THE RISKS OF DECENTRALIZATION REFORM AND THE METHODS OF SOLVING THEM
DOI:
https://doi.org/10.34132/pard2020.10.07Keywords:
decentralization, disorganization, supervision, effectiveness, disadvantages, risks, prefect, culture, ethno-national, language, law, minoritiesAbstract
The article is devoted to analyzing the possible risks of decentralization reform and finding ways to address and reduce them. Being in the unfinished stage, decentralization is an important systemic reorganization that consecuent the security, development and economic recovery at the local and national levels. Systemic changes at the local level in times of economic and political instability require careful and prudent public policy. The main risks that threaten the reform and the danger of Ukraine's sovereignty, separatism, centrifugal tendencies, enclave, criminalization have been identified. Particular risk is the possible separatism in certain regions of the state. The volatile political situation, both at the national and especially at the local level, threatens to reform decentralization and local government performance. The questions of linguistic and ethno-national factors and their role in the formation of united communities are investigated. The methodological and regulatory arrangements for decentralization are important and relevant to the realities of community association. The proposed amendments to the Constitution of Ukraine regarding decentralization and their risks are analyzed. Legality and the rule of law are a prerequisite for preventing the risks of decentralization and for the development of united communities. The role of prefects in overseeing the legality of decisions of local self-government bodies with the possibility of violation of the functional balance of the judicial branch is considered. Possible preventive ways of reducing the risks and challenges of reform, addressing topical reform issues, and promoting state-building are suggested. The article explores the linguistic issue of national minorities and expresses the opinion on the importance of the national language as a unifying and state-building factor.
References
Taracenko, T.M. (2014). Problema dezentralizacii v reformuvanni miscevogo samovryaduvannya v Ukraini. [The problem of decentralization in the reform of local self-government in Ukraine]. Derzhavne upravlynnia ta mistseve samovryaduvannia – Public administration and local self-government, 2 (21) [in Ukrainian].
Postanova Verkhovnoi Rady Ukrainy pryiniata 31.08.2015 roku No 656-VIII, «Pro poperedne shvalennya zakonoproectu pro vnesennya zmin do Konstytuzii Ukrainy shodo dezentralizacii vlady. [Resolution of the Verkhovna Rada of Ukraine of 31.08.2015 on the preliminary approval of the Bill amending the Constitution of Ukraine on decentralization of power]. zakon.rada.gov.ua. Retrieved from https://zakon.rada.gov.ua [in Ukrainian].
Yemelyanov, V.M., & Shulga, A.A. Normatyvno-pravove zabezpecennya reformuvannya miscevogo samovryaduvannya ta objednannya terytorialnyh gromad v Ukraini [Legal support for reform of local self-government and unification of territorial communities in Ukraine]. Naukovi praci. Derzhavne upravlinnya – Scientific works. Governance [in Ukrainian].
Skrypnyuk, O. Detsentralizaciya vlady yak chynnyk zabezpecennya stabylnosti kostytutsiynogo ladu: teoriya i praktyka [Decentralization of power as a factor in ensuring the stability of the constitutional order: theory and practice]. Naukova biblioteka – Scientific Library [in Ukrainian].
Pro dobrovilne objednannya terytorialnyh gromad. Zakon Ukrainy pryinyatyi 05.02.2015 r. Vidomosti Verkhovnoi Rady 2015, No 13, st. 91 [About voluntary association of territorial communities. Law of Ukraine dated 05.02. 2015 Verkhovna Rada Notices 2015, No 13, p.91]. zakon.rada.gov.ua. Retrieved from https://zakon.rada.gov.ua [in Ukrainian].
International Alert Dezentralizatsiya v Ukraini dosyagnennya, nadii i pobouvannya/ Ukrayinskyi nezalezhnyi tsentr politychnyh doslidzen [International Alert Decentralization in Ukraine of achievement, hope and fear] [in Ukrainian].
