Suchergebnisse

Jedan od praktično i teorijski najvažnijih problema teritorijalne organizacije lokalne samouprave svodi se na dilemu uspostave jednog stupnja ili više stupnjeva lokalnih samoupravnih jedinica. Stupnjevanjem se odgovara na problem i potrebu integracije sustava lokalne samouprave te na potrebu povezivanja tog sustava sa širom državnom organizacijom. Nakon opće rasprave o prednostima i nedostacima stupnjevanja, opsežno je komparativno analizirano stanje u 39 zemalja, 23 razvijene i 16 tranzicijskih. Ustanovljena su četiri tipa teritorijalnih okvira za integraciju sustava lokalne samouprave, jednostupanjski, mješoviti ili segmentirani, dvostupanjski i trostupanjski. Kao glavni faktori koji uvjetuju izbor jednog od tih okvira u pojedinoj zemlji utvrđeni su: veličina lokalnih jedinica, njihovo monotipsko ili politipsko uređenje, veličina države izražena brojem stanovnika te oblik društvenog uređenja (federacije, unitarne države). ; The dilemma about the establishment of one or more levels of local self-government units is one of the most important problems of territorial organisation of local self-government. Levelling is structural answer to the problem and needs to integrate local self-government system itself and to integrate that system into a wider organisation of a state as a whole. At the beginning, the paper deals with general discussion about the advantages and disadvantages of levelling. The situation in almost forty countries has been analysed, including two groups of countries: developed democracies (Austria, Australia, Belgium, Canada, Denmark, Finland, France, Germany, Great Britain, Greece, Ireland, Island, Italia, Japan, Luxemburg, Netherlands, New Zealand, Norway, Portugal, Spain, Sweden, Switzerland, and the USA) and transition countries (Albania, Bosnia and Herzegovina, Bulgaria, Croatia, Czech Republic, Estonia, Hungary, Latvia, Lithuania, Macedonia, Montenegro, Poland, Romania, Slovakia, Slovenia, and Serbia). Four different types of territorial frames for local self-govern mentsystem integration have been identified: one-tier, mixed or segmented, two-tier, and three-tier systems. Decision to select one of them is conditioned by the average size of local units, monotypic or polytypic design of territorial division of a country, the size of a country in terms of the number of inhabitants, and form of political organisation (federation or unitary state).

Osnovna nakana ovoga rada jest pokazati neke od magistralnih puteva kroz koje prolazi sustav lokalne samouprave u Republici Hrvatskoj. Proces europeizacije, naime, sve više zahvaća i oblikuje hrvatsku lokalnu samoupravu, uključujući implementaciju novih standarda rada kao što su procesi decentralizacije i dekoncentracije, privatizacije, liberalizacije, deregulacije, javnosti, transparentnosti i otvorenosti, te specijalizacije, informatizacije i digitalizacije itd. To su temeljne vrijednosti upravnih doktrina poput novog javnog menadžmenta, "dobre vladavine" i drugih. U kontekstu ove teme posebnu pozornost stavili smo na neke aspekte organizacijske strukture Splitsko-dalmatinske županije apostrofirajući pritom posebice podatke o kvalifikacijskoj, spolnoj i dobnoj strukturi zaposlenih u upravnim tijelima županije i neke pokazatelje o financijsko-proračunskom kapacitetu općina, gradova i same županije. ; The key aim of this paper is to demonstrate a few main pathsthrough which goes the system of local self-goverment in Croatia. Europeanization process more and more encompasses and shapes croatian local self goverment including implementation of new standards of work such as democratization and dispersion processes, public participation, transparency , openness and also specialities, informatization and digitalization. These are the fundamental values of admininistrative doctrines like new public managment, "good governance" ect. In the context of this subject of matter, we have put a special emphasis on some aspects of organizational structure of Split-Dalmatia County, underlining data about qualifications, age of employees in administrative structures of County and some data about financial-budget capacity of communities, towns and County.

