of foreign citizens in the Russian Federation”
Federation”, since, according to the author, this legal act is
the basic law governing the social relations under study.

2. The author’s formulation of the definition of “immigration” is given
control" is carried out by authorized bodies
executive power a set of measures to comply
foreign citizens and persons without migration citizenship
legislation of the Russian Federation.

3. The need for the development and adoption of a Development Strategy has been proven
migration legislation of the Russian Federation, designed
determine the main directions of migration reform
legislation, indicate priority tasks and the ultimate goal in the form
formation of effective migration legislation and
objective improvement of law enforcement practice. Strategy
is a program document, therefore the formation and implementation
state management of migration legal relations should
carried out through the activities of executive authorities. By
the sequence of implementation of the Strategy is indicated by consolidating
the following stages:

definition of basic concepts in the field of migration;

clarification of the nature of the subject of regulation;

Specification of the main directions and range of subjects
state migration policy;

Formation of a mechanism for implementing state policy in
for the purpose of creating legal, socio-economic, organizational
conditions;

Ensuring control and supervisory activities for
immigration processes in the Russian Federation;

Development of regulation of migration processes;

Improving the regionalization of migration, the specifics of which
should consist in the development of local regulations,
regulating public relations in the field of migration.

4. Proposals were formulated to improve the regulatory
legal regulation in the field of population migration. In particular,
confirms the need to adopt the Migration Code
Russian Federation as a single act regulating the entire complex
migration legal relations. The main purpose of adopting the Migration
Code of the Russian Federation is considered by the author from the position
administrative and legal regulation and consists in generalizing
normative legal acts regulating the field of migration, taking into account
formation of the mechanism effective management migration
processes, which is systemic in nature and consists in
improving its basic forms (legal, organizational,
regime of stay (residence) of foreign citizens and persons without
citizenship), as well as the need to create a mechanism
territorial distribution of migrants, in the formation
government measures aimed at preventing and combating
illegal migration, which will significantly simplify the implementation of migration
policy of the Russian Federation, will speed up the resolution of problematic issues,
will reduce budget expenses. Therefore, Migration
The code of the Russian Federation should include not only (firstly)
general provisions establishing migration legislation; tasks;
principles; the effect of legislation in time, space and circle
persons, but also (secondly) responsibility for offenses in the field of migration,
as well as provisions for the formation of an effective government
management in the implementation of migration policy of the Russian
Federation.

5. The importance and significance of control as one of
components of basic migration policy, while analyzing
definitions directly applied in the implementation of control
supervisory activities by executive authorities in the field of migration.
As a result, the author comes to the conclusion that the legislator is not
the conceptual characteristics of the control and supervisory system are formulated
activities in the field of migration, which negatively affects

law enforcement practice and the formation of a scientific approach in this area. In connection with the above, the following definition is proposed, which must be enshrined in the Strategy for the Development of Migration Legislation of the Russian Federation: control and supervisory activities in the field of migration are a set of measures to control the entry, exit and stay of foreign citizens on the territory of the Russian Federation, carried out in order to regulate immigration , ensuring the legal rights of migrants and respecting the interests of the Russian Federation, as well as implementing measures to identify and suppress illegal migration into the territory of the Russian state of foreign citizens and stateless persons arriving or intending to arrive in Russia, including for permanent residence, in search of asylum, for employment or transit through the territory of the Russian Federation to third countries.

6. The argument is given for the creation within the structure of the Federal Migration
Russian Immigration Police Service - a department facilitating
effective detection of violations of migration legislation with
parties of foreign citizens and stateless persons during the
control and supervisory activities, which will serve as a basic link in
building an effective state management of migration
policy, by strengthening the country's migration security. Except
Moreover, in order to prevent and suppress crimes committed
migrants, this department must interact and
coordination of activities with the participation of law enforcement agencies in
combating crime in the field of migration.