«Pro zabezpechennia funktsionuvannya ukrainskoi movy yak derzhavnoi». Zakon Ukraini pryiniatyi 25.04.2019 r. Vidomosti Verkhovnoi Rady, 2019 No 21, st. 81. [On ensuring the functioning of the Ukrainian language as a state language. Law of Ukraine 2015 Verkhovna Rada Notices dated 25.04.2019]. zakon.rada.gov.ua. Retrieved from https://zakon.rada.gov.ua [in Ukrainian].
Cultura v umovah dezentralizacii: comentari. [Decentralization Culture: Comments]. decentralization.gov.ua. Retrieved from: https://decentralization.gov.ua/news/11128 [in Ukrainian].
«Pro misceve samovryaduvannya». Zakon Ukraini pryiniatyi 20.05.1997 roku No 24. Vidomosti Verkhovnoi Rady 1997, [About local government. Law of Ukraine 20.05.1997 Verkhovna Rada Notices]. zakon.rada.gov.ua. Retrieved from https://zakon.rada.gov.ua [in Ukrainian].
Vyborchyi kodeks Ukraini pryiniatyi 19.12.2019 roku Vidomosti Verkhovnoi Rady 2020, No 396-IX. [The Electoral Code of Ukraine dated 19.12.2019 Verkhovna Rada Notices]. zakon.rada.gov.ua. Retrieved from https://zakon.rada.gov.ua [in Ukrainian].
Europeiska Hartiya miscevogo samovryaduvannya vid 15 zhovtnya 1985 roku.// Oficiyniy visnyc Ucraini vid 03.04.2015 roku. Vidomosti Verkhovnoi Rady Ukrainy vid 16.11.2009 [European Charter of Local Self-Government of 15 October 1985. // Official Bulletin of Ukraine dated 03.04.2015. Information of the Verkhovna Rada of Ukraine from 16.11.2009] [in Ukrainian].
Korneva, O.V. Osnovni problemy provedennya reformy decentralizacii v Ukraini u 2014- 2018 [The main problems of decentralization reform in Ukraine in 2014-2018] [in Ukrainian].
Chastka uchniv u shcolah Ukraini, shcho navchautsia ukrainskoyu [Share of students in Ukrainian schools studying Ukrainian]. statistika.in.ua. Retrieved from http://statistika.in.ua/mova2001/ukrainska_v_shkolah [in Ukrainian].
V Krimu ne ostalos ne odnoi shkoly z ukrainskim yazikom obucheniya [There are no schools with the Ukrainian language of instruction left in Crimea]. crimeahrg.org. Retrieved from https://crimeahrg.org/ru/v-krymu-ne-ostalos-ni-odnoj-shkoly-s-ukrainskim-yazykom obucheniya [in Ukrainian].
Kvitca, S.A. Prinzip subsidearnosti ta protsesy dezentralizazii v Ukraini [The principle of subsidiarity and processes of decentralization in Ukraine]. Aspecty publichnogo upravlinnya – Aspects of public administration [in Ukrainian].
«Pro zatverdzhennya metodycy formuvannya spromozhnyh teritorialnyh gromad». Postanova Kabinetu Ministriv 08.04.2015 [About the consolidation of the methodology for the formation of adjoining territorial communities of Resolution of the Cabinet of Ministers vid 04.04.2015 year, number 214]. zakon.rada.gov.ua. Retrieved from https://zakon.rada.gov.ua [in Ukrainian].
Ibragimova, A.A. (2015). Haracterystyca normatyvno-pravovoi basy derzhavnoi polityky u sferi pobudovy spromozhnyh teritorialnyh gromad v Ukraini [Characteristics of the regulatory framework of sovereign politics in the sphere of incentive of territorial communities in Ukraine Naukovi praci. Derzhavne upravlinnya – Scientific works. Governance] 263, Vol. 252 165-173 [in Ukrainian].
