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Krajem studenog 2020., točnije 23. studenog 2020., okončano je e-savjetovanje o tri nacrta prijedloga zakona koji se odnose na lokalnu i regionalnu samoupravu u Hrvatskoj. Navedeni zakoni doneseni su po hitnom postupku i usvojeni na sjednici Sabora 15. prosinca 2020. Radi se o općem zakonu kojim su uređene temeljna pitanja funkcioniranja lokalne i regionalne samouprave u Hrvatskoj , o zakonu kojim je uređen položaj Grada Zagreba , te o zakonu kojim su uređeni lokalni izbori. Glavne izmjene sadržane su u općem zakonu koji uređuju lokalnu i regionalnu samoupravu (Prijedlog ZIDZLPRS, 2020), dok se druga dva zakona (Prijedlog ZIZGZ, 2020 i Prijedlog ZIDZLI, 2020) uglavnom usklađuju s izmjenama koje su predložene u općem zakonu o lokalnoj i regionalnoj samoupravi. U članku se sažeto prikazuju usvojene izmjene i dopune, a nakon toga se metodom prethodne (ex ante) evaluacije, ocjenjuju efekti koji se mogu očekivati od usvojenih izmjena te ukazati na nelogičnosti i propuste koji postoje u usvojenim izmjenama i dopunama. Ocjenjuje se i mogu li se usvojene promjene smatrati reformom lokalne i regionalne samouprave.

Autor u članku razmatra mogućnost održavanja sjednice predstavničkog tijela jedinica lokalne i područne (regionalne) samouprave korištenjem sredstava informacijsko-komunikacijske tehnologije (IKT). Pritom polazi od formalnopravnih mogućnosti korištenja IKT-a u radu lokalnih predstavničkih tijela i analizira konkretan slučaj održavanja sjednice Županijske skupštine Zagrebačke županije, polazeći od načela rasprave i načela javnosti sjednica, kao temeljnih načela funkcioniranja predstavničkih tijela. U članku se daju i prijedlozi koji se mogu ugraditi u buduće zakonodavno uređenje održavanja sjednica lokalnih predstavničkih tijela korištenjem IKT-a u izvanrednim okolnostima.

Local government bears the main responsibility for the provision of local public services to citizens. Due to trends of administrative (organizational and functional) reform at local level and downsizing of public expenses that were present in Europe from the late 1970s onward, several forms of external provision of public services have emerged across the European countries. Involvement of private and third-sector organisations is now a widely accepted practice of coproduction of public services. Paper will explore the practice of local public services provision in Croatia from the perspective of institutional theory taking into consideration two intertwined contextual influences on local government. The first one is transformation of Croatian society, political system and public administration, especially local government, from socialism to capitalism (known as post-socialist transition). The second influence is a tendency towards coproduction that took place in many European countries in the last several decades as a result of a complex mixture of values and approaches in public governance – predominantly political (participation, empowerment) and economic (efficiency, quality) in nature. Regulatory framework for local public services as well as practice of their provision in the last three decades will be presented and critically analysed from the perspective of historical institutionalism and institutional change. The paper will analyse how transition process affected local public services provision in Croatia in the context of fragmentation of local units (and systemic change of local government) that took place after the transition from socialism to capitalism and in comparison with development of local public services provision in some Western Europe countries. This will allow for conclusive evaluation of the factors that stimulate and constrain local public services provision and their overall modernization.

U prilogu se analizira kvaliteta lokalne demokracije u Hrvatskoj

U članku se predstavljaju rezultati empirijskog istraživanja decentralizacije u Hrvatskoj koje je provedeno od listopada 2017. do kraja siječnja 2018. godine. Provedeno je na osnovi anketnog upitnika, na koji je odgovorilo 43% ukupnog broja općina i gradova. Potvrđene su dvije polazne pretpostavke. Decentralizacija je proces koji središnja država ne vodi na smislen način, već se on odvija stihijski, bez smislenoga plana. Zbog nedostatka vođenja procesa i slaboga kapaciteta, jedinice lokalne samouprave ne vide pretjeranu korist od procesa decentralizacije. U članku se, nakon rasprave o provedenom istraživanju, oblikuju i konkretne smjernice kako poboljšati vođenje politike decentralizacije u budućnosti.

U radu se raspravlja o decentralizaciji te efektima decentralizacije na sustav hrvatske lokalne samouprave i pružanja lokalnih javnih službi.

