SUBMISSION OF ADMINISTRATIVE DECISIONS OF USING RECREATION AND TOURIST TERRITORY AND DEVELOPMENT OF ALTERNATIVE ACTIVITY TYPES

Актуальність. Всі взаємовідносини у сфері природокористування починаються з законодавчої бази про охорону природи та її окремих компонентів, де визначається функції держави з регулювання природоохоронної діяльності, а також визначені права і обов'язки природокористувачів. В більшості розвинених країн світу це закон про охорону природи або природоохоронні акти, якими встановлено загальні засади і цілі політики, які покликані забезпечити концептуальну однорідність і цілісність всієї законодавчої практики в галузі використання, охорони та відновлення природних ресурсів. Щодо системи та методів адміністративного управління використанням природних ресурсів то вони опираються на: систему законодавчих актів країни й регіону; систему нормативно-директивних і методичних (обов’язкових до застосування) документів державних органів; систему планів, програм, проектів, завдань; систему оперативного керівництва. Мета та завдання. Метою статті є обґрунтування інституційних реформ задля забезпечення виконання природоохоронного законодавства, розподілу повноважень природоохоронних органів на національному, регіональному та муніципальному рівнях щодо процедури прийняття рішень і їх виконання. Результати. Неузгодженність функцій контролю за використанням природного ресурсу, а саме відсутність горизонтального зв’язку між контролюючими органами влади призводить до того, що багато органів які контролюють один і той самий природний ресурс. Насамперед прослідковується неконтрольованість туристичної діяльності з використанням рекреаційних ресурсів. Таким чином основним завданням державного адміністративного управління має стати оцінка в кількісному та якісному еквівалентах наявних та потенціальних природних ресурсів та визначення стратегічних напрямів поводження з ними, їх використання та охорони суб’єктами підприємницької діяльності та домогосподарствами. При цьому необхідно визначити за допомогою яких механізмів досягнути оптимального використання рекреаційнотуристичних ресурсів при мінімізації збитків довкіллю, мінімізації витрат та максимізації соціального, економічного та екологічного ефектів їх використання. Висновки. Враховуючи економічний ефект, який може отримати держава доцільним є не лише враховувати економічний потенціал рекреаційно-туристичної території, а й розвиток альтернативних видів діяльності на ній. Контролювати підприємства які знаходяться на даній території та ведуть свою господарську діяльність з використанням або ж видобуванням і подальшим перепродажем рекреаційного ресурсу. Принциповим є перерозподіл податків від господарської діяльності на відновлення рекреаційних ресурсів на обласному рівні. Необхідно прописати методичні пояснення щодо податкових забовязень та пільг підприємствам які залученні до цього процесу зважаючи на статус території на якій виник процес рекреації з урахуванням лікувальних характеристик території та видобутку природних ресурсів на цій території. Ключові слова: рекреація, туризм, рекреаційно-туристичне природокористування, рекреаційнотуристичні ресурси, адміністративне управління.

Problem statement and its connection with important scientific and practical tasks.The use of recreation and tourist resources does not require significant investment in extraction and preparation of these resources for use in the process of treatment and rehabilitation, therefore, such activity is economically profitable.Therefore, the conceptual basis of recreational and tourist nature use should be interpreted as recreational and tourist use of nature -a complex of measures related to ecologically safe using natural resources in order to improve human health, restore its physical and psychological well-being, expanding the ecological and cultural worldview, which contributes to the economic growth of the state and the material well-being of business entities.
At the heart of institutional governance lies state ownership of natural recreation and tourist resources, regulatory and economic levers and methodological recommendations that require consideration of property rights not only for the natural resource itself, but also for the subject providing recreation and tourist services.Accordingly, vertical and horizontal coordination of the system of state administrative management with natural recreational and tourist resources and economic entities and the control over the implementation of state decisions should be established.
Analysis of recent publications on the problem.Questions of organization sustainable using recreation and tourist potencial of the territories have been reflected in the writings of such scientists as Pechlaner H., Bieger T., Weiermair K., Burkinsky B.V., Martyenko A.I, Khumarova N.I., Danylyshina B.M, Mishchenko V.I, Kozlovsky E.V., B.R. Koshowa and others.More of researches are directed on resolving the issue with increasing pressure on recreational resources around the world, including through privatization, the development of large-scale tourism infrastructure projects.Part of the problem is the presence of contradictions in legislation and policies that impede the effective implementation of administrative management of recreational resources.The main task to be solved today in the field of tourist and recreation use is the choice of expediency functioning of a particular enterprise with the involvement recreation potential of the territory.We note that the use of recreation and tourist potential has a special

