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The Way Toward Democracy in Poland: the Question Af Reorganization Af Territorial Division Af the State

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The Way Toward Democracy in Poland: the Question Af Reorganization Af Territorial Division Af the State DEVELOPMENT OF ... • ANDRZEJ KOWALCZYK & MIROSLAW GRCHOWSKI 107 The way toward democracy in Poland: The question af reorganization af territorial division af the state Andrzef Kowalczyk ja Miroslraw Grochowski Summary munism in Poland the issue of territorial divi­ sion remains the key element of the restructur­ The purpose of this paper is to present Pol­ ing of the Polish economy and society. The fu­ ish experience concerning introduction of ture of democracy in Poland and its model democracy in post-communist country. The which will be work out depends to large extent question of administrative structure of the state on how we decide to divide territory of Poland, has servedas an example of serious problems and competences and responsibilities of the which must be solved by new government. state administration and representatives of The first part of the paper presents very short­ regional/local communities (Gorzelak, 1990). ly history of territorial organization of Poland since 1945. Economic, political and social Territorial organization of Poland aspects of implemented changes are briefly dis­ after World War 11 cussed. Then the last transformation of territori­ al division under communist conditions is New social reality of Poland after World War described. Against this background the system 11 consisted not only in the new political sys­ of local government in Poland and results of tem imposed from outside, but also in new ter­ two elections: to the Parliament and to the lo­ ritorial organization of the state which was the cal councils are presented. result of territorial changes in Europe after The second part of the paper is devoted to Potsdam's Treaty (Kuklir'lski, Swianiewicz, the question of strategy of democratic institu­ 1990). tions development. Advantages and disadvan­ The beginning of the 1950s was the time, tages of both options: "from the top to the bot­ when the territorial structure of the state be­ tom" and "from the bottom to the top" are dis­ came stabilized for a longer period. Since 1950 cussed. Some examples of conflicts between till 1973 Poland had been divided into 17 voivod­ two options of changes are provided. At the end ships (provinces of regions), about 300 districts the authors present prospects for future and (in Polish: powiat) and 4000 communes (in Pol­ discuss necessity of reorganization of territorial ish: gromada). Polish district has had very long division in Poland. history of more than four centuries. Tradition­ ally important functions were located on this level, because a great number of subdivisions lntroduction for special purposes were established accord­ ing to districts' borders (Bachtler, 1990). How­ Territorial divisions play crucial roles in so­ ever, the decade of the 1970s changed com­ cial and economic development of both the pletely existing pattern. The laudable declara­ state and the regions. Borders of regions, tions of making authorities and decision­ provinces or communes create formal frame­ making centres more accessible for citizens work ln which different actors of economic and was the official explanation. ln fact creation of sociopolitical life perform their functions. new 49 voivodships was the result of political These borders may serve as an instrument of game and planned to weaken extremely strong organization, management and control, which communist party committees in some old is subordinated to the ideology resulted from voivodships. lt was good way to keep situation the political system. After collapse of com- under control. 108 HALLINNON TUTKIMUS 2 • 1991 The first step of the reform took place in This situation had a great lnfluence on social 1973. That year Poland was divided into 2500 activity on regional and local scale. The igno­ communes. The next step was made two years rance and arogance of central decision-makers later. The Government Act of 1975 laid down a concerning local problems resulted ln psycho­ two-tier model of the territorial organization of logical opposition against any decislon of cen­ the state. First tier has consisted of fourty nine tral government (Turska, 1990). voivodships responsible for the broad range of The system established in 1975 lasted with mi­ regionally provided government "services".The nor changes and revision for fifteen years. Fun­ second tier has consisted of communes (rural damental changes of the political system and communes and towns), with significantly verydeep reform of economic basis of function­ smaller competences and responsibilities ing of the state have lmposed necessity of new (Kacprzynskl, 1990). territorial organization. New government, which The reforms of the state administration in is in fact the government of the "Solidarity", is 1973-1975 introduced very deep changes ln aware of this neccesity. The main arguments economic and socio-cultural systems on put forward are related to the size of adminis­ regional and local level (Gorzelak, 1989). The trative units which should assure efficiency of omnipotence of the bureaucratic central ap­ functioning of economy and the state's ad­ paratus and the power of big economic organi­ ministration as well as bodies, which represent zations, limited the potential of regional and lo­ interests of regional and local communities. Ex­ cal authorities, and additionally destroyed isting organization of regional