Supporting Decentralisation in Ukraine: Strengthening the Subnational Partnership

SEMINAR PROCEEDINGS Supporting Decentralisation in Ukraine: Strengthening the subnational partnership Wednesday 15 March 2017 Hotel Reikartz River Mykolaiv 9 Sportyvna Street Mykolaiv, Ukraine OECD Public Governance & Territorial Development Directorate OECD Eurasia Regional Development Policy Division Competitiveness Programme ORGANISATION FOR ECONOMIC CO-OPERATION AND DEVELOPMENT The OECD is a unique forum where governments work together to address the economic, social and environmental challenges of globalisation. The OECD is also at the forefront of efforts to understand and to help governments respond to new developments and concerns, such as corporate governance, the information economy and the challenges of an ageing population. The Organisation provides a setting where governments can compare policy experience, seek answers to common problems, identify good practice and work to co-ordinate domestic and international policies. The OECD member countries are: Australia, Austria, Belgium, Canada, Chile, the Czech Republic, Denmark, Estonia, Finland, France, Germany, Greece, Hungary, Iceland, Ireland, Israel, Italy, Japan, Korea, Latvia, Luxembourg, Mexico, the Netherlands, New Zealand, Norway, Poland, Portugal, the Slovak Republic, Slovenia, Spain, Sweden, Switzerland, Turkey, the United Kingdom and the United States. The European Union takes part in the work of the OECD. www.oecd.org OECD EURASIA COMPETITIVENESS PROGRAMME The OECD Eurasia Competitiveness Programme, launched in 2008, helps accelerate economic reforms and improve the business climate to achieve sustainable economic growth and employment in two regions: Central Asia (Afghanistan, Kazakhstan, Kyrgyzstan, Mongolia, Tajikistan, Turkmenistan and Uzbekistan), and Eastern Europe and South Caucasus (Armenia, Azerbaijan, Belarus, Georgia, the Republic of Moldova and Ukraine). The Programme contributes to the OECD outreach strategy implemented by the Global Relations Secretariat, and works in close collaboration with specialised expert divisions across the OECD. www.oecd.org/globalrelations/eurasia.htm OECD REGIONAL DEVELOPMENT POLICY COMMITTEE The Regional Development Policy Committee (RDPC) was created in 1999 with the goal of identifying the nature of territorial challenges and assisting governments in the assessment and improvement of their territorial policies. Through its mandate today, the Committee aims to serve as the premier international forum for senior-level policy makers to identify, discuss, develop, and disseminate a vision of regional development policy that is place-based, multi-level, multi-sector, evidence-based and innovative. The Committee also seeks to enhance well-being and living standards in all region types, from cities to rural areas, and improve their contribution to national performance and more inclusive and resilient societies. www.oecd.org/regional THE PROJECT: SUPPORTING DECENTRALISATION IN UKRAINE The OECD project will run until 2018 with the aim of helping the Ukrainian authorities implement their decentralisation reforms and strengthen the institutions of public governance at national and subnational levels across the country. It is jointly implemented by the OECD Regional Development Policy Committee and the Eurasia Competitiveness Programme, in close collaboration with the Government of Ukraine. The project is co-financed by the European Union, and the governments of the Czech Republic, Flanders (Belgium), and Poland. 2 SEMINAR PROCEEDINGS Overview This capacity-building seminar explored the impact and implementation of Ukraine’s decentralisation process at the subnational, and specifically municipal level. Ukrainian subnational officials and policy makers were invited to share their experience with the decentralisation reform and its impact with respect to administrative, investment and service delivery capacities. In addition, participants had the opportunity to discuss the “pros and cons” of amalgamation, and their objectives for sector decentralisation. Each session combined the Ukrainian experience with practical input highlighting OECD experience, as well as question and answer/breakout sessions. It offered participants a chance to hear how other municipal officials are meeting the challenges and seizing the opportunities associated with decentralisation. This seminar was the second in a series to be held throughout Ukraine over the course of the project. The audience included representatives of subnational administrations in Mykolaiv and Odessa, practitioners, think tanks, and relevant associations involved in the decentralisation reform. Key findings There is a need to strengthen fiscal autonomy at the local level, by reducing the reliance on transfers and allowing municipalities to collect