Risks and threats as system-forming categories of state control and supervision

The subject. The key characteristics of risks and threats in state control context are researched comprehensively.

The purpose of the article is to confirm or disprove hypothesis that threats and risks should be the basis for determining the content of other elements of the system of state control and supervision.

The methodology. The authors use the formal legal interpretation of normative acts, as well as systemic approach and analysis of philosophical literature, concepts of the security the-ory and monographs in different branches of law.

The main results, scope of application. The relationship between the concepts of "threats" and "risks" is determined, and their author's definitions are proposed. A threat in control and supervisory activities is a set of events or acts that cause or are capable of causing damage to socially significant values. Risks are such threats to socially significant values, which are expressed in the actions of participants of social relations. Risks are associated with an incorrect assessment of the objective situation and can lead to harm with varying degrees of probability. The categories "risk" (in the negative aspect) and "threat" highlight two facets of the same entity. When describing malicious phenomena as threats, attention is focused on the possibility of causing harm as an integral attribute of such phenomena. Understanding them as risks allows us to give a quantitative description of the probability of occurrence of harmful consequences of the impact of a particular act on the protected object. Problems are identified in the reflection of the essential characteristics of risks and threats in the current legislation on state control (supervision) and in the new Federal Law of 31.07.2020 No. 248-FZ "On State Control (Supervision) and Municipal Control in the Russian Federation". The analysis of the Russian legislation shows that there is no comprehensive approach to fixing the essential characteristics of threats and risks, which are aimed at minimizing the control and supervisory activities. New Russian Law No. 248-FZ of 31.07.2020 also demonstrates that the legislator does not have a systematic approach to identifying risks and other threats and therefore effective measures to counteract their implementation through control and supervisory activities are not determined. The scientific substantiation of the characteristics of risks and threats in general allows both to enrich the theory of public control, and to improve the legislation on control and supervisory activities, as well as to increase the effectiveness of the protection of public interests in the process of its application.

Conclusions. The key nature of threats and risks for determining other elements of the sys-tem of state control and supervision is substantiated The use of the term “threat" is preferred because of its more universal nature. Threats determines both the goals and principles of control and supervisory activities in any area, as well as its forms and methods.

1. Sattarova N. A., Shokhin S.O. Some Issues of Public Administration in the Sphere of Financial Security. Vestnik Permskogo Universiteta. Juridicheskie Nauki = Perm University Herald. Juridical Sciences, 2018, iss. 40, pp. 167–185. DOI: 10.17072/1995-4190-2018-40-167-185. (In Russ.).

2. Litvinenko A. N., Gromov I. A. The system of economic security of the state in the competence of the Department of Economic Security of the Ministry of Internal Affairs of Russia. Voprosy ekonomiki i prava = Economic and Law Issues, 2010, no. 12, pp. 71-75. (In Russ.).

3. Kardashova I. B. The Ministry of Internal Affairs of Russia in the system of ensuring national security of the Russian Federation. Doct. Diss. Thesis. Moscow, 2006. 57 p. (In Russ.).

4. Mamonov V. V. Constitutional bases of national security of the Russian Federation. Doct. Diss. Thesis. Sara-tov, 2004. 50 p. (In Russ.).

5. Guskov Yu., Reznik E. Security: problems of comprehension of the essence. Vlast' = The Authority, 2013, vol. 21, no. 11, pp. 85-87. (In Russ.).

6. Stakhov A. I. Administrative and public security in the Russian Federation. Moscow, YUNITY-DANA Publ., Zakon i pravo Publ., 2006. 199 p. (In Russ.).

7. Sakhno E. Kh. Administrative and legal organization of ensuring information security of the Russian Federation. Cand. Diss. Thesis. Khabarovsk, 2006. 23 p. (In Russ.).

8. Klokov, E. A. Financial security of the state: the essence and modern threats. Nauchnyi vestnik Omskoi akademii MVD Rossii, 2010, no. 2. pp. 43-47. (In Russ.).

9. Nesadurai H. E. (ed.). Globalisation and Economic Security in East Asia: Governance and Institutions. London, Routledge, 2005. 288 p. DOI: 10.4324/9780203086155.

10. Algin A. P. Risk and its role in public life. Moscow, Mysl Publ., 1989. 187 p. (In Russ.).

11. Afanasyev I. A. Philosophical foundations of the theory of social risks. Saratov, Saratov State Social and Economic University Publ., 2006. 124 p. (In Russ.).

12. Zubkov V. I. Sociological theory of risk. Moscow, RUDN Publ., 2003. 228 p. (In Russ.).

13. Ostroukhov O. V. Risk in social systems (socio-synergetic analysis). Novogorsk, AGZ Ministry of emergency situations Publ., 2000. 160 p. (In Russ.).

14. Beck U. From Industrial Society to the Risk Society: Questions of Survival, Social Structure and Ecological Enlightenment. Theory, Culture and Society, 1992, vol. 9, iss. 1, pp. 97-123. DOI: 10.1177/026327692009001006.