7. The need to increase installed
legislation deadlines for drawing up a protocol on administrative
offense up to one month, and therefore, changes to
paragraph 2 of article 28.5 of the Code of the Russian Federation on administrative
offenses in terms of increasing the period for drawing up protocols on
administrative offenses committed by foreign
citizens and stateless persons. It is noted that during
carrying out activities to monitor compliance with migration regulations
legislation there is a problem of bringing to responsibility
foreign citizens who do not have documents certifying
their personality. Illegal migrants are aware of the existing problem,
as a result of their concealment of identity documents,
has become widespread; protocol on administrative
it is impossible to constitute an offense against an unknown person;
establish identity within the administrative time limits specified by law
detention, that is, in three hours (Part 1 of Article 27.5 of the Code of Administrative Offenses of the Russian Federation) is not possible. On
in practice, violators of migration legislation are subject to
release, return to their previous places of stay and continue
violate the laws of the Russian Federation.

8. The proposal to introduce it into the Code of the Russian Federation is justified

on administrative offenses dated December 30, 2001 No. 195-FZ as independent type punishment socially useful labor used as additional measure punishments for foreign citizens and stateless persons who have violated Russian migration legislation and are unable to pay an administrative fine. At the same time, it is mandatory to develop legal acts of management containing requirements for the procedure for implementing this type of administrative punishment, in particular establishing the conditions of detention of persons subjected to this punishment, the method of basic calculation of remuneration and the procedure for its inclusion in the income of the corresponding budget.

The author has established the need to develop and put into effect administrative regulations for the interaction of the Federal Migration Service of Russia and the Ministry of Health and Social Development of Russia to regulate the issues of determining a medical institution as a receiving party, since according to the current legislation, a medical institution in which an undocumented person can be treated identification documents (for example, a foreign citizen or stateless person), is fully responsible for these persons (accommodation, food, taxes, etc.); In addition, no funding is provided for these issues.

The feasibility of developing and issuing an administrative regulation that establishes the procedure for creating an electronic database containing the registration addresses of foreign citizens and stateless persons on the territory of the Russian Federation, approved by order of the Federal Migration Service of Russia, has been proven. This administrative regulation will significantly facilitate the work of employees of the Federal Migration Service of Russia in terms of monitoring the stay and residence of foreign citizens and stateless persons on the territory of the Russian Federation, and will also avoid an unreasonable number of migrants registering at the same address, which entails a violation of sanitary and hygienic standards. social and other community norms.

It seems that the implementation of the proposals made will increase the efficiency of the work of the Federal Migration Service of Russia in monitoring compliance with migration legislation on the territory of the Russian Federation and will lead to a decrease in the number of offenses in the field of migration.

Theoretical and practical significance of the research. The main provisions and conclusions of the work can be used for further scientific development of issues related to the implementation of migration policy, public administration in the area under consideration, and the powers of executive authorities. The scientific and practical significance of the dissertation research lies in the fact that the provisions of the dissertation can be applied in the development of lecture courses on administrative law, customs law, and special courses: “Legal regulation

migration relations”, “Legal regulation of national and regional security”. The conclusions and proposals contained in the dissertation work can be taken into account in scientific research on problems of constitutional, administrative, and customs law; in the preparation of educational and educational literature for students of law universities, for students of the system of retraining and advanced training of employees of the Federal Migration Service of Russia, as well as when they carry out practical activities. In addition, the conclusions and proposals obtained as a result of the study can be applied in legislative activities and in the development of legal acts, by introducing appropriate amendments and additions to the regulatory legal acts of both the Russian Federation and the constituent entities of the Federation.

Approbation of research results. The main provisions and results of the study were tested at the Department of Administrative Law and State Construction of the Volga Region Academy of Public Administration named after P.A. Stolypin, and were also reflected in scientific publications and speeches at international and all-Russian scientific and practical conferences on the problem under study, including: round table on corruption and security issues “Results and experience of implementing regional laws to combat corruption” (Saratov , May 29, 2007); International scientific-practical conference“Political and legal priorities of the socio-economic development of Russia” (Saratov, July 2-3, 2008); International scientific and practical conference “Political and legal problems of interaction between government and business in times of crisis” (Saratov, July 2-3, 2009); International scientific and practical conference " Government program to assist the voluntary resettlement of compatriots living abroad to the Russian Federation: problems and prospects for implementation" (Moscow, October 20, 2009); All-Russian scientific and practical conference “Modern legal science and law enforcement” (III Saratov Legal Readings) (Saratov, June 3-4, 2010).