taxes and develop mechanisms to raise revenues. There is a need to improve the co-operation and governance arrangements surrounding port infrastructure and the activities of state-owned enterprises (SOEs). Local communities are often unable to collect tax revenues from the commercial activities of SOEs, despite being subjected to substantial environmental and infrastructure maintenance costs. The increased financial capacity of local communities should be matched with adequate human resource capacity. There is a need for more and better quality staff at subnational level, with clear attribution of tasks and responsibilities across different levels of government. There is a need to improve public service delivery at local levels by strengthening the governance of service delivery and developing mechanisms for inter-municipal co-operation. Opening remarks and introduction The seminar was moderated by Ms. Maria-Varinia Michalun, Policy Analyst, OECD Regional Development Policy Division. Opening remarks were delivered by Mr. Olexander Kushnir, Deputy Head of the Mykolaiv Regional State Administration, and Ms. Dorothée Allain-Dupré, Senior Policy Analyst, OECD Regional Development Policy Division. Mr. Kushnir underlined the importance of the OECD project in supporting the ongoing decentralisation reform in Ukraine and improving the quality of service delivery. Last year, Mykolaiv oblast was ranked second in Ukraine in terms of the rate of amalgamations, with 19 newly amalgamated communities (NACs) being established at local elections held in December 2016. Ms. Allain-Dupré provided an overview of the objectives of the project, and emphasised the importance of learning from one another and sharing the experiences of OECD countries in order to develop tailored and insightful policy recommendations for Ukraine. This was followed by an introductory statement from Ms. Viktoria Moskalenko, Head of the Mykolaiv regional council. Ms. Moskalenko noted that back in 2015 Mykolaiv region had achieved limited progress in implementing the decentralisation reform. She attributed the sharp improvement in the region’s performance in 2016 to the support provided by the Ministry of Regional Development (particularly First Deputy Minister Nehoda), the Association of Ukrainian Cities (AUC), and the Local Government Development 3 Centre (LGDC) for Mykolaiv. The LGDC played an instrumental role in shaping the prospect plan of amalgamation for the region, and organised an extensive series of workshops and consultations with local communities and district (rayon) administrations. Further progress in the territorial reform will be supported by laws recently adopted by the parliament, which allow for the amalgamation of local communities across rayon boundaries, and with cities of oblast subordination. Mr. Alexander Syenkevych, Mayor of Mykolaiv City, underlined the importance of using the seminar and discussions as a platform to voice key issues and concerns with the decentralisation reform. One of the main challenges for Mykolaiv, as a major port on the Black Sea, is its exposure to negative environmental and health externalities and damage to roads and infrastructure due to the significant volume of freight traffic that passes through the city. Despite this context, the local government is only able to collect a land use tax and individual income tax from port employees, and doesn’t receive any additional tax revenues generated by the port’s activities. The mayor also argued that there has been a tendency to allocate additional responsibilities to local communities without a corresponding transfer of adequate financial resources. For instance, Mykolaiv City is responsible for the administration of transport benefits (the distribution of free or subsidised fares) and the payment of salaries and utility expenses in vocational schools. In 2016, earmarked subventions for education and health were often insufficient to meet the needs of local communities. A positive upshot of the current situation is that local communities now have incentives to invest in energy efficiency as well as economise on their use of resources because they are now theirs. Finally, the Mayor explained that while the establishment of local centres for administrative service provision is a positive step, certain services (such as a single demographic register) would be more efficient if centralised. Mr. Serhii Sakhanenko, Professor of the Department of Public Administration and Local Self-Governance of the Odessa Regional Institute for Public Administration, explained that decentralisation goes beyond the amalgamation of territorial units and shifting functions from central institutions down to the local levels. It is also about regional self-government, which does not exist in Ukraine

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