Andryash, V.I. (2013). Secesiya v suchasnomu sviti: ryzici i zagrozy dlya Ukraini [Secession in the modern world: risks and threats to Ukraine] Retrieved from http://lvivacademy.com/vidavnitstvo_1/visnik11/fail/Andrijash.pdf [in Ukrainian].
Bezsmertnyi: Dezentralizaciya tse ne reforma. [Bessmertnyi: Decentralization is not reform]. www.facebook.com. Retrieved from https://www.facebook.com/ [in Ukrainian].
Zakon Ukrainy Pro vnesennya zmin do zakonu Ukraini «Pro dobrovilne objednannya teritorialnyh gromad» shodo sprozhennya procedury zatverdzhennya perspectyvnyh planiv formuvannya teerytoriy gromad Avtonomnoi Respublicy Crym, oblastey pryiniatyi 5 grud, 2019 roku No 348-IX [Law of Ukraine on Amendments to the law of Ukraine on voluntary unification of territorial communities concerning simplification of the procedure for approval of prospective plans for the formation of territories of communities of the Autonomous Republic of Crimea, oblasts, accepted 5 December 2019 year No 348-IX]. zakon.rada.gov.ua. Retrieved from https://zakon.rada.gov.ua [in Ukrainian].
Proect zmin do Konstitucii v chastini dezentralizacii potribno obgovoryuvaty z predstavnycamy miscevogo samovryaduvannya – Asotsiatsiya obyednanyh terytorialnyh gromad. [The draft amendments to the Constitution regarding decentralization should be discussed with the representatives of local self-government - the Association of united territorial communities]. uacrisis.org. Retrieved from http://uacrisis.org/ua/74409-proyekt-zmin-konstitutsiyi-asotsiatsiya-otg 29.11.2019 [in Ukrainian].
Vysnovok shodo zakonu pro zabezpechennya funkcionuvannya ukrainskoi movy yak derzhavnoi pryjnyatyj Venetsianskoyu Komisiyeyu na 121-mu plenarnomu zasidanni (Venecia, 6-7 grudnya 2019) Vysnovok No 960/2019 [Opinion on the Law on Ensuring the Functioning of the Ukrainian Language as State adopted by the Venice Commission at the 121st Plenary Session (Venice, December 6-7, 2019) Opinion No 960/2019] [in Ukrainian].
Klimkin obgovoryt «movnyi zakon» z glavoyu MZS Ugorchchyny [Klimkin will discuss the "language law" with the Hungarian Foreign Minister]. www.unian.ua. Retrieved from https://www.unian.ua/politics/10532160-klimkin-obgovorit-movniy-zakon-z-glavoyu-mzs-ugorshchini.html [in Ukrainian].
Ruslan Rohov: Decentralizacija maje peretvoryty «piddanyh derzhavy» na yii «akcioneriv». [Ruslan Rohov: Decentralization should turn «subjects of the state» into Its «shareholders»]. agropolit.com. Retrieved from: https://agropolit.com/interview/690-ruslan-rohov-detsentralizatsiya-maye-peretvoriti-piddanih-derjavi-na-yiyi-aktsioneriv [in Ukrainian].
Etnichnyy factor ne stoit na zavadi obyednannyu gromad. Resultaty doslidzhennya [Ethnicity does not hamper community reunification. Research results]. decentralization.gov.ua. Retrieved from https://decentralization.gov.ua/news/11970 [in Ukrainian].
Zakon Ukraini Pro zagalnu serednyu osvitu vid 16.01.2020, No 0901 [Law of Ukraine on General Secondary Education of 16.01.2020, No 0901]. zakon.rada.gov.ua. Retrieved from https://zakon.rada.gov.ua/laws/show/651-14 [in Ukrainian].