results scientific research were tested during participation in the international training school “Prospects for the migration policies of the European Union and Russia: differences, opportunities for cooperation, strategies for future development” (Moscow, April 17-25, 2009), as well as in the process of developing proposals and recommendations for the Deputy Plenipotentiary Representative of the President of the Russian Federation in the Volga Federal District on improving the regulatory framework and activities of government bodies in the implementation of migration policy on the basis of a letter received by the Federal State Educational Institution of Higher Professional Education "Volga Region Academy of Public Administration named after P.A. Stolypin" (2011).

management of migration policy." In addition, lectures, seminars and practical classes were held at advanced training courses for state and municipal employees (Rosselkhoznadzor, Federal Migration Service for the Saratov Region) on the basis of the Federal State Educational Institution of Higher Professional Education "Volga Region Academy of Public Administration named after P.A. Stolypin", State Educational Institution of Higher Professional Education "Saratov State Socio-Economic University", which were held in Saratov, Volsk, Balakovo.

Structure and scope of work allow us to consider the theoretical and practical aspects of the study. The dissertation consists of an introduction, three chapters united by six paragraphs, a conclusion, and a bibliography.

Characteristics of the current migration situation in Russia

Migration (both cross-border and internal) has reached a historically unique level, forming a special model of globalization, including the relatively free movement of people, money and goods. The vast majority of countries in the world (218) participate in the migration exchange; the number of external migrants is estimated at approximately 175 million people (3% of the total population of the planet), and internal migration is even larger - about 1 billion people (16% of the total number) \ For In the years since the collapse of the USSR, the nature and directions of migration in Russia and the CIS countries have undergone significant transformations. The countries of the former Soviet space have joined the system of global migration processes. The collapse of the USSR, the economic crisis during the transition to a market economy, the construction of new independent countries on a national basis, and the fall of the Iron Curtain led to the emergence of new migration flows. Migrations throughout the post-Soviet space have acquired a forced nature and an ethnic component. To these were added previously unknown types of migration - international (including labor), illegal, transit, human trafficking, etc. Being one of the manifestations of the globalization process, migration in general has a positive impact on the socio-economic and political development of states, promotes the integration of the international community, the cultural rapprochement of peoples, and the development of productive forces. At the same time, if migration processes are uncontrollable, the level of security of states is sharply reduced. This especially needs to be taken into account in the present period, when the world community is faced with an unprecedented scale of terrorist threats. Russia, it is necessary to reveal the basic conceptual apparatus with the help of which we will try to describe the object of analysis under consideration, organize the facts and draw conclusions.

The choice of basic terms in this work is made on the basis of their close relationship. First of all, such definitions as: migration, emigration, immigration, migration policy, migration process, conflict were analyzed.

Migration. There are over four dozen definitions of migration. Research work The development of a conceptual and categorical apparatus in the field of migration was carried out by leading experts in the field of migration - L.L. Rybakovsky, V.M. Baranov, G. Vitkovskaya, Zh.A. Zayonchkovskaya, T.I. Zaslavskaya, V.A. Iontsev, E.S. Krasinets and others. Today, many scientists" highlight such a branch of Russian law as migration law, for example, N.N. Totsky argues that "until recently, no special legal regulation of migration processes was required. However, the continuous increase in the number of migrants, the complication of the legal relations into which they enter , the expansion of the circle of their participants, as well as the increase in offenses committed by migrants, forces us to raise the question of developing a special branch in the system of Russian law - migration law." Migration law, according to the definition of N.N. Totsky, is a set of rules governing social relations in the field state legal regulation of migration flows.In turn, T.N. Yudina understands migration flows as the total number of migrants (or migrations) having common areas of arrival and departure during a given period of time4.

