Article title The Reform of Local Self-Government in Ukraine: Conceptual Issues of Its Constitutional Legal Framework and Development Prospects
Authors
Name of magazine Legal journal «Law of Ukraine» (Ukrainian version)
Issue 5/2018
Сторінки [207-223]
DOI https://doi.org/10.33498/louu-2018-05-207
Annotation

Implementation of the municipal reform in Ukraine remains the pressing issue of the State and law reality. The basis for further development of local self-government as an institution should be laid by ensuring that the European standards are used to organize local democracy, and by scientific achievements of Ukrainian scholars. The existing problems of a legal nature give rise to a discussion on the legislative framework of the reform process and in some way block further development of local self-government. The purpose of the article is to analyze the constitutional framework of the local selfgovernment reform in modern Ukraine, to present the author’s position regarding some target areas in which the reform is implemented, and to develop recommendations on the national and local rule-making in the context of certain issues of development of local government. The author has established that the reform of this public-law institution should be preceded by amending the Constitution of Ukraine as the cornerstone of legislative amendments. The current situation regarding the capability of the Verkhovna Rada of Ukraine to consider amendments to the Fundamental Law at any subsequent session entails negative phenomena and entrenchment in the current legislation of the provisions not fully consistent with the provisions of the Constitution. Today it is crucial to find a solution to this legal conflict existing in the Ukrainian constitutional process for the purpose of unfreezing an appropriate legislative framework of the municipal reform. The conceptual issue of the reform is to define in the legislation what the main subject of local self-government is. Legislative entrenchment of a territorial community as such does not meet the provisions of the European Charter of Local Self-Government which sees a representative body of local self-government. Other approaches which may be used to form the competence of bodies and officials by outlining the areas of competence will contribute to decentralization of the State and help outline the responsibility of selfgoverning structures with regard to implementation of the municipal policy. The current situation with the legal framework poses a threat to further development of all local democracy institutions, given the inconsistent actions on the part of the legislator which may be traced with respect to the legal support of the reform process. Actually, the Verkhovna Rada of Ukraine has blocked further development of local self-government since, having previously adopted the amendments to the Constitution of Ukraine, it did not adopt them as a law. For the first time the domestic constitutional process will encounter a question about legal possibility of cancelling a previously adopted draft law on amendments to the Fundamental Law or of amending and supplementing it, but this is not provided for by articles 157 and 158 of the Constitution of Ukraine. Further scientific elaboration is needed with regard to the issues which, if resolved, will directly affect the appropriate development of relations in the local self-government domain: the territorial basis of activities of municipal structures and, in particular, united territorial communities, the organizational structure of a local council, the procedure and method of entrenching the competence of every participant of the municipal relations, the expediency of existence of the main local self-government subject as the main holder of all rights and obligations – the territorial community.

 

Keywords reform of local self-government; legal framework of local self-government; decentralization; organizational framework of local self-government; municipal management; territorial community; local self-government bodies
References

List of legal documents 
 

Legislation 
1. Administratyvno-terytorialnyi ustrii Ukrainy stanom na 1 bereznia 2018 [Administrative and Territorial Structure of Ukraine as of 01.03.2018]. URL: http://static.rada.gov.ua/ zakon/new/NEWSAIT/ADM/zmist.html (accessed: 21.04.2018) (in Ukrainian). 

2. Konstytutsiia Ukrainy [The Constitution of Ukraine]: Zakon Ukrainy [the Law of Ukraine] vid 28 chervnia 1996 r. № 254k/96-VR. URL: http://zakon.rada.gov.ua/ go/254%D0%BA/96-%D0%B2%D1%80 (accessed: 12.03.2018) (in Ukrainian).

3. Pro dobrovilne obiednannia terytorialnykh hromad [On the Voluntary Association of Territorial Communities]: Zakon Ukrainy [the Law of Ukraine] vid 5 liutoho 2015 r. № 157-VIII. URL: http://zakon5.rada.gov.ua/laws/show/157-19/page (accessed: 21.04.2018) (in Ukrainian).