Lokalna i regionalna samouprava i korištenje sredstava iz fondova Europske unije

The removal of administrative barriers (RAB) is a constant policy at both European Union (EU) and national levels. Initially, RAB has been seen as a part of economically-driven Regulatory Impact Analysis, while lately a more interdisciplinary approach dominates, through Smart Regulation and Public Administration Reforms programs. Slovenia and Croatia, as »new« EU members, address the respective goals of streamlining mostly by amendments in sector-specific laws. Additionally, there is an open question regarding the implementation of these amendments. The aim of the article is to address the legally set procedural dimensions of red tape reduction in comparative and competitive settings. Hence, this article tackles the topic with analyses of the most recent procedural changes in recent years in selected Slovene and Croatian laws covering key administrative areas relevant for entrepreneurs, based on the World Bank’s Doing Business rank, i.e. the registration of entrepreneurs, tax procedures and the issuing of construction permits. The results reveal that RAB in Slovenia and Croatia still highly lacks a systematic approach, and is mainly focused only normatively and in piecemeal manner. Consequently, we face an implementation gap. This study shows that the Slovene and Croatian examples can also serve as an illustration for other countries on how to improve their RAB policies, among others by introducing the modernisation of the Administrative Procedure Act as a leading administrative simplification measure.

Book represents comparative study on legal remedies in administative procedure in Western Balkan countries.

Rasprava o službama od općeg interesa (javnim službama) (SOI) odvija se u Europskoj uniji nekoliko zadnjih desetljeća 20. stoljeća što je rezultiralo razvojem EU koncepcije o SOI. To se dogodilo pod utjecajem brojnih policy dokumenata Europske komisije i sudske prakse Europskog suda pravde. U radu se prvo analiziraju temeljni pojmovi koji su nastali u EU u pogledu SOI i prikazuje se njihova evolucija. Nadalje, navode i analiziraju se suvremene tendencija razvoja javnih službi, posebno liberalizacija, privatizacija, deregulacija, a posebno se navodi i analizira tendencija remuncipalizacije, tj. vraćanje javnih službi pod utjecaj javne vlasti koja se događa u brojnim jedinicama lokalne samouprave u europskim zemljama. Utjecaj navedenih tendencija posebno je značajan za lokalnu i regionalnu samoupravu koja je velikim dijelom odgovorna za organizaciju brojnih lokanih javnih službi.

The Europeanization of the Croatian health system can be traced from 2000. Croatia’s EU accession on 1 July 2013 required harmonization of the regulatory framework governing the health care sector with the relevant EU legislation, including coordination of the social security systems between Croatia and the other EU Member States. The focus of reforms that were implemented between 2006 and 2013 was the financial stabilization of the health care system.

U radu su prikazani izbor i opoziv lokalnih izvršnih čelnika u Hrvatskoj. Problematizira se pitanje neposrednog izbora za izvršne čelnike te (ne)mogućnost njihovog opoziva.

Prikazom europeizacije hrvatskog upravnog postupovnog prava i pravnih režima autori rada ukazali su na zakonodavne akte određenih zemalja EU koji su utjecali na donošenje i izradu novog Zakona i određene institute novog Zakona koji su prihvaćeni i prilagođeni hrvatskom pravnom sustavu.

Suvremene reforme javnog upravljanja u zemljama zapadne Europe prošle su nekoliko faza nakon Drugog svjetskog rata. Za razliku od njih, tranzicijske zemlje nisu u potpunosti slijedile sve koncepcije i razvojne faze. U okviru menadžerskih reformi javne uprave u organizaciju i funkcioniranje javnog sektora nastoje se uvesti tržišni mehanizmi. Među menadžerskim se instrumentima posebna pažnja posvećuje vanjskom ugovaranju obavljanja javnih poslova (outsourcing), kao i mogućnostima i rizicima njihove primjene u javnom sektoru. Pokazuju se iskustva zemalja koja su primijenila vanjsko ugovaranje kao instrument reforme javnog sektora. Analizira se i inicijativa Vlade iz 2014. da izdvoji neosnovne djelatnosti iz organizacija javnog sektora, kao i odgovor sindikata na tu inicijativu prikupljanjem potpisa za raspisivanje referenduma o zabrani vanjskog ugovaranja u javnom sektoru. Primjena menadžerskih instrumenata u javnoj upravi zahtijeva uređen i funkcionalan javni sektor te nove metode rada koje će omogućiti njihovu adekvatnu primjenu.