Teritorijalna rasprostranjenost samoupravnih lokalnih zajednica od bitnog je značenja za njihovo uspješno djelovanje. Za Sloveniju su tijekom povijesti karakteristična veoma različita rješenja uređenja samoupravnih lokalnih jedinica, a poznavanje tog uređenja može ponuditi značajne podatke pri prosuđivanju rješenja za sadašnjost i budućnost. Najslo­ženije pitanje budućeg dograđivanja sustava lokalne samouprave u Sloveniji, po mišljenju autora, jest uspostava pokrajina. Autor posebice ističe daje svakoj značajnijoj promjeni potreban kompleksan i konceptualan pristup. ; There is a uniform standpoint that local self-government is an essential element of democratic order, but there are significant differences in its implementation in particular countries which are also evident in the territorial structure of local self-government units. In Slovenia, in different periods in the past (after 1849 when the first legislation in this area was passed within Austria-Hungary) there were great differences with regard to the kind and number of local self-government units. Thus before the First World War there were more than 1,200 municipalities, and in the period between the two world wars in the Slovenian part of the Kingdom of Yugoslavia (particularly after the land consolidation in the Drava Province (Banovina) in 1933) the number of municipalities was considerably reduced - to 362 (after the land consolidation in 1926 and 1927). The number of municipalities which were at that time within the Kingdom of ltaly was also reduced - to 62 municipalities. After the Second World War, the number of municipalities, that is localities which were organized according to the world model of government, was significantly increased. After the establishment of the "socialist community" as a commune, which represented a specific "socio-political and economic community" in the socialist self-management system of that time and whose tasks were primarily to carry out deconcentrated state activities, the number of municipalities was considerably decreased (in 1952 to 370, in 1955 to 130 and in 1965 to 62). After the recognition of the Republic of Slovenia as an independent state (in 1991 ), foundations for the introduction of the system of local self-government comparable to Europe were established by passing the new Constitution and the Local Self-government Act, as well as other regulations (and later also by ratification of the European Charter of Local Self-government). It has been shown that in Slovenia, like in other countries, according to the political (but also the professional) point of view, municipalities have to be large enough in order to perform local activities efficiently and economically and ensure a high standard of public services, but at the same time small enough in order to enable citizens to cooperate more closely in pursuing their interests and offer them a possibility to influence decisions. After new municipalities (147 of them in 1994 and 45 more in 1998) have been established, it can be said that the new System of self-government has started operating properly. The most complex issue of developing the system of local self-government in Slovenia will be the establishment of larger local self-government units - provinces. Among other things, because the Constitution contains a specific provision according to which provinces are established on the basis of independent orientation of municipalities, which voluntarily associate in order to regulate and perform local activities of wider significance

U tekstu se prikazuje sustav lokalne samouprave u dvije europske zemlje, Njemačkoj i Francuskoj. Obrađuju se razine, broj i vrsta teritorijalnih jedinica te organizacija i struktura njihovih lokalnih samouprava. Prikazuju se različiti institucionalni oblici međuopćinskog povezivanja i suradnje koji proizlaze iz duge tradicije, ali i teritorijalnih reformi novijeg datuma. Uspoređuju se modernizacijske i menadžerske reforme lokalne samouprave od 1980-ih na- dalje te se prati proces njihova provođenja koji se u Njemačkoj uglavnom pokretao odozdo (bottom-up), dok ga je u Francuskoj vodila središnja država (top-down). ; The authors have described local self-government systems in Germany and France. They have analysed the levels, the number and type of territorial units, and the organisation and structure of German and French local self-governments. Different institutional forms of intermunicipal cooperation and connections springing from a long tradition, as well as from relatively recent territorial reforms, are shown. Modernisation and managerial reforms of local self-government since the 1980s onwards are compared, together with the process of their implementation, which has been conducted bottom-up in Germany and top-down in France.