In addition, the author conducted an analysis of migration legislation, which resulted in the conclusion that there is no legal definition of the term “migration” in both international and Russian legislation. The paradoxical nature of this circumstance, to a certain extent, is indirect sign the disorder of migration activity in the Russian Federation, in accordance with the stated policy priorities in the field of legal regulation of migration. The Russian legislator freely uses the term “migration” without substantiating its definition.

The study of a number of basic semantic sources showed that “migration” is generally understood as: “relocation of people associated with a change of place of residence”; “relocation, resettlement”; “the movement of people from one country to another with the intention of settling”, etc. As the Russian language dictionary defines, migration - (Latin migratio, migro - moving, moving) is a resettlement, movement of the population within a country or from one country to another. Analysis of the semantic characteristics of the term “migration” allows us to conclude that, regardless of the area of ​​its use general meaning does not change, is natural, which indicates the general scientific nature of its essence as the territorial movement of people.

In the scientific literature, the most common definition is L.L. Rybakovsky, who notes that “displacement and resettlement are by no means synonymous” and, therefore, understands migration in

Ozhegov S.I. Dictionary of the Russian language. M., 1987. P. 322. in the narrow and broad sense of the word. “In a narrow sense, migration is a complete type of territorial movement, ending with a change of permanent place of residence,” in a broad sense, migration is “territorial movement that occurs between different settlements of one or more administrative-territorial units, regardless of duration, regularity and purpose orientation"7.

According to T. Ya. Khabrieva, the concept of “migration” exists only in connection with the reasons for spatial movements, their duration, and involves a person crossing spatial boundaries, i.e. within this conceptual framework there must be differentiation. Otherwise, “if any person carrying out any movement is recognized as a migrant,” the use of this definition in the text of legislative acts will be difficult.

Analyzes the facts of V.M.’s tautology. Baranov interprets some concepts in the migration sphere and substantiates two points of view on migration: in general, it is “the territorial movement of people (flows of people) in physical space in order to find better living conditions” and in relation to the sphere of legal regulation, as “a set of legal relations predominantly state-controlled territorial movement of people associated with the search for better living conditions and, in most cases, entailing the acquisition of a new legal status.”

Contents of the migration function of executive authorities

The evolution of a person’s legal status on movement and choice of place of residence has a rich history and can be traced through all stages of its state and legal construction. The legal regulation of mythical processes has also gone through certain stages of its development, having a long history.

Legislative regulation of mythical processes began to take shape with the emergence of the first states in the history of human civilization. In various historical eras, the legal norms of the mythical process had their own characteristics: from ignoring the rights of mythants to giving them the appropriate legal status.

For the first time, the right to freedom of movement and choice of place of residence in legal form was proclaimed by King John the Landless of England on June 15, 1215 in the Magna Carta. The document, which consisted of 49 articles, regulated rights and freedoms: “Let everyone henceforth be allowed to leave our kingdom and return in complete safety by land and water, only by remaining faithful to us.”

Since then, the formation and development of mythical legislation has gone through a long evolutionary path. History is marked by mythical processes associated with the era of the Great Geographical Discoveries (GC-XVTI centuries), as well as religious and political persecutions in Europe. Significant migrations of Europeans especially intensified with the discovery of America. With this historical event stages of rapid development of mythical legislation are connected.

Until the beginning of the 15th century. the movement of Russian citizens around the country was not subject to any restrictions at all. It was at this time that the authorities began to monitor

Petrushevsky D.M. Magna Carta and the constitutional struggle in English society in the second half of the 13th century. M., 1918. P. 119. coming to the country due to the danger of causing harm to the state, which was the main reason for the introduction of “travel letters” in Russia in the 15th - 16th centuries. The rules of travel documents were especially strictly applied to those travelers who arrived in Russia from neighboring countries. The state was afraid negative influence on the newcomers of local residents, which happened often.

In the XVI - XVII centuries. Russian legislation is characterized by the formation of migration control, within the framework of which three main directions are gradually emerging: 1) over the movement of Russian citizens within the country; 2) for the entry and exit of Russian citizens outside the state; 3) for the entry and exit of foreigners in Russia.

