Russian Presentation Intergovernmental Relationships Decentralization and Local Governance

Russian Presentation Intergovernmental Relationships, Decentralization and Local Governance Dr. Louis A. Picard Professor of Public and International Affairs and African Studies Graduate School of Public and International Affairs University of Pittsburgh, PA 15260 USA

Questions: End of Discussion 1. What major historical factors appear to have defined Governance, Local Government and Civil Society in Russia 2. What factors are unique and different in Russia from Europe and international experiences 3. To what extent is society and culture important at the "country, “ regional and local level?

Theme The Nature of Intergovernmental Relationships

German Intergovernmental Relations

Overview: Historical Patterns of Relations ¡ ¡ AT ISSUE - Location of ultimate power and Responsibility Definition of Power: The authoritative allocation of values Balance: Leadership, Authority and Choice

Symbolism, Power and Authority Leadership as Image

Authority

Authoritarian States

¡ South Types of Democracy Direct Democracy- Actual direct participation of a population in decision-making about laws, customs and regulations African Kgotla

Or “Panchayat in India” Town hall or village model

TYPES OF INTER-GOVERNMENTAL AND INTERORGANIZATIONAL RELATIONS Confederation and loose confederal relationships

The Articles of Confederation, drafted in 1777 by the Continental Congress, served as the first Constitution of the United States.

Confederation Relationships Power lies with the sub-units ¡ ¡ ¡ ¡ U. S. Articles of Confederation Canadian Federation European Union Southern African Development Council Economic Council of West African States ASEAN Mercusor

Federalism ¡ ¡ Concept: Can Transfer additional authority back to the sub-units but not take power away from the federated governments (Provinces, states) Principal: Divided Soveregnty

Federal Systems In Federal Relationship • Some power lies with the National Unit • Some power lies with lower units • Layer Cake

Governance as a cake

Layers of Government Intertwined

Federal Powers ¡ ¡ Unique or Exclusive Powers. Federal and State Concurrent Powers- Federal and State Devolved Powers- State and Local Denied Authority

Federal Systems Key Distinction: 1. Lower units cannot break away from the National Unit 2. National Units cannot take power away from the lower units 3. Divided Sovereignty

Federalism: Examples: USA Canada Germany Nigeria India Russian Federation Austria Switzerland Malaysia

Federal Relationships Indian States

Indian Inter-Governmental Relations

Unitary Systems and Sub-regional units 1. All power ultimately lies at the national level 2. What power the local level has, is given to it by the national level 3. The power that the national unit has given to the local level can also be taken away from it

Unitary Government

Unitary Systems- Examples ¡ ¡ ¡ United Kingdom France Hungary Kenya Japan South Africa? (Unitary or Quasi. Federal) Bolivia China? Palestine? Indonesia Sweden

Subsidiarity: European Union Term ¡ Subsidiarity is the idea that matters should be handled by the smallest (or, the lowest) competent government authority possible. ¡ It is presently best known as a fundamental principle of European Union Law. According to this principle, the EU may only act (i. e. make laws) where member states agree that action of individual countries (or local governments) is insufficient. ¡ Subsidiarity has become a principle of public sector reform in LDCs

Subsidiarity: Summary ¡ Concept: Transfer of authority to a lower level of government ¡ Primary Unit of Government: Lowest level that carries a bureaucracy with it ¡ Alternative Social Service Delivery Systems Debated- eg. Health in USA

Models of Subsidiarity: Review ¡ Devolution: Federal or Unitary (Political) ¡ Deconcentration (Administrative) ¡ Delegation (Special Unit- PAT) ¡ Privatization (Contracting Out) ¡ Program and Project Deconcentration: Principal Agency Issue)

Intergovernmental Relationships Basic Assumptions

Devolution ¡ Transfer to a non-Federal political body e. g. Budget and personal authority to district and town councils Key- power lies with lower level politicians

Evolving Devolution towards Federalism?

Deconcentration: Transfer of authority to administrators at lower level within the administrative system

Deconcentration: ¡ Functional vs. Prefectoral ¡ Prefectoral integrated ¡ Prefectoral unintegrated

French Prefect Jura Region Aissa Dermouche (Appointed “Governor”)

Control Systems Functional Home Affairs Local Govt. Public Works Agriculture Education Council Public Works Office District Ag. Office District Ed. Office Labor District Labor Office

Control Systems Prefectoral - Integrated Interior Local Govt. Public Works Agriculture Education Labor District Office Council/Chief Public Works Office District Ag. Office District Ed. Office District Labor Office

Control Systems Prefectoral - Unintegrated Interior Local Govt. Public Works Agriculture Education Labor Public Works Office District Ag. Office District Ed. Office District Labor Office Police District Office Police Council/ Chief

Delegation ¡ Transfer Function Outside of line Departments ¡ Use of Board ¡ Commercialization

Delegation

Delegation ¡ ¡ Transfer of authority to a statutory body such as Public Corporations or parastatals (UK) Eg. AMTRAK in USA

Privatization ¡ ¡ Transfer function out of government sector More than Contracting Out

Principles of Privatization ¡ Key Conditionality. Privatization of the economy within a context of administrative Reform

Principles of Privatization a. divestiture (full sale) b. contracting out c. liquidation d. sell off public private partnership shares

The View from the 1980 s

Principles of Privatization Goal: Small government and return to the recurrent budgeting process and balanced budget principles of “Neo-Orthodox Economists” Fiscal Crisis has both called this into question and supported very small government

Programs and Projects ¡ Program and Project Deconcentration: (Principal Agency Issue) ¡ Assymetric ¡ Prone Relationships to Patron-Clientalism

Asymmetric interests when a principal hires an agent

Program and Project Decentralization: 1. Sectoral - By regular line or agency within a Ministry l l E. g. Focused activity - seed production (Green Revolution) Agricultural experiments

Indian Department of Agriculture

Program and Project Decentralization: 2. Deconcentration or Devolution of authority to central level special unit eg. Transport, water, health or education projects to subordinate administrative or structures (Education Service) PAT (Port Authority Transport) Buses in Pittsburgh

Program and Project Decentralization: ¡ 3. Inter-Ministerial Committees or Units l Planning supervision l Overlapping memberships, e. g. Land Use Planning

Land Use Plan- Germany

Program and Project Decentralization: 4. Creation of field level Special Project Units with semiautonomous status (Special designated geographical areas)

Program and Project Decentralization: Project Decent. l E. g. A Range management project; or l Integrated Rural Development - Most well known type of special project ¡ l Multitude of project activity in different sectors that may overlap or compliment.

2. 1 Integrated Rural Development 2. 2 Small Irrigation Schemes Development 2. 3 Integrated Farming Systems Development 2. 4 Revobue Multipurpose Dam 2. 5 New Cash Crops Establishment 2. 6 Livestock Development 2. 7 Farmers' Associations Promotion 2. 8 Grain Storage Development 2. 9 District Water Supply 2. 10 Rural Electrification 2. 11 Mineral Resources Exploration Rural Socio. Economic Enhancement Scheme

Questions and Discussion 1. What major historical factors appear to have defined Governance, Local Government and Civil Society in Russia 2. What factors are unique and different in Russia from Europe and international experiences 3. To what extent is society and culture important at the "country, “ regional and local level?