U članku se daje kratak pregled lokalne samouprave u Bosni i Hercegovini, odnosno u Federaciji Bosne i Hercegovine, Republici Srpskoj i Distriktu Brčko Bosne i Hercegovine. Akcent je stavljen na ustavnopravni položaj lokalne samouprave u BiH, organizaciju i nadležnost jedinica lokalne samouprave te na pravne instrumente zaštite prava na lokalnu samoupravu. Autor ukazuje na specifičnosti sistema lokalne samouprave u BiH te na ulogu i značaj koji lokalna samouprava u BiH, kao razina vlasti koja je najbliža građanima, treba da ima u kreiranju poželjnog životnog ambijenta. S tim u vezi, autor ističe koherentnost interesa na lokalnoj razini, čije ostvarenje je u nadležnosti jedinica lokalne samouprave, kao prednost i adekvatan mogući odgovor na disparatnost interesa na državnoj razini vlasti u BiH. Pored toga, autor ukazuje na određene preduvjete za postizanje istinske lokalne samouprave. ; The article gives a short review of local self-government in Bosnia and Herzegovina, specifically in the Federation of Bosnia and Herzegovina, Serbian Republic and the Brčko District of Bosnia and Herzegovina. The emphasis was on constitutional position of local self-government in Bosnia and Herzegovina, organization and jurisdiction of local governments and the legal instruments for the protection of rights on local self-government. The author deals with specific attributes of local self-government system in Bosnia and Herzegovina, the role and the importance of the local self-government in Bosnia and Herzegovina in creating a desirable living environment, as the level of government that is the closest to the citizens. Coherence of interests at local level, whose realization is under the jurisdiction of local self-governments units is pointed out as an advantage and a possible adequate response to the disparity of interests at the state level of government in Bosnia and Herzegovina. In conclusion, the author specifies certain preconditions to achievement of genuine local self-government.

The article gives a short review of local self-government in Bosnia and Herzegovina, specifically in the Federation of Bosnia and Herzegovina, Serbian Republic and the Brčko District of Bosnia and Herzegovina. The emphasis was on constitutional position of local self-government in Bosnia and Herzegovina, organization and jurisdiction of local governments and the legal instruments for the protection of rights on local self-government. The author deals with specific attributes of local self-government system in Bosnia and Herzegovina, the role and the importance of the local self-government in Bosnia and Herzegovina in creating a desirable living environment, as the level of government that is the closest to the citizens. Coherence of interests at local level, whose realization is under the jurisdiction of local self-governments units is pointed out as an advantage and a possible adequate response to the disparity of interests at the state level of government in Bosnia and Herzegovina. In conclusion, the author specifies certain preconditions to achievement of genuine local self-government. ; U članku se daje kratak pregled lokalne samouprave u Bosni i Hercegovini, odnosno u Federaciji Bosne i Hercegovine, Republici Srpskoj i Distriktu Brčko Bosne i Hercegovine. Akcent je stavljen na ustavnopravni položaj lokalne samouprave u BiH, organizaciju i nadležnost jedinica lokalne samouprave te na pravne instrumente zaštite prava na lokalnu samoupravu. Autor ukazuje na specifičnosti sistema lokalne samouprave u BiH te na ulogu i značaj kojeg lokalna samouprava u BiH, kao razina vlasti koja je najbliža građanima, treba da ima u kreiranju poželjnog životnog ambijenta. S tim u vezi, autor ističe koherentnost interesa na lokalnoj razini, čije ostvarenje je u nadležnosti jedinica lokalne samouprave, kao prednost i adekvatan mogući odgovor na disparatnost interesa na državnoj razini vlasti u BiH. Pored toga, autor ukazuje na određene preduvjete za postizanje istinske lokalne samouprave.