In the second half of the 16th century. The problem of keeping peasants in their permanent place of residence is becoming more acute. This is enshrined in the Council Code of 1649 and other normative acts of the 17th century.72 The purpose of this legislation was to create rules on finding peasants and slaves who left without permission, returning them to the place of residence where they were listed in the census books, with the goal of runaway peasants to the rightful owners of power the institution of exile was introduced.

For fiscal purposes, the state was interested in obtaining accurate data on the size, class composition of the population and its migrations. These factors, as well as the attachment of representatives of the privileged classes to places of service in the first quarter of the 18th century. demand the creation of a more effective mechanism for controlling the movement of Russian citizens throughout the country.

Fundamentals of migration policy: textbook. allowance / Under general ed. Bartsitsa I.N. M., 2008. P. 47. The system of migration control that had formed in Russian legislation by that time consisted of three elements that formed into institutions:

1) the concept of “place of residence” was defined, within the framework of which, with the help of various population registration systems, the place of residence of Russian and foreign citizens was established;

2) the institution of passports, which established the procedure for absence from the place of residence of various categories of the country’s population;

3) the institution of “fugitives” and deserters, which determined the mechanisms of the activities of police authorities to persecute the population and sanctions for violators of passport legislation.

In turn, the legal basis for ensuring the passport regime was carried out with the help of two closely interrelated legal institutions: place of residence and passports.

In order to control the movement of the population and identify persons who left their place of residence or service without permission, in the second decade of the 18th century. The legal foundations of the passport system were laid. The decree of Peter I of October 30, 1719 “On the capture of fugitive dragoons, soldiers, sailors and recruits” laid the foundation for all subsequent Russian passport legislation. The decree was supposed to stop mass escapes. He established police control over the population.

During this period, all identification documents were handwritten, there was no uniform form for their preparation, as a result of which many counterfeit documents appeared. In this regard, in the 18th century. A number of legislative acts are being published with the aim of eradicating false passports, primarily for representatives of the tax-paying classes. For drawing up false letters of leave, the nostrils were torn out and a link to eternal hard labor was introduced.

A clear and effective migration policy began to be pursued already at the end of the 17th century, when Russia, not having migration potential on its territory, began to actively attract foreigners to settle and develop vast territories.

This policy received its most vivid expression under Catherine P. In December 1762, the manifesto “On the free settlement of foreigners in Russia” was published. Six months later, Catherine II adopted the second manifesto, in the same 1763 the imperial Decree “On allowing all foreigners entering Russia to settle wherever they wish” was issued. This Decree on everyday life was subsequently supplemented by laws on benefits and privileges for immigrants. The second manifesto was accompanied by registers of free and suitable land for settlement. When foreigners began to arrive, a “Name list of foreign settlers sent to Russia” was compiled7.

The most significant benefits include the following benefits: exemption from taxes, as well as other benefits on payments and taxes to the treasury, and the terms of exemption were established differentially depending on the region of settlement, on the population in the settlement (colony) and on the occupation of the migrants; abolition of military service and exemption from civil service; freedom of religion and the creation of conditions for the practice of religious worship by believers of all faiths; payments from the treasury for setting up a farm and purchasing the necessary equipment. The loan was to be repaid only after ten years over three subsequent years in equal installments.

At the same time, migration (colonization) policy solved both political and economic problems. The resettlement movement was regulated by a number of the highest imperial decrees, as well as special legal acts.

Regulation of migration processes

Thus, the Ministry of Internal Affairs of the Russian Federation, which has jurisdiction over the Federal Migration Service, being a federal executive body performing the functions of developing and implementing state policy and legal regulation in the field of internal affairs, as well as developing state policy in the field of migration, coordinates and controls the activities of the Service, considers a report on the results of its activities, proposals for the conclusion of international treaties and agreements in Russia, draft regulations in the established field of activity.