Services of genearal interest in the law of the EU and their application in Croatia. Paper deals with policy and legal regulation of public services in the law of the EU and the evolution of the concept of SGI in several conception of the state in Europe after the Second World War. Also, local public services in Croatia are presented and analysed having in mind the context of their development in the ex-YU and in Croatia.

Presentation deals with status of regional government in countries emerged on the teritorry of the former Yugoslavia. Establishes trends and explains causalities in development in position of regional tier in system of public governance

After giving the brief overview of development of local self-government in Croatia, the authors describe provision of local public services in the period before 1990.: its organizational forms and main reforms. Context of provision of local public services after gaining independence is presented and Law on communal services and its modifications are analyzed. Modelities of provision of local public services and types of cooperation in provision of local public services are listed. The emphazis is made on provision of social services, more precisely elderly/old age care.

Knjiga pod nazivom "Upravna znanost - javna uprava u suvremenom europskom kontekstu", autora prof.dr.sc. Ivana Koprića, prof.dr.sc. Gordane Marčetić, doc.dr.sc. Anamarije Muse, doc.dr.sc. Vedrana Đulabića i doc.dr.sc. Goranke Lalić Novak predstavlja prvo izdanje udžbenika usklađenog s bolonjskim studijskim programom pravnog studija, namijenjena studentima, ali i usavršavanju bivših studenata i svih onih koji su čitali prijašnje udžbenike iz ovog predmeta. Udžbenik prikazuje i analizira teorijske novine u suvremenoj upravnoj znanosti, obrađuje nove, ali i tradicionalne teme koje su doživjele važne promjene u složenim društvenim, ekonomskim i socijalnim okolnostima koje utječu na diferencijaciju javne uprave i modernizaciju upravljačkih metoda. Pravnu regulaciju javne uprave autori tumače u okviru nove teorije institucija, koja javnu upravu stavlja u širi kontekst, a upravnu znanost kao disciplinu koja proučava javno upravljanje i javnu upravu i prolazi dinamični razvoj u svijetu i u Hrvatskoj koncipira kao empirijsku disciplinu. Sadržaj udžbenika obuhvaća devet poglavlja: Javna uprava –temeljni pojmovi, Javna uprava u društvu i u političko-upravnom sustavu, Upravna organizacija i javni menadžment, Upravljanje ljudskim potencijalima u javnoj upravi, Obavljanje poslova državne uprave, Javne službe – službe od općeg interesa , Lokalna i regionalna samouprava, Europski upravni prostor, Reforme i modernizacija javne uprave. Udžbenik je dodatno opremljen i predgovorom autora, popisom kratica, bibliografijom i kazalom pojmova.

Europska unija usvojila je strategiju svojeg dugoročnog razvoja Europa 2020 koja ima za cilj stvoriti pretpostavke za pametan, održiv i uključiv rast. Kohezijska politika bitan je instrument realizacije te strategije. U radu se analiziraju novine koje obilježavaju kohezijsku politiku EU u razdoblju 2014.-2020., a zatim se analizira domaći upravni sustav s obzirom na prvih pola godine punopravnog članstva u EU. Na kraju se predlažu područja na kojima će trebati nastaviti ozbiljno raditi ukoliko se želi iskoristiti potencijale kohezijske politike EU i pridonijeti ostvarivanju ciljeva strategije Europa 2020

Prikazuju se statisitčki podaci o časopisu Hrvatska i komparativna javna uprava za 2011. i 2012.

U radu se postavljaju temeljni smjerovi razvitka lokalne i regionalne samouprave u Hrvatskoj. S obzirom na lokalnu ssamoupravu zagovara se racionalizacija, decentralizacija, uključivanje građana, razvoj ljudskih potencijala, poboljšanje kvalitete usluga, orijentacija na razvoj. Osim toga, za regionalu samoupravu se kao prioriteti navode racionalizacija, jačanje samoupravnog kapaciteta, poboljšanje upravljanja te orijentacija na razvoj.