U Hrvatskoj već dulje vrijeme, a naročito u zadnjih godinu dana, traje javna i stručna rasprava o reorganizaciji sustava lokalne samouprave. Važna komponenta tog sustava je teritorijalna struktura. Identificiranje njezinih karakteristika daje potrebne osnove za prijedloge za promjenu sustava. Postojeći sustav obilježavaju prevelika slož enost teritorijalne organizacije, njezina nedovoljna stabilnost, neuravnoteženost, nedovoljna efikasnost lokalne samouprave, slabi razvojni potencijali te osiguranje centralističkog načina upravljanja zemljom. Da bi se mogle izvršiti potrebne pro- mjene, potrebno je da se relevantni akteri suglase o potrebi promjene modela upravljanja zemljom, kao i o novim, razvojnim svrhama lokalne samouprave. Također, trebali bi odustati od povijesno prevladanih modela i prihvatiti racionalnu organizaciju države. ; A public and professional debate about reorganisation of local self-government has been going on in Croatia for quite some time and with particular intensity during the past year. An important component of the local self-government system is the territorial structure. Identification of its characteristics gives the necessary basis to the suggestions for changes of the system. The current local self-government system is characterised by excessive complexity of the territorial organisation and its insufficient stability, imbalance, insufficient efficiency of local self-government, weak development potentials, and centralistic manner of governance at the national level. In order to conduct the necessary reforms, the relevant actors have to reach an agreement about the necessity of changing the governance model as well as about the new, developmental purposes of local self-government. Moreover, they should give up historically obsolete models and accept rational organisation of the country.

Autori u tekstu propituju povijest razvoja lokalne samouprave u Hrvatskoj od samih početaka do danas. U tom smislu, rabe pravnopovijesnu metodu i daju presjek razvoja te institucije s naglaskom na normativnu regulaciju unutar zadnjih 30-tak godina. Rad ukazuje na temeljne nedostatke u razvoju lokalne samouprave koji se moraju prevladati kako bi ona bila učinkovitija. ; The authors question the history of the development of local self-government in Croatia from the very beginning to the present day. In that sense, they use the legal-historical method and give a cross-section of the institutions' development with an emphasis on normative regulation within the last 30 years. The paper points to fundamental drawbacks in the development of local self-government that must be overcome in order to make it more effective.

U posljednjih 15-tak godina hrvatska politièka elita nije dovoljno uèinila na planu "debalkanizacije" lokalne uprave u RH koju obilježava korupcija, nepotizam, bahatost, glomaznost i neodgovornost. Nužno je stoga uspostaviti weberijanski model racionalne uprave koju, između ostaloga, obilježava načelo sine ira et studio. ; The territory of the Republic of Croatia was until the adoption of the Local Sel fgovernment and Administration Act of December 1992 divided into municipalities (102 in 1990) and associations of municipalities (10) which were local units at the regional level. Despite the argumented claims not to change the existing administrative-territorial division of the national territory until the end of the war, "extensive reorganization" of local self-government started. The number of local units increased by five times. In that process, not rational but political criteria were taken into consideration. During the 1990s, so called imaginary employment positions were opened in local units as one of the means of solving the problem of unemployment. Corruption and nepotism were among the main problems in local administration. "Balkanisation" of administration was at work, not only in Lika, but also in the Republic of Croatia. It was manifested in the following characteristics of administration: arrogance, massiveness, inefficiency and irresponsibility. The new political elite did little for "de-Balkanisation" of administration. That is, for the establishment of the Weberian model of rational administration which, among others, is characterised by the principle sine ira et studio. After political changes in 2000, certain efforts in respect of rationalisation of the system of local self-government have been made, particularly by the rationalisation of the number of employees. This, of course, is not enough. It is necessary to reduce a great number of municipalities, towns and counties. Instead of 21 counties, the Croatian territory should be divided into regions. And the area of Lika should probably most rationally be divided between the regions of Dalmatia and Rijeka.