In addition to these powers, the federal executive body in charge of internal affairs, the Ministry of Internal Affairs of Russia, deals with issues of readmission and administrative expulsion of a foreign citizen or stateless person and sends information about this to the Ministry of Foreign Affairs of the Russian Federation and the Federal Migration Service. In addition, foreign citizens and stateless persons subject to administrative deportation from the Russian Federation until the execution of the decision on administrative deportation from the Russian Federation by court decision are kept in specially designated premises of the internal affairs bodies.

Thus, a Center for Temporary Accommodation of Foreign Citizens Subject to Deportation has been created at the Central Internal Affairs Directorate for the Saratov Region. However, the organization of the activities of this structural unit has a number of problematic issues.

According to the Commissioner for Human Rights for the Saratov Region, Nina Lukashova169, regular changes in migration legislation, unregulated migration processes, and the peculiarities of the life situation of migrants lead to the fact that people cannot legalize their stay (residence) in the territory of the Saratov Region. As a result, they are expelled.

The Office of the Federal Migration Service for the Saratov Region has intensified work to ensure public order and security, identify and punish foreign citizens illegally staying in the region. Over the three months of 2010, employees of the Federal Migration Service drew up more than 2 thousand administrative protocols against these individuals, identified more than 300 illegal migrant workers, and punished 160 Russian citizens who illegally used immigrant labor. Into income. The regional budget transferred over 10 million rubles collected from violators. 39 foreigners were expelled from the Russian Federation. Cases have been recorded when people spent 5-7 months in the Center for the temporary detention of foreign citizens and stateless persons subject to administrative expulsion (deportation) from the Russian Federation, at the Central Internal Affairs Directorate of the Saratov Region due to difficulties with paperwork.

In order to resolve the current situation, the Ombudsman for the Saratov region sent letters to the Federal Migration Service for the region, the regional Main Department of Internal Affairs; held a meeting of the Public Council; Relevant recommendations were sent to the competent authorities.

The problem with the preparation of documents giving the right to cross the state border for foreign citizens held in the Center still remains unresolved. Applications sent to the consular departments of the countries of nationality of expelled persons to obtain a “certificate of return” remain unfulfilled for a long period of time. The consulates of Kazakhstan, Uzbekistan and Moldova require a payment of $30 for issuing a document for each person. The budget of the Ministry of Internal Affairs does not provide funds to pay for such services, therefore foreigners subject to deportation from the Russian Federation; continue to be held at the Center. Federal Commissioner for Human Rights V. Lukin noted that this problem is also typical for other regions of the country and addressed the Ministry of Foreign Affairs and the Ministry of Internal Affairs with a request to “study these issues.” In connection with the above, we consider it necessary to propose introducing into the Federal Law “On the Legal Status of Foreign Citizens in the Russian Federation” the period of stay of these persons in these institutions for up to three months. We believe that during the specified time period it is possible to find out the necessary information about the citizenship of a foreign citizen, the receiving party and other data.

In addition, in the course of carrying out activities to monitor compliance with migration legislation, problems arise when bringing to justice foreign citizens who do not have documents proving their identity. It is impossible to draw up a protocol on an administrative offense against an unknown person, and in most cases it is not possible to establish the identity within the period of administrative detention specified by law, i.e. within three hours (Part 1 of Article 27.5 of the Code of Administrative Offenses of the Russian Federation). As a result, violators of migration legislation are subject to release, return to their previous places of stay and continue to violate the legislation of the Russian Federation. Illegal migrants are well aware of the existing problem, and therefore their concealment of identity documents has become widespread. In connection with the procedure for establishing identity at the international level, it is advisable to submit a proposal to legislative bodies to increase the period of administrative detention to establish the identity of foreign citizens who have committed violations of migration legislation.

Structure of immigration control in the Russian Federation

One of the areas of public administration where the diverse interests of citizens, society and the Russian state are realized is the migration sphere, while the stability of social relations arising in this area is ensured by their consolidation in legal norms. The need for legal regulation of social relations arises from the moment of organization of the state as a system for managing the affairs of society, the formation of those classes and groups that, due to the development of social relations, took over this management. Those. We are talking about the art of government or in other words - about politics, which is a field of activity related to relations between social groups, the essence of which is the determination of the forms, tasks, and content of the activities of the state. In turn, public administration in modern society is of a clearly political nature. The relationship between politics and public administration occurs at two levels: conceptual (setting a socio-economic problem, formulating a political program) and regulatory and managerial (defining the functional tasks of the state and the corresponding apparatus of public administration, “bringing together” the efforts of private and public means of regulation, control and checking the final result).