ЕКОНОМІЧНІ ІННОВАЦІЇ
Том 20, Вип. 3 (68) 109 peculiarity, which consists in the need to consider objectively existing synergies between economic, social and environmental components.Allocation of previously unsolved parts of the general problem.An unresolved part of the issue is the provision of proposals for administration by the state of entrepreneurial activity and the choice of alternative entrepreneurship in recreational and tourist areas.The article analyzes the components of the conceptual apparatus of recreational and tourist nature use and administrative management in the Ukrainian and international legislation.Analyzed state and regional govermental authorities control recreation resources and it is determined that at the same time there is a discrepancy between the functions of control over the use of natural resources.

Formulation of research objectives (problem statement).
To assess the recreation and tourist potential of the territory, it is necessary to determine a list of indicators characterizing the potential components that can be evaluated.At the same time, an important factor is the economic effect of alternative types of economic activity for the state in the conditions of ecologically dangerous loading on recreational and tourist territory.Thus, it is necessary to investigate what kind of revenue in the form of tax revenues will be received by the state from the activities of enterprises located in the recreation and tourist area and the total loss from emissions, discharges and storage of garbage will affect the activity of these enterprises in the territory.
So the purpose of the article is to justify institutional reforms in order to ensure the implementation of environmental legislation, the division of powers of environmental authorities at the national, regional and municipal levels on the procedure for decision-making and its implementation An outline of the main results and their justification.All relationships in the field of nature use begin with the legislative framework on the protection of nature and its individual components, which defines the functions of the state for regulating environmental activities, as well as defined rights and responsibilities of environmental users.In most developed countries, it is a law on nature conservation or environmental acts that establishes the general principles and objectives of a policy designed to ensure the conceptual uniformity and integrity of all legislative practice in the use, protection and restoration of natural resources.Regarding the system and methods of administrative management of the use of natural resources, they are based on: the system of legislative acts of the country and the region; a system of normativedirective and methodological (obligatory to use) documents of state bodies; system of plans, programs, projects, tasks; operational management system.Ensuring the creation of conditions for high-quality administrative management of recreational and tourist nature use should include some institutional reforms to ensure the implementation of environmental legislation, the allocation of authority of environmental authorities at the national, regional and municipal levels as regards the procedure for decision-making and its implementation.Thus, it is necessary to conduct a comparative analysis of the interpretation of the concepts of "recreation", "tourism", "recreation and tourist nature use" in Ukraine and foreign countries (Table 1