4. Pro mistseve samovriaduvannia v Ukraini [On Local Self-Government in Ukraine]: Zakon Ukrainy [the Law of Ukraine] vid 21 travnia 1997 r. № 280/97-ВР. URL: http://zakon.rada.gov.ua/laws/show/280/97-%D0%B2%D1%80 (accessed: 20.04.2018) (in Ukrainian).

5. Pro skhvalennia Kontseptsii reformuvannia mistsevoho samovriaduvannia ta terytorialnoi orhanizatsii vlady v Ukraini [On Approval of the Concept for the Reform of Local Self-Government and Territorial Setup of Power in Ukraine]: rozporiadzhennia Kabinetu Ministriv Ukrainy [Order of the Cabinet of Ministers of Ukraine] vid 1 kvitnia 2014 r. № 333-r. Ofitsiinyi Visnyk Ukrainy. 2014. № 30. St. 831 (in Ukrainian).

6. Pro viiskovo-tsyvilni administratsii [On Civil Military Administrations]: Zakon Ukrainy [the Law of Ukraine] vid 3 liutoho 2015 r. № 141-VIII. URL: http://zakon5.rada.gov.ua/ laws/show/141-19 (accessed: 21.04.2018) (in Ukrainian).

7. Pro vnesennia zmin do Konstytutsii Ukrainy (shchodo detsentralizatsii vlady) [Draft Amendments to the Constitution of Ukraine (on Decentralization)]: proekt Zakonu Ukrainy [Draft Law of Ukraine] vid 1 lypnia 2015 r. № 2217. URL: http://w1.c1.rada.gov.ua/pls/zweb2/webproc4_1?pf3511=55812 (accessed: 21.04.2018) (in Ukrainian).

8. Pro zminu i vstanovlennia mezh mista Kharkiv, Derhachivskoho i Kharkivskoho raioniv Kharkivskoi oblasti [On Changes to and Establishment of the Borders of Kharkiv City, Derhachivskyi and Kharkivskyi Districts of Kharkiv Oblast]: Postanova Verkhovnoi

Rady Ukrainy [Resolution of the Verkhovna Rada of Ukraine] vid 6 veresnia 2012 r. № 5215. Vidomosti Verkhovnoi Rady Ukrainy. 2013. № 31. St. 372 (in Ukrainian).

9. Proekt Zakonu pro vnesennia zmin do Konstytutsii Ukrainy [Draft Law on Amendments to the Constitution of Ukraine] vid 1 lypnia 2003 r. № 3207-1. URL: w1.c1.rada.gov.ua/pls/zweb2/webproc2_5_1_J?ses=10005&num_s=2&num=32071&date1=&date2=&name_zp=&out_type=&id= (accessed: 21.04.2018) (in Ukrainian).

10. Yevropeiska Khartiia mistsevoho samovriaduvannia [European Charter of Local SelfGovernment] vid 15 zhovtnia 1985 r. URL: http://zakon.rada.gov.ua/laws/show/994_036 (accessed: 15.04.2018) (in Ukrainian).

Cases

11. Rishennia Konstytutsiinoho Sudu Ukrainy u spravi za konstytutsiinym podanniam 51 narodnoho deputata Ukrainy shchodo ofitsiinoho tlumachennia polozhennia “na nastupnii cherhovii sesii Verkhovnoi Rady Ukrainy”, yake mistytsia u statti 155 Konstytutsii Ukrainy [Decision of the Constitutional Court of Ukraine in the Case Following the Constitutional Petition of 51 People’s Deputies of Ukraine Concerning the Official Interpretation of the Provision “At the Subsequent Regular Session of the Verkhovna Rada of Ukraine” Contained in Article 155 of the Constitution of Ukraine] vid 15 bereznia 2016 r. № 1-rp/2016. URL: http://zakon5.rada.gov.ua/laws/show/ v001p710-16 (accessed: 21.04.2018) (in Ukrainian).