The concept of the state's migration policy is based on knowledge of the objective patterns of social development in a historically specific period of time. Therefore, periodically, depending on changes in the migration situation in the country and abroad, it requires differentiation in approaches to its implementation. In these conditions, the adoption of strategic administrative decisions while maintaining basic goals is determined by the established system of views and ideas in the state regarding the management of migration processes. It is advisable that this system should be called the concept of administrative policy in the migration sphere.

Administrative policy in the migration sphere reflects the state’s attitude to the management of migration processes, which is characterized by strategic influence on the mechanism of administrative and legal influence in the migration sphere. The importance of developing and improving administrative policy in the migration sphere is due to the social significance of its subject - the implementation of migration legislation, including law-making by executive authorities vested with powers in this area. The goal of administrative policy in the migration sphere is to increase the efficiency of lawmaking and law enforcement activities of the subjects of implementation of the migration doctrine in accordance with the functions assigned to them, taking into account the mutually dependent interests of the individual, society and the state.

Public administration in the sphere of implementation of migration policy, being the main directions of the formation and functioning of the subjects of its implementation, is based on general, sectoral, intersectoral, as well as international legal principles of law. Therefore, the fundamental ideas of public administration in the migration sphere should emphasize the democratic, constructive essence and content of this area of ​​activity of the executive branch, and orient it towards solving strategic problems of optimizing migration processes.

In this regard, public administration in the implementation of migration policy should be built along the following main interdependent directions: migration policy management is a complex multi-level mechanism, developed, first of all, on the basis of conceptual clarity. Therefore, it seems necessary to support the state at the legislative level for the further development of migration science, the creation of an institute for mandatory scientific examination of draft regulatory legal acts, scientific monitoring of the activities of executive authorities exercising managerial powers in the field of population migration; Legislation built on the basis of reliable scientific findings must contain the basic categorical and conceptual apparatus, namely: the concepts of migration, migration processes, migrant, illegal migrant. It seems possible to propose the following most optimal definitions.

Migration is the movement of individuals across the state and administrative borders of the Russian Federation for a specific purpose (family reunification, work, study, etc.).

The migration process is a set of actions that change the legal status of an individual when moving across state and (or) administrative borders.

An illegal migrant is an individual illegally staying on the territory of the Russian Federation, as well as an individual illegally moving both across the State borders of the Russian Federation and administrative borders within the country. “Illegal stay on the territory of the Russian Federation” should be understood as a violation of the norms of migration legislation of the Russian Federation. - improvement of the organizational foundations for managing the migration sphere, which is achieved through the expedient redistribution between authorized subjects of the implementation of migration policy of law enforcement functions, functions of supervision, control and provision of public services in the field of population migration, depending on changes in the migration situation in the country;

Migration policy is a special direction of Russian state policy, which is determined by the universal nature of migration and the enormous significance of migration processes for the state and its subjects. The authorities are increasingly aware of the need for balanced, comprehensive, multi-level and multilateral management of migration processes.

State regulation of migration should be carried out taking into account emerging trends in relation to the processes of both internal and external migration. The role of state migration policy should not be limited to planning and managing population movements. Her other important function-monitoring changes in the situation and flexible response to changes in socio-economic reality under the influence of reforms in society.

Improving migration management should go in two directions:

• 1. towards the general liberalization of migration policy and simplification of bureaucratic procedures;
• 2. towards a clear division of functions between different levels of government, increasing the independence of subjects and municipal bodies in decision-making.

