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G. Zubko about the legal foundations of rayon division settlement

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About the problems of rayon authorities’ functioning as a consequence of formation of capable communities

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G. Zubko about the legal foundations of rayon division settlement

  1. 1. ABOUT THE PROBLEMS OF RAYON AUTHORITIES’ FUNCTIONING AS A CONSEQUENCE OF FORMATION OF CAPABLE COMMUNITIES 1 ABOUT THE LEGAL FOUNDATIONS OF RAYON DIVISION SETTLEMENT
  2. 2. 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
  3. 3. 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 1 rayon, where all communities have amalgamated
  4. 4. 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
  5. 5. 29 amalgamated territorial communities located in two or three rayons in 19 oblasts 5 AMALGANMATION OF COMMUNITIES LOCATED IN SEVERAL RAYONS
  6. 6.  overlapping authority of the Rayon Council and the local self-governing bodies of the ATCs, established within the rayon;  duplication of functions between the rayon state administration and the executive 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 execution of duplicated functions);  lowering the quality of service provision in certain villages due to lowering the 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 the majority of communities have amalgamated;  undetermined jurisdiction of the executive power bodies on the territory of the ATCs, located in different rayons. 6 KEY PROBLEMS
  7. 7. 7 OWN INCOME OF THE RAYON BUDGETS AND ATC BUDGETS, thousands of UAH PROBLEM: INEFFICIENT COST ALLOCATION OF THE LOCAL AND STATE BUDGETS Starosyniavskyi rayon Starosyniavska ATC Narodnytskyi rayon Narodnytska ATC 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. 8. 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 ThousandsofUAH Numberofpeople 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 ThousandsofUAH Numberofpeople Starosyniavska Rayon Council number of employees Administrative expenses, thousands of UAH Starosyniavska ATC Starosyniavska RSA Starosyniavska 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
  9. 9. 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. 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 ІІ VRU passes a decision to liquidate certain rayons, where all the territorial communities have amalgamated ІІІ Legal 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) ІV 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) B. VRU passes a decision to change the administrative-territorial structure of the rayon level on the territory of certain oblasts
  11. 11. 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
  12. 12. 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
  13. 13. 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
  14. 14. 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
  15. 15. ROAD MAP OF THE REFORM KEY STAGES AND TASKS 15
  16. 16. 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 preserved until 2025.
  17. 17. 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 Reform 1. Principle of voluntariness of amalgamation is still the basic one 2. 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 communities 3. Approving the final versions of the Community Perspective Plans Task 2. Structuring the Rayon Level Local tasks will need to be solved at the stage before the adoption of the new ATS at the 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
  18. 18. WITHIN THE FRAMEWORK OF THE ACTING CONSTITUTION OF UKRAINE 18 TASK 3. Structuring the System of Territorial Bodies of the Central Bodies of Executive Power It is necessary to introduce the temporary territorial basis for the organizational structure of 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 ATS It is necessary to establish the new ATS at the community and rayon levels before the upcoming local elections (the subregional division may be cancelled only through introduction 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

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