12. Rishennia Konstytutsiinoho Sudu Ukrainy u spravi za konstytutsiinym podanniam narodnykh deputativ Ukrainy shchodo ofitsiinoho tlumachennia terminiv “raion” ta “raion u misti”, yaki zastosovuiutsia v punkti 29 chastyny pershoi statti 85, chastyni piatii statti 140 Konstytutsii Ukrainy, i poniattia “orhanizatsiia upravlinnia raionamy v mistakh”, yake vzhyvaietsia v chastyni piatii statti 140 Konstytutsii Ukrainy ta v chastyni pershii statti 11 Zakonu Ukrainy «Pro stolytsiu Ukrainy – misto-heroi Kyiv», a takozh shchodo ofitsiinoho tlumachennia polozhen punktu 13 chastyny pershoi statti 92 Konstytutsii Ukrainy, punktu 41 chastyny pershoi statti 26 Zakonu Ukrainy «Pro mistseve samovriaduvannia v Ukraini» stosovno povnovazhennia miskykh rad samostiino vyrishuvaty pytannia utvorennia i likvidatsii raioniv u misti (sprava pro administratyvno-terytorialnyi ustrii) [Decision of the Constitutional Court of Ukraine in the Case Following the Constitutional Petition of People’s Deputies of Ukraine Concerning the Official Interpretation of the Terms “District” and “District in a City” Which are Used in Clause 29, Part One of Article 85, Part Five of Article 140 of the Constitution of Ukraine, and the Concept “Setup of Governance of Districts in Cities” Which is Used in Part Five of Article 140 of the Constitution of Ukraine and Part One of Article 11 of the Law of Ukraine “On the Capital of Ukraine – Hero City of Kyiv”, as Well as Concerning the Official Interpretation of the Provisions of Clause 13, Part One of Article 92 of the Constitution of Ukraine, Clause 41, Part One of Article 26 of the Law of Ukraine “On Local Self-Government in Ukraine” Regarding the Authority of City Councils to Independently Decide on the Establishment and Liquidation of Districts in a City (Case of Administrative and Territorial Structure)] vid 13 lypnia 2001 r. № 11-rp/2001. URL: http://zakon0.rada.gov.ua/laws/show/v011p710-01 (accessed: 21.04.2018) (in Ukrainian).

13. Vysnovok Konstytutsiinoho Sudu Ukrainy u spravi za zvernenniam Verkhovnoi Rady Ukrainy pro nadannia vysnovku shchodo vidpovidnosti proektu Zakonu Ukrainy “Pro vnesennia zmin do Konstytutsii Ukrainy” vymoham statei 157 i 158 Konstytutsii Ukrainy (sprava pro vnesennia zmin do statei 85, 118, 119, 133, 140, 141, 142, 143 Konstytutsii Ukrainy) [Opinion of the Constitutional Court of Ukraine in the Case Following the Application of the Verkhovna Rada of Ukraine for the Opinion on the Compliance of a Draft Law of Ukraine “On Making Amendments to the Constitution of Ukraine” with Requirements of Articles 157 and 158 of the Constitution of Ukraine (Case on Making Amendments to Articles 85, 118, 119, 133, 140, 141, 142, and 143 of the Constitution of Ukraine)] vid 7 veresnia 2005 r. № 1-v/2005. URL: http://zakon3.rada.gov.ua/laws/show/v001v710-05 (accessed: 21.04.2018) (in Ukrainian).

14. Vysnovok Konstytutsiinoho Sudu Ukrainy u spravi za zvernenniam Verkhovnoi Rady Ukrainy pro nadannia vysnovku shchodo vidpovidnosti zakonoproektu pro vnesennia zmin do Konstytutsii Ukrainy shchodo detsentralizatsii vlady vymoham statei 157 i 158 Konstytutsii Ukrainy [Opinion of the Constitutional Court of Ukraine in the Case Following the Application of the Verkhovna Rada of Ukraine for the Opinion on the Compliance of a Draft Law on Making Amendments to the Constitution of Ukraine Regarding Decentralization of Power with Requirements of Articles 157 and 158 of the Constitution of Ukraine] vid 30 lypnia 2015 r. № 2-v/2015. URL: http://zakon3.rada. gov.ua/laws/show/v002v710-15 (accessed: 21.04.2018) (in Ukrainian).

 

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