All territorial levels should be involved in migration management and not just the federal level, as is the case now. Requires special attention municipal level, to which it is advisable to transfer the right to decide on attracting foreign labor to local enterprises and organizations; the right to determine and adjust quotas for attracting foreign labor; the right to accelerated registration of certain categories of migrants (including “short-term”); responsibility for the adaptation of migrants (on the one hand, to help them settle and self-organize (community communities, etc.), on the other hand, to block, if possible, the territorial concentration (segregation) of migrants, the creation of “ethnic neighborhoods”).

In general, it is necessary to carry out a qualitative revision of legislation in the field of migration relations in order to create more effective mechanisms for control over immigration processes. At the level of the constituent entities of the Russian Federation, as well as in municipalities, there is no own legal framework on migration issues.

One of the most important problems of managing migration processes is ensuring sustainable migration growth of the Russian population.

Population growth must be accompanied by a meaningful migration policy strategy. Russia is interested in the influx of qualified, legal labor resources. Measures to create conditions favorable for the birth of children, reduce mortality and streamline migration must be implemented simultaneously. The implementation of migration policy is possible only as a result of coordinated interdepartmental activities of interested federal and regional executive authorities.

Immigration policy should be based on an understanding of the need to integrate the Russian Federation into the international labor market. This policy should be based on the development of effective mechanisms for attracting and using foreign labor, taking into account the states of its origin, professional, educational and other characteristics. The most important condition for expanding legitimate channels of labor migration should be the preparation and conclusion of bilateral agreements on international labor exchange with the main countries - Russia's migration partners.

In the field of internal migration, an important strategic task is to eliminate institutional barriers to intensify economic migration and redistribute labor resources throughout the country. It is important to implement measures aimed at reducing the outflow of the working-age population from the regions of Siberia and the Far East, creating conditions for stabilizing the demographic and labor potential here, and stimulating the influx of migrants to poorly developed but rich in natural resources border areas.

In order to promptly respond to changes in the migration situation, timely, accurate, reliable and open information in this area is necessary. A set of measures is required to ensure full-scale accounting of migration and the creation of a federal automated information system that would allow the integration of all available and necessary sources of data on various types of population migration.

Identification of target district territories in regions favorable for the entry of migrants, including compatriots, is possible using programmatic methods, based on a study of the needs, opportunities and development prospects of these districts. In the future, it is possible to determine the status of these territories with a determination of the need and sources of financial and other preferences received by it.

Targeted settlement can be considered as the leading method of state regulation of migration processes. The use of this method will give positive results only if integrated approach to the issue, namely the use of a set of economic, political, legal, information tools in stimulating migration flows.

Particular consideration should be given to the possibility of stimulating the relocation of specialists necessary for the development of regions. The criteria for selecting immigrants should be simple and clear. Immigration policy rules should not change frequently as both immigrants and employers make plans for the future. The relocation and legalization of an immigrant should not be overloaded with unnecessary procedures and conditions, as this lengthens the time for making a decision on immigration and ultimately has a negative effect in the form of an increase in illegal migration and corruption.

The relocation and legalization of an immigrant should not be overloaded with unnecessary procedures and conditions, as this lengthens the time for making a decision on immigration and ultimately has a negative effect in the form of an increase in illegal migration and corruption. Immigration policy should not provide any advantages and privileges to foreigners in relation to the indigenous population, otherwise social tension and other negative consequences will increase in society. It is necessary to determine the main categories of potential migrants (repatriates, educational migrants, economic migrants, etc.), for each of which a special legal status must be designated. It is possible to determine quotas by region for each category. A favorable public background should be created for the implementation of immigration policy. Its goals and directions must be fully and accessiblely presented in the media in Russia and abroad.

To improve migration policy in the Yamalo-Nenets Autonomous Okrug, based on the analysis performed, it seems appropriate:

Accept urgent measures, aimed at the unconditional implementation of legislation on migration policy issues, as well as strengthening control over the activities of executive authorities in implementing legislation regulating migration policy issues;

Determine the main directions of activity of executive authorities and their territorial bodies in the field of migration policy, taking into account the specifics of the demographic and migration situation in the regions;

Develop regional program(comprehensive measures, action plans) to implement migration policy, improve interethnic relations and prevent manifestations of extremism and terrorism.