Ovaj članak se bavi prikazom procesa decentralizacije u Srbiji od 2000. do 2011. godine imajući u vidu da bi ovaj proces ujedno morao biti i proces podizanja kapaciteta lokalnih vlasti. U radu se prati transformacija svakog od bitnih činilaca autonomije lokalne vlasti i njenih menadžerijalnih potencijala: ustavni i zakonski status, izbori i model organizacije vlasti, nadležnosti, finansiranje, pružanje usluga, participacija građana, te odnos države i lokalne samouprave. Ovaj kompleksan proces zahteva vreme, podizanje znanja i veština svih nivoa vlasti (posebno lokalne), posvećenost političke elite demokratskim vrednostima i tesno je vezan sa podizanjem stepena demokratske političke kulture. ; This paper provides a review of the process of decentralisation in Serbia from 2000 to 2011, bearing in mind that this process should at the same time be a process of enhancing the local government capacity. The paper traces the transformation of each of the essential factors of the autonomy of local government and its managerial potentials: its constitutional and legal status, elections and the model of the organisation of government, competences, funding, provision of services, citizen participation, and the relationship between the state and local self-government. This complex process is time-consuming, requires upgrading knowledge and skills at all levels of government (local government in particular), a commitment of the political elite to democratic values, and is closely tied to increasing the level of democratic political culture.

U radu su analizirani zakonski i normativno-pravni akti o sudjelovanju građana u procesu donošenja odluka u jedinicama lokalne samouprave. Sudjelovanje građana u procesu odlučivanja jeste građansko pravo koje građani konzumiraju na svim razinama vlasti, kako na lokalnim tako i na višim razinama vlasti, što čini temelj razvoja demokratskog društva. S obzirom na složenost ustroja i funkcioniranja Bosne i Hercegovine, postoji velik broj normativno-pravnih akata koji reguliraju navedeno područje. Može se očekivati da će ova tema biti zanimljiva ne samo znanstvenicima čije je polje zanimanja javna uprava nego i široj javnosti iz razloga što građani većinu svojih interesa, potreba i očekivanja (prema provedenim istraživanjima preko 70%) upravo ostvaruju na lokalnoj razini. ; Citizens' participation in decision-making process is a civil right that citizens consume at all government levels, either directly or indirectly. Citizens' participation is regulated by the Constitutions (at the state, entity, and cantonal levels), as well as by the laws on local self-government and by the statute, which is the basic normative legal act of local self-government units. Although legal regulation of citizens' participation has been harmonised with the European Charter of Local Self-Government, an analysis of legislation concerning citizens' participation has shown numerous differences, deficiencies, and unfinished solutions in the regulations at the municipal and sub-municipal levels, as well as at the entity and cantonal levels of the Federation of Bosnia and Herzegovina, primarily due to the complex organisation of Bosnia and Herzegovina. What is necessary is to adopt the Law of Referendum at the entity (and state) level, and to amend and harmonise other regulations related to citizens' participation – entity and cantonal Constitutions, the Law on Local Self-Government at the entity and cantonal levels, and municipal and sub-municipal statutes. It is also necessary to adopt the Regulation of the Rules of Citizens' participation at the Local Level. Local self-government units must develop and adopt their partnership strategies for cooperation with local citizens.