Rishennja Konstytuciynogo Sudu Ukraini u spravi za konstituciynim podannyam 49 narodnyh deputativ Ukraini I vykonavchogo comitetu Vinnytskoi miskoi rady shodo oficiynogo tlumachennja pologen΄ statey 38, 78 Konstytutsii Ukraini, statey 1, 10, 12, chastyny drugoi statti 49 Zakonu Ukraini «Pro misceve samovrjaduvannya v Ukraini» (sprava pro sumisnyctvo posad narodnogo deputata Ukraini i miskogo golovy). [Decision of the Constitutional Court of Ukraine in the case on the constitutional submission of 49 People's Deputies of Ukraine and the executive committee of the Vinnytsia city council on the official interpretation of the provisions of Articles 38, 78 of the Constitution of Ukraine, articles 1,10,12, part two of article 49 of the Law of Ukraine "On Local Self-Government in Ukraine" (the case of combining the posts of people's deputy of Ukraine and the mayor)]. zakon.rada.gov.ua. Retrieved from https://zakon.rada.gov.ua/laws/show/v007p710-99 [in Ukrainian].
Tyshchenko, U.A. Rumunska ta moldovska natsionalni menshyny v Ukraini: stan, tendentsiyi ta mozhlyvosti spivpratsi [Romanian and Moldovan national minorities in Ukraine: status, trends and opportunities for cooperation]. Nationalnyi institute strategichnyh doslidzhen zb. naucovo – ekspertertnyh materialiv – National Institute for Strategic Studies, collection of scientific and expert materials [in Ukrainian].
Evtushenko, O.N. & Andriyash, O.I. Chornomorska obyednana terytorialna gromada Mykolaivskoi oblasti v umovah decentralizatsii [The black sea unit territorial community of the Mykolaiv region in decentralization conditions]. Naukovi pratsi. Derzhavne upravlinnya – Scientific works. Governance [in Ukrainian].
Oblasti mayut actualizuvaty perspectyvni plany formuvannia teritoriy [Areas should update prospective plans for territorial formation]. www.kmu.gov.ua. Retrieved from https://www.kmu.gov.ua/news/oblasti-mayut-aktualizuvati-perspektivni-plani-formuvannya-teritorij [in Ukrainian].
Proekt Zakonu nomer 2598 vid 13.12.2019 «Pro vnesennia zmin do konstytutsii Ukraini shchodo dezentralizatsiyi vlady» [Draft Law number 2598 of December 13, 2019 On Amendments to the Constitution of Ukraine concerning the decentralization of power]. zakon.rada.gov.ua. Retrieved from https://zakon.rada.gov.ua [in Ukrainian].
Zakon Ukrainy «Pro derzhavne reguluvannia diyalnosti shchodo organizatsii ta provedennia azartnykh igor»: pryiniatyi 14 lypnia 2020 r. No 768 – XI // Vidomosti Verkhovnoi Rady [Law of Ukraine On State Regulation of Activities Concerning the Organization and Conduct of gambling adopted on july 14, 2020 No 768 – XI Information of the Verkhovna Rada of Ukraine]. zakon.rada.gov.ua. Retrieved from https://zakon.rada.gov.ua [in Ukrainian].
Yak zrobyty mistsevu vladu prozorishoyu [How to make the local government more transparent]. ti-ukraine.org. Retrieved from https://ti-ukraine.org/wp-content/uploads/2017/12/anatitychnyy-zvit_prozorist.pdf [in Ukrainian].
Sayt Novyn Poltavshchyny [Poltava region news site]. np.pl.ua. Retrieved from https://np.pl.ua/2020/05/na-poriadku-dennomu-detsentralizatsii-chitke-rozmezhuvannia-povnovazhen-v-iacheslav-nehoda/ [in Ukrainian].
Zakon Ukrainy «Pro vnesennya zmin do Zakonu Ukraini Pro mistsevi derzhavni administratsiyi» ta deyakyh inshyh zakonodavchyh aktiv Ukrainy shchodo dezentralizatsiyi ta rozmezhuvannia povnovazhen iz organamy mistsevogo samovryaduvannia» : proekt stanom na 30.09.20. Vidomoosti Verkhovnoi Rady [Law of Ukraine On amendments to the law of Ukraine on local state administrations and certain other legislative acts of Ukraine on decentralization and separation of powers with local self-government bodies: draft as of 30.09.20 Information of the Verkhovna Rada]. zakon.rada.gov.ua. Retrieved from https://zakon.rada.gov.ua [in Ukrainian].