* -based on sources [1-4]
The definition of the concept of "recreation and tourist nature use " is very similar, but in international practice there is an emphasis on the material components and the Ukrainian of the environment.Foreign practice of developed countries, legal practice is based on the integration of economic and environmental components in the process of economic activity, and they build a system of administration taking into account these two components.The disadvantage of the domestic definition is institutional dissonance with the conceptual apparatus of recreational and tourist nature use, which leads to the administration of the separate implementation of functions related to the protection of the environment and the economic development of economic entities.
According to the interpretation of the economic dictionary, administrative management -ensuring the implementation of management processes through methods and means of direct influence on managed objects, which function as a whole and oriented towards the achievement of a single common goal.The administrative system of management is characterized by direct influence on the managed objects with the help of official organizational and administrative documents (orders, orders, etc.) and management actions.Thus, the state administrative management of natural resources is a form of state activity in formulating the policy of organizing the practical activities of state bodies, ensuring the technological process of preparation, adoption and implementation of managerial decisions on subjects of recreational management (AWG).
State administrative authorities in the recreational and tourist sector in Ukraine can be characterized as follows (Table 2).
Analyzed the data presented in the table, we note that today the recreation and tourist nature is subordinated to many ministries and departments, while the inconsistency of the functions of control over the use of natural resources is observed, namely: -there is no horizontal connection between the supervisory authorities; -there are many authorities that control the same natural resource; -there is an uncontrolled tourism activity with the use of recreational resources.

2018
ЕКОНОМІЧНІ ІННОВАЦІЇ Том 20, Вип. 3 (68) 111 Approves: state building regulations, in particular on restoration, conservation, repair and adjustment of architectural monuments and urban planning, planning their territory and defining the boundaries, modes of use of their zones of protection; the procedure for monitoring the quality of drinking water and the technical condition of objects of centralized drinking water supply

Department of Ecology and Natural Resources
ensuring the implementation of state policy in the areas of environmental protection, rational use, reproduction and protection of natural resources (land, subsoil, surface and groundwater, atmospheric air, forests, fauna and flora), conservation, formation, conservation and use of the ecological network ; implementation of regulation in the areas of environmental protection, rational use, reproduction and protection of natural resources, protection and use of territories and objects of the nature reserve fund of Ukraine Department of Tourism, Recreation and Resorts ensuring implementation of the state policy in the field of tourism and resorts on the territory; reparation of proposals for projects of regional programs of tourism development and resorts, taking measures for implementation of these programs; promotion of tourist activity in the region and formation of modern tourism infrastructure;development and implementation of measures for the protection of local tourism resources It is necessary to take into account the fact that one enterprise can carry about emissions and discharges within the limits of the environmental protection legislation that do not harm the environment, while the aggregate of enterprises located in the recreation area may lead to excessive ecological load.
It is therefore important to take into account the following conditions: if 1 ˂ , then the feasibility of an alternative company in the recreation and tourist area is; if 1 ꞊ , the expediency of conducting activities can cause an excessive environmental burden on the recreation and tourist area.At the same time, the state may propose to improve purification equipment at the expense of the enterprise, by granting it privileges or tax holidays; if 1 > , it is necessary to transfer economic activity from the recreation and tourist territory.So, the level of recreational and tourist load should be sufficient to provide economic revenues for the subjects of this activity and not sufficient to cause damage or destruction of the environment.Thus, in the development of recreational and tourist activities, economic development must fit into environmental opportunities.
Conclusions and perspectives of further research.The main task of the state administration should be to assess the quantitative and qualitative equivalents of existing and potential natural resources and determine strategic directions of their handling, their use and protection by business entities and households.In this case, it is necessary to determine with which mechanisms to achieve the optimal use of recreation and tourist resources while minimizing environmental damage, minimizing costs and maximizing the social, economic and environmental effects of their use.
Taking into account the economic effect that the state can make it is expedient not only to take into account the economic potential of the recreational and tourist territory, but also the development of alternative activities on it.Control the enterprises located in the territory and conduct their economic activity with the use or extraction and subsequent resale of the recreational resource.
Principal is the redistribution of taxes from economic activity to the restoration of recreation resources at the regional level.It is necessary to provide methodological explanations regarding tax provisions and benefits to enterprises involved in this process, taking into account the status of the territory in which the recreation process has arisen, taking into account the medical characteristics of the territory and the extraction of natural resources in this territory.

Table 1 Basic definitions of definitions: recreation, tourism, "recreation and tourist nature use"* Practice Definition recreation tourism recreation and tourist nature use
).