Komentiraju se slijed dosadašnjih pokušaja te aktualni napo-ri u vezi s decentralizacijom. Elaborira se četrnaest prijedloga za korjenitu decentralizaciju, koja jedina ima smisla ako se lokalna i regionalna samouprava želi konstituirati kao jedan od ključnih aktera ekonomskog, društvenog i socijalnog razvoja te ekonomske stabilnosti zemlje. Riječ je o: oblikovanju strategije decentralizacije; u čvršćenju strukture za regionalni razvoj; zadržavanja dvostupanjske strukture terito- rijalne samouprave, ali različite od postojeće; formiranju pet regija umjesto sadašnjih dvadeset županija; spajanju preko 550 lokalnih jedinica u 150 velikih općina; zadržavanju i ja-č anju mjesne samouprave; preoblikovanje županija u uprav- ne okruge s primjenom načela one-stop-shop, smanjenjem broja tih okruga na desetak i širenjem njihova djelokruga na poslove sadašnjih područnih jedinica središnjih tijela državne uprave; jačanju financijskog kapaciteta lokalne samouprave tako da se dosegne udio lokalnih rashoda u rashodima opće drž ave od 25% u narednih pet godina; uvođenju mješovitog izbornog sustava tako da se pored proporcionalnog uvede većinsko predstavništvo; formiranju Agencije za lokalne službenike kao nezavisnog tijela na razini države; usposta- vi jedinstvenog informacijskog sustava lokalne samouprave; prenošenju dijela poslova državne uprave na obavljanje većim jedinicama lokalne samouprave; formiranju ekspertne radne skupine za pripremu decentralizacije; planiranju decentralizacije tako da se čitav program provede do lokalnih izbora 2017. Navode se i mogućnosti usavršavanja postojećeg centraliziranog modela organizacije države, ponajprije kroz diferencijaciju položaja objektivno različitih jedinica te poticanje i nametanje intermunicipalne suradnje. ; The paper begins with a comment on the sequence of previous attempts at decentralisation and a description of current efforts made concerning the decentralisation process. Fourteen suggestions for substantive decentralisation are elaborated. A substantive decentralisation is the only reasonable decentralisation form if local and regional self-government is to be constituted as one of the key actors of economic and social development, and of economic stability of the country. These fourteen sugges- tions include: (1) designing a decentralisation strategy; (2) strengthening the structure for regional development; (3) maintaining the two-tier system of territorial self-government, which should nevertheless differ from the existing model; (4) forming five regions instead of the existing twenty counties; (5) merging more than 550 local units into 150 large municipalities; (6) maintaining and strengthening forms of intra-municipal self-government; (7) reshaping counties into state administrative units with the implementation of one-stop-shop principle, by reducing them to ten units and by widening their competences to the tasks of the existing branch of- fices of various ministries; (8) strengthening the financial capacity of local self-government so as to rise the share of local expenditures in the general state expenditures to 25 per cent in the next five years; (9) considering the introduction of mixed electoral system, so as to introduce plurality representation along with proportional; (10) establishing an Agency for Local Civil Servants as a central level independent body; (11) establishing an integrated information system on local governments; (12) transferring certain state administrative tasks to larger local self-government units; (13) forming an group of experts that would professionaly prepare decentralisation; (14) planning decentralisation so that the whole programme will have been finished by 2017 local elections. The author has also made suggestions for the another scenario – improvement of the existing cen- tralised model of state organisation, primarily via deeper differentiation between the objectively different local units, and stimulation and imposition of intermunicipal cooperation.

Od financiranja lokalne samouprave zavisi provođenje njenih nadležnosti. Bez adekvatnog financiranja ne možemo očekivati kvalitetnu lokalnu samoupravu za građane kao krajnje korisnike usluga. Financiranje lokalne samouprave predstavlja važan princip koji je zajamčen i Europskom poveljom o lokalnoj samoupravi. Bez značajnije financijske i materijalne autonomije, cjelokupan koncept i funkcioniranje lokalne samouprave gube na značaju. Cilj ovog članka jest predstavljanje osnovnih pitanja o financiranju lokalne samouprave u Bosni i Hercegovini, odnosno njenim entitetima Federaciji Bosne i Hercegovine i Republici Srpskoj. Analiza predstavlja međunarodnopravne odredbe o financiranju lokalne samouprave sadržane u Europskoj povelji o lokalnoj samoupravi i pravne odredbe iz nacionalnog zakonodavstva Bosne i Hercegovine i njezinih entiteta. ; The financing of local self-government influences the capacities of local units to perform their tasks. One cannot expect to receive high quality local services unless local units have sufficient financial means and are able to provide a wide range of services. The principle of local self-government financing is a basic principle guaranteed by the European Charter of Local Self-Government. The whole concept of local self-government and its functioning lose on their importance if there is not sufficient financial autonomy. The paper aims at presenting the basic issues of local self-government financing in the Federation of Bosnia and Herzegovina and Republic of Srpska. Some of the main international legal norms related to the financing of local self-government from the European Charter and national legal regulation of Bosnia and Herzegovina and its entities are analysed in the paper. The analysis has shown that the funds allocated to Bosnian local self-government are far from sufficient. Furthermore, there is a significant difference in local self-government funding between the Federation of Bosnia and Herzegovina, which spends 8.42 per cent of its budget on local finances, and the Republic of Srpska, which spends 24 per cent.