15. Giddens A. Fate, Risk and Security, in: Giddens A. Modernity and Self-Identity: Self and Society in the Late Modern Age. Cambridge, Polity Press, 1991. P. 109–143.

16. Luhmann N. The Concept of Risk, in: Luhmann N. Risk: A Sociological Theory. Berlin; New York, De Gruyter, 1993. P. 1-31.

17. Povarenkov A. Yu. Risks in private and public law and to the question of tax risks. Nalogi i finansovoe pravo, 2009, no. 5, pp. 134-141. (In Russ.).

18. Aryamov A. A. General theory of risk: legal, economic and psychological analysis. Moscow, RAJ Publ., 2009. 172 p. (In Russ.).

19. Tikhomirov Yu. A., Shakhray S. M. Risk and law. Moscow, Moscow University Publ., 2012. 64 p. (In Russ.).

20. Tikhomirov Yu.A., Lapina M.A. (eds.). Risks in the sphere of public and private law. Moscow, Ot i do Publ., 2014. 310 p. (In Russ.).

21. Meleshev R. S. Tax planning in the system of ensuring financial security. Cand. Diss. Thesis. Moscow, 2008. 25 p. (In Russ.).

22. Voronin V. G. Administrative and legal regulation of the organization and administration of maritime security in the Russian Federation. Cand. Diss. Thesis. Rostov-on-Don, 2006. 23 p. (In Russ.).

23. Afanasyeva L.V. Theoretical issues of the formation of budget and tax security. Problemy sovremennoi ekonomiki, 2015, no. 1, pp. 76-79. (In Russ.).

24. Gordienko, V. V. Security of Russia in the context of globalization: Criminological and socio-legal problems. Doct. Diss. Thesis. Moscow, 2005. 61 p. (In Russ.).

25. Kryuchkov R. A. Risk in law: genesis, concept and management. Cand. Diss. Nizhny Novgorod, 2011. 200 p. (In Russ.).

26. Rozhdestvenskaya T. E. The concept of legal risk. Gosudarstvo i pravo = State and Law, 2012, no. 3, pp. 113-117. (In Russ.).

27. Dyatlov Yu. A. Risk of application of law (problems of theory and practice). Cand. Diss. Vladimir, 2006. 189 p. (In Russ.).

28. Avdiysky V. I., Lapina M.A. (eds). Legal risks in the system of public administration. Moscow, Ot i do Publ., 2014. 248 p. (In Russ.).

29. Truntsevsky Yu. V. Legal risks: the concept and types. Aktual'nye problemy rossiiskogo prava = Actual Problems of Russian Law, 2014, no. 4, pp. 115-120. (In Russ.).

30. Diev V. S. Risk and uncertainty in philosophy, science, management. Vestnik Tomskogo gosudarstvennogo universiteta. Filosofiya. Sotsiologiya. Politologiya = Tomsk State University Journal of Philosophy, Sociology and Political Science, 2011, no. 2, pp. 79-89. (In Russ.).

31. Povetkina N. A. Financial stability of the Russian Federation: legal doctrine and practice of ensuring. Doct. Diss. Moscow, 2006. 458 p. (In Russ.).

32. Tikhomirov Yu. A. Forecasts and risks in the legal sphere. Zhurnal rossiiskogo prava = Journal of Russian Law, 2014, no. 3, pp. 5-16. (In Russ.).

33. Vlasenko N. A. Reasonableness and certainty in legal regulation. Moscow, Infra-M Publ., IZiSP Publ., 2014. 157 p. (In Russ.).

34. Kalinina L.E. Institute of security in the system of administrative law. Administrativnoe pravo i protsess = Administrative Law and Procedure, 2016, no. 7, pp. 37-40. (In Russ.).

35. Kucherov I.I., Povetkina N.A. (eds.). Financial security risks : legal format. Moscow, IZiSP Publ., Norma Publ., Infra-M Publ., 2018. 304 p. (In Russ.).

36. Tikhomirov Yu. A. Risk in law: nature and causes. Pravo i sovremennye gosudarstva, 2016, no. 6, pp. 9-19. (In Russ.).

37. Knight F. H. Risk, uncertainty and profit. Moscow, Delo Publ., 2003. 360 p. (In Russ.).

38. Ostanin V. A., Plesovskikh Yu. G., Rozhkov Yu. V. Triad "fear-danger-risk" and economic security of entrepreneurship. Ekonomika i predprinimatel'stvo, 2012, no. 2, pp. 181-185. (In Russ.).

39. Patenkova V. Yu. Analysis of the legal regulation of the risk-based approach in the control and supervisory activities in the field of entrepreneurship. Pravo i ekonomika, 2018, no. 5, pp. 10-12. (In Russ.).

40. Stober R. Economic and administrative law. Fundamentals and problems. The world economy and the domestic market. Moscow, Wolters Kluwer, 2008. 370 p. (In Russ.).