Services of general interest (public services) have become an essential part of the acquis communautaire. The provisions of the Lisbon treaty recognizing the services of general interest as an essential element in developing of the European model of society. Under the influence of the European integration process and the result of the efforts of the realization of the project of common European market for over two decades there was a very intense process of liberalization of services of general interest, particularly network industries, such as telecommunications, transport, energy and postal services. In this regard particularly important is the concept of universal service obligation and its effective implementation in the process of liberalization of network industries. This paper analyzes the EU law and court practice of the European Court of Justice, liberalization of network industries and particularly the concept of universal service obligation, its development and current challenges, especially in terms of classical relations user-provider-public authority, that with the advent of other stakeholders, such as the regulator, regulatory authorities and EU law, other potential providers of public services, becomes much more complex and requires a clear demarcation of the role of different stakeholders.

34. godišnja konferencija Europske grupe za javnu upravu (European Group for Public Administration – EGPA), Bergen, 5.-8. rujna 2012.

The position of numerous local units in Croatia that are lagging behind in their development or are geographically specific (e. g. islands, hilly and mountain areas) is summarized and explained through the analysis of general and special legislation and statistical data. More tha 50 percent of Croatian local self-government units have such a status. Four groups of special authorities are analyzed. There are teh Areas of Special State Concern, the Hilly and Mountain Areas, Islands and the Town of Vukovar. Each of them is regulated by a special law that grants some additional rights to local units, their residents, and legal entities registered on their territory. The paper analyzed whether these special regional policy measures could lead to granting a special status to these units. The reasons behind this policy and its objectives are analyzed. It is stated that the special status of these units is mainly stipulated due to developmental and redistributive reasons.

Prikaz knjige Prikaz knjige: Verhoest, Koen, Van Thiel Sandra, Bouckaert Geert, Laegreid Per (eds) (2012) Government Agencies: Practice and Lessons from 30 Countires, Houndmiills, Basingstoke: Palgrave Macmillan, xxii + 474 str.

Rad se bavi utjecajem institucioalnog okvira regionalne politike na regionalnu smaoupravu. Uz komparativnu analizu regionalne razine vlasti u europskim zemljama, kohezijske politike EU, analizu razvoja regionalne razine u Hrvatskoj, rad sadrži i istraživački izvještaj emirijskog istraživanja o regionalnoj politici i regionalnoj samoupravi.

Goal of the paper is to address the concept of multilevel governance on the basis of Croatian experience with management of the EU cohesion/regional policy. Primarily focus is on the administrative aspects of EU cohesion policy management in national administrative context. The paper will try to answer does the institutional arrangements set up for cohesion/regional policy management stimulate multilevel governance relations among the various governance actors. Multilevel governance emerged as a doctrinal concept which is used to explain the changes of administrative governance in EU member states caused by cohesion policy requirements. Its evolution is direct consequence of some of the basic principles of EU cohesion policy, such as the partnership principle. The partnership requirement stimulated inclusion of local and regional government actors, as well as economic ad social partners into the policy process, creating highly coordination intensive administrative environment. However, comparative experiences show that the implementation of partnership principle is heavily dependent on the existing national administrative tradition and the level of (de)centralization. Influence of the European Commission has also a significant impact on institutional arrangements for management of cohesion/regional policy, which was especially recognized in the transition member states during their pre-accession stage. Situation is quite similar in the present candidate countries. The paper will analyze the Croatian administrative and policy context, which is characterized by fragmentation instead of strategic/holistic approach to institutional development and high level of centralization of regional/cohesion policy management structures. It will present the empirical data of field research conducted during 2010 regarding the future implementation of the partnership principle in the Croatian context. In the final section some conclusions are made based on the empirical data presented in the paper.

Regional policy is becoming more and more important as Croatia approaches potentials of the full EU membership in future. With its financial implications regional policy represent very promising policy field for social and economic development at local level, which could be used as addition of scarce national financial resources devoted to finance projects of local and regional development. On the other side, administrative aspects of regional policy demand for strengthening policy capacity in local and regional level on order to raise overall capacity of local and regional units to fully utilize all benefits of regional policy. Strategic programming, working in partnership with civil sector and economic partners, project development and management, policy monitoring and evaluation are few basic elements which have to be strengthened in local and regional level in Croatia. However, fragmentation of local self government, inadequate fiscal and personal capacity represents potential bottlenecks which might block the full use of resources that would be available to local and regional level in the framework of regional policy. The paper will also present empirical data on the effect of new institutional and legal framework for regional policy (Strategy and Law on regional development with its bylaws), which is adopted at the end of 2009 and during 2010, on the new working methods in public administration based on the implementation of the partnership principle as one of the core principles of EU regional policy.

