G. Zubko about the legal foundations of rayon division settlement
18
ABOUT THE PROBLEMS OF RAYON AUTHORITIES’ FUNCTIONING AS A CONSEQUENCE OF FORMATION OF CAPABLE COMMUNITIES 1 ABOUT THE LEGAL FOUNDATIONS OF RAYON DIVISION SETTLEMENT
-
Upload
- -
Category
Government & Nonprofit
-
view
63 -
download
1
Transcript of G. Zubko about the legal foundations of rayon division settlement
ABOUT THE PROBLEMS OF RAYON AUTHORITIES’ FUNCTIONING AS A CONSEQUENCE OF
FORMATION OF CAPABLE COMMUNITIES
1
ABOUT THE LEGAL FOUNDATIONS OF RAYON
DIVISION SETTLEMENT
COMMUNITY AMALGAMATION WITHIN THE RAYONS
490
308
103
rayons altogether
rayons, where community
amalgamation has taken place
rayons, where more than half of the
communities have amalgamated
2
COMMUNITY AMALGAMATION WITHIN THE RAYONS
ZHYTOMYR OBLAST
23
22
12
rayons
rayons, where amalgamation has taken place
rayons, where more than half of the communities have amalgamated
1rayon, where all communities have amalgamated
Letychiv rayon of the Khmelnytskyi oblast
Lyman rayon of the Donetsk oblast
9
rayons, where all the communities have amalgamated in one
community
14
Rayons, where all the communities have
amalgamated
of which
4
COMMUNITY AMALGAMATION WITHIN THE RAYONS
29
amalgamated territorial
communities located in two or three rayons
in 19 oblasts
5
AMALGANMATION OF COMMUNITIES LOCATED IN SEVERAL RAYONS
overlapping authority of the Rayon Council and the local self-governingbodies of the ATCs, established within the rayon;
duplication of functions between the rayon state administration and theexecutive bodies of the ATC councils (provision of administrative, educational,
medical services and even hosing and communal services);
inefficient cost allocation of the local and state budgets (costs are allocated to
keeping the executive bodies of the ATC councils and Rayon District Administration for executionof duplicated functions);
lowering the quality of service provision in certain villages due to loweringthe financing of the rayon budget (with regard to educational, medical subvention)
transfer of communal property from the rayon to the ATC;
Lacking the costs for keeping the Rayon Councils in the rayons, where themajority of communities have amalgamated;
undetermined jurisdiction of the executive power bodies on the territoryof the ATCs, located in different rayons.
6
KEY PROBLEMS
7
OWN INCOME OF THE RAYON BUDGETS AND ATC BUDGETS, thousands of UAH
PROBLEM:
INEFFICIENT COST ALLOCATION OF THE LOCAL AND STATE BUDGETS
Starosyniavskyirayon
Starosyniavska ATC Narodnytskyirayon
NarodnytskaATC
Total income fund, thousands of UAH 80,351.0 104,434.7 36,798.4 58,809.5
- Own income 61.0 39,930.0 55.4 51,082.0
- Transfers 80,290.0 64,504.7 36,743.0 37,727.5
Part of own income in the total income fund, % 0.1% 38.2% 0.2% 35.8%
61.1
39,930.0
55.4
21,082.0
0
5000
10000
15000
20000
25000
30000
35000
40000
45000
Starosyniavskyi rayon Starosyniavska ATC Narodnytskyi rayon Narodnytska ATC
8
NUMBER OF RSA, ATC EMPOYEES AND THE ASSOCIATED ADMINISTRATIVE EXPENSES IN 2017
DYNAMICS OF THE EMPLOYEES NUMBER IN RAYON COUNCILS AND THE ASSOCIATED ADMINISTRATIVE EXPENSES
PROBLEM: DUPLICATION OF FUNCTIONS AND AUTHORITY ON ONE TERRITORY
12 12
2
820.0
4…
6…0.0
200.0
400.0
600.0
800.0
1000.0
0
2
4
6
8
10
12
14
2015 2016 2017
Tho
usa
nd
s o
f U
AH
Nu
mb
er o
f p
eop
le
Narodnytska Rayon Council
Number of employees
Administrative expenses, thousands of UAH
13 13
9
1113.0
800.0
239.0
0.0
200.0
400.0
600.0
800.0
1000.0
1200.0
0
2
4
6
8
10
12
14
2015 2016 2017
Tho
usa
nd
s o
f U
AH
Nu
mb
er o
f p
eop
le
Starosyniavska Rayon Council
number of employees
Administrative expenses, thousands of UAH
Starosyniavska ATC Starosyniavska RSAStarosyniavska Rayon
Council
Number of employees 79 71 7
Administrative expenses, thousands of UAH
11,500.0 8,100.0 240.0
Number of Council’s deputies 26 26
Authority of the Verkhovna Rada of Ukraine (extract):
- creation and liquidation of rayons, establishment and shift of rayon and city borders, giving the communities the city status, naming and renaming centers of population and rayons;
Point 29, first part of Article 85,the Constitution of Ukraine
9
CONSTITUTION OF UKRAINE (acting)
10
WAYS OF SOLVING THE PROBLEM (KEY STEPS)
І
А. VRU passes a decision to change the administrative-territorial structure of the rayon level at on the territory of the whole country
ІІVRU passes a decision to liquidate certain rayons, where all the territorial communities have amalgamated
ІІІLegal regulation and pre-term termination of office for Rayon Councils in the rayons, where all the communities have amalgamated in one ATC (absence of common interests of territorial communities)