Oleksiy Chernyshov: Osnovnyi etap reformy administratyvno-terytorialnogo ustroyu zavershuyetsya [Oleksiy Chernyshov: The main stage of the reform of the administrative-territorial system is coming to an end]. decentralization.gov.ua. Retrieved from https://decentralization.gov.ua/news/12491 [in Ukrainian].
Zakon Ukrainy «Pro spivrobitnytstvo terytorialnykh hromad» [Law of Ukraine «On Cooperation of Territorial Communities»]. zakon.rada.gov.ua. Retrieved from http://zakon.rada.gov.ua/laws/show/1508-18. [in Ukrainian].
Zakon Ukrainy «Pro zasady derzhavnoi rehionalnoi polityky» [Law of Ukraine «On the Principles of State Regional Policy»]. zakon.rada.gov.ua. Retrieved from http://zakon.rada.gov.ua/laws/show/156-19 [in Ukrainian].
Zakon Ukriny «Pro ratyfikatsiyu Dodatkovogo protokolu do Yevropeiskoi hartii mistsevogo samovryaduvannia pro pravo uchasti u spravah organu mistsevogo samovriaduvannia» pryiniatyi 02 sep. 2014 roku No 1664 – VII [Law of Ukraine on ratification of the Additional protocol to the European charter of local self-government on the right to participate in the affairs of local self-government bodies]. zakon.rada.gov.ua. Retrieved from http://zakon.rada.gov.ua [in Ukrainian].
Zakon Ukrainy «Pro vnesennia zmin do Biudzhetnoho kodeksu Ukrainy shchodo reformy mizhbiudzhetnykh vidnosyn» [The Law of Ukraine «On Amendments to the Budget Code of Ukraine on the Reform of Intergovernmental Fiscal Relations»]. zakon.rada.gov.ua. Retrieved from http://zakon. rada. gov.ua/laws/card/79-19 [in Ukrainian].
Zakon Ukrainy «Pro vnesennia zmin do Podatkovoho kodeksu Ukrainy ta deiakykh zakonodavchykh aktiv Ukrainy shchodo podatkovoi reformy» [The Law of Ukraine «On Amendments to the Tax Code of Ukraine and Certain Legislative acts of Ukraine on tax reform»]. zakon.rada.gov.ua. Retrieved from http:// zakon4.rada.gov.ua/laws/show/71-19 [in Ukrainian].
Evtushenko, A. & Popova, T. & Samsonyuk, A. (2018). Stanovlennia instytutu mistsevoho samovriaduvannia yak detsentralizovanoi publichnoi munitsypalnoi vlady terytorialnykh hromad v Ukraini: teoriia ta praktyka [Construction of the local self-government institute as decentralized public municipal authority of territorial communities in Ukraine: theory and practice] Publichne upravlinnia ta rehionalnyi rozvytok – Public Administration and Regional Development, (2), 296-321. https://doi.org/10.26693/pard2018.02.296. Retrieved from: https://pard.mk.ua/index.php/journal [in Ukrainian].
Shtyrov, O. & Hirzhev, A. (2019). Realizatsiia mekhanizmiv derzhavnoi pidtrymky rehionalnoho rozvytku na prykladi Mykolaivskoi oblasti [Implementation of mechanisms of the state support of regional development on an example of the Nikolaev area]. Publichne upravlinnia ta rehionalnyi rozvytok – Public Administration and Regional Development, (5), 645-668. https://doi.org/10.34132/pard2019.05.09 Retrieved from: https://pard.mk.ua/index.php/journal [in Ukrainian].
.png)
.png)