The aim of the paper is to present and critically assess a state of play of regional and cohesion policy in Croatia with the emphasis on the new policy, legal and institutional framework in the overall context of general administrative reforms and the process of decentralization. Two parallel development processes can be noticed regarding these policy areas. The first one is connected with the earlier activities on the preparation of policy, legal and institutional framework for the regional policy, while the other development process is more related to the broader context of IPA implementation and previous instruments of pre-accession assistance in Croatia, namely CARDS, PHARE and ISPA. It is argued that these processes sometimes run on parallel tracks which are not adequately connected as they should naturally be. This led to, or is being result of institutional fragmentation and weak administrative coordination among several central administrative bodies, formally in charge of these policy areas. The level of involvement of the regional and local actors as well as the economic and social partners also varies in these two areas. Policy, legal and institutional framework for regional and cohesion policy are analyzed in order to strengthen the argument in favor of improvement of the overall institutional capacity for better coordination and institutional reshuffling in these two very closely interlinked policy areas. The paper is based on a case study method and covers development of the Croatian regional and cohesion policy in the period from 2005, when the main policy and legal documents were drafted and the institutional framework being developed, onwards, analyzing the current development in these areas.

Authors have presented regionalism processes in the Republic of Croatia, as well as trends and challenges in regional and cohesion policy in the Republic of Croatia.

This paper deals with the connections between regionalism and regional policy in Croatia. Besides its introduction and conclusion, this paper is divided into two parts. The first analyzes the democratic potential of regional self-government set in the broader context of analysis of differences in the idea of regionalism and regional self-government between Western and Eastern Europe. The second part describes and analyzes the situation on the regional level of government in Croatia, determines its development trends and their causes, and illustrates specific Croatian circumstances. Special attention is devoted to the presentation of empirical data on the connection between the new institutional framework for regional policy (Law and Strategy of Regional Development) and the idea of regionalism in Croatia. Empirical data were collected during research conducted among core actors of the regional policy network in Croatia. The main finding of this research confirms the initial assumption that the new institutional framework for regional policy is used to improve the idea of regionalism. Information on local and regional governments in Croatia are added in a separate table.

Through the analysis of the general and special legislation and statistical data, authors aim to summarize and explain the position of the numerous local units in Croatia that are given special status and to propose possible directions for their future development

U radu se analiziraju posebnosti inspekcijskog nadzora kao vrste poslova državne uprave. Raspravlja se o provedbi, pojmovnom određenju i značajkama inspekcijskog nadzora. Posebno je prikazano inspekcijsko rješenje, dokazna sredstva te oblik i sadržaj rješenja. Detaljno se analiziraju posebnosti u inspekcijskom nadzoru u odnosu na pravila općeg upravnog postupka, poput donošenja usmenog rješenja u sklopu zapisnika o obavljenom inspekcijskom nadzoru u točno propisanim zakonskim slučajevima, specifičnostima u pogledu izvršenja, rokovima za donošenje rješenja i za žalbu, prigovor na obavijest o predstavci ili pritužbi, mogućnosti saslušanja malodobne osobe. Prikazana su pojedina pitanja koja su zakonom uređena drukčije, u odnosu na pravila općeg upravnog postupanja. Iznosi se i ideja o jedinstvenom zakonu o ispekcijskom nadzoru.

Analizira se novi Zakon o općem upravnom postupku Republike Hrvatske koji je Hrvatskei sabor usvojio u proljeće 2009. Poseban naglasak stavljen je na elektroničku komunikaciju, upravni ugovor, te usklađenost novog zakona s odredbama pravne stečevine EU u pogledu upravnog pojednostavljena (administrative simplification).

U radu se analiziraju trendovi razvoja regionalne politike EU, iznose se osnovna obilježja fondova EU te se analiziraju strateški dokumenti regionalne politike EU s obzirom na problematiku zaštite okoliša.

Rad daje doprinos raspravi o reformi lokalne samouprave u Hrvatskoj. Polazi od suvremenog shvaćanja lokalne samouprave daje se pregled njezinog dosadašnjeg razvoja i daju se preporuke za koncipiranje strategije razvoja lokalne samouprave u RH.

Autori su obavili stručnu redakciju izrade kazala i poveznica uz novi Zakon o općem upravnom postupku.