ІVEstablishment of a new rayon through amalgamation of the territory of two or more adjoining rayons into one rayon (adoption of the draft law #6636)
B. VRU passes a decision to change the administrative-territorial structure of the rayon level on the territory of certain oblasts
Rayons(suggestions)
Population, thousands of
people
Area, square km
1 Berezhanskyi 142.3 3,298.2
2 Kremenetskyi 154 2,839.1
3 Trnopilskyi 442.3 3,466.1
4 Chortkivskyi 317 4,288.9
TERNOPIL OBLAST.Administrative-territorial structure
current — 17 rayons
suggested – 4 rayons
11
WAYS OF SOLVING THE PROBLEM (KEY STEPS)
VRU passes a decision to change the administrative-territorial structure of the rayon level on the territory of a separate oblast
І
Current administrative-territorial structure –
ATC – RAYON (RSA+Rayon Council)
Suggested variant — ATC
12
VRU passes a decision to liquidate certain rayons, where all the territorial communities have amalgamated
WAY OF SOLVING THE PROBLEM (KEY STEPS)
ІІ
Current administrative-territorial structure –
ATC – RAYON (RSA+Rayon Council)
Suggested variant of the subregional level
ATC – RAYON (RSA)
13
У разі об'єднання всіх територіальних громад (ТГ) в одну зникає потреба представництва спільних інтересів ТГ через районну раду. В таких районах залишаються РДА та ОТГ
Pre-term termination of office for Rayon Councils in the rayons, where all the communities have amalgamated in one ATC
WAYS OF SOLVING THE PROBLEM (KEY STEPS)
ІІІ
Suggested —establishment of a new
amalgamated rayon
14
Establishment of a new rayon through amalgamation of the territory of two or more adjoining rayons into one rayon (adoption of the draft law #6636)
Current administrative-territorial structure —
ATC – RAYON (RSA+Rayon Council)
WAYS OF SOLVING THE PROBLEMS (KEY STEPS)
ІV
ROAD MAP OF THE REFORM
KEY STAGES AND TASKS
15
TIMELINE FOR REFORM IMPLEMENTATION
16
The forthcoming local elections (October 2020) must take place in a new system of communities and rayons. Otherwise the existing system of administrative-territorial structure will be preserveduntil 2025.
ОСНОВНІ ПОВНОВАЖЕННЯ ОМС ТА МДА ВІДПОВІДНО ДО КОНЦЕПЦІЇ РЕФОРМУВАННЯ МІСЦЕВОГО САМОВРЯДУВАННЯ ТА ТЕРИТОРІАЛЬНОЇ ОРГАНІЗАЦІЇ ВЛАДИ В УКРАЇНІ
WITHIN THE FRAMEWORK OF THE ACTING CONSTITUTION OF UKRAINE
17
TASK 1. Formation of Capable Communities – the Foundation of the Reform1. Principle of voluntariness of amalgamation is still the basic one2. Widening the motivation line for amalgamation: legal formalization of the ubiquity principle with regard to the jurisdiction of the
local self-government bodies of the ATCs (outside the population centre) tax preferences(excise) for capable communities only (ATCs, cities of oblast
subordinance) securing the capable status to the cities of OS – simplification of the
amalgamation procedure (adjoining) not to stimulate the establishment of small and financially incapable communities3. Approving the final versions of the Community Perspective Plans
Task 2. Structuring the Rayon LevelLocal tasks will need to be solved at the stage before the adoption of the new ATS atthe subregional level (March-July 2020): merger, liquidation of rayons, the territory of which is fully covered by one ATC Optimization of authority, structure, number of RSAs of the rayons, the territory of
which is fully covered by several ATCs
KEY TASKS FOR ENSURING THE IMPROVEMENT PROCESS FOR THE TERRITORIAL GOVERNANCE ORGANIZATION UNTIL 2021
WITHIN THE FRAMEWORK OF THE ACTING CONSTITUTION OF UKRAINE
18
TASK 3. Structuring the System of Territorial Bodies of the Central Bodies ofExecutive PowerIt is necessary to introduce the temporary territorial basis for the organizational structureof TB of CBEP at the stage before the adoption of the new ATS at the subregional level(approximately March-July 2020): to introduce administrative districts (with the consideration of hospital districts
configuration); to structure TB of CBEP within the administrative districts.
TASK 4. Formation of the New ATSIt is necessary to establish the new ATS at the community and rayon levels before theupcoming local elections (the subregional division may be cancelled only throughintroduction of changes to the Constitution).Not doing this will lead to the preservation of the current system of ATS until 2025.In order to do this it is necessary: law On the Foundations of the Administrative-Territorial Structure of Ukraine; law On the Administrative-Territorial Structure of Ukraine (or separate laws for each
oblast); decision about the introduction of the new ATS in 1-2 piloting oblasts in 2018 and to
introduce the exemplary system of territorial governance of an oblast.
KEY TASKS FOR ENSURING THE IMPROVEMENT PROCESS FOR THE TERRITORIAL GOVERNANCE ORGANIZATION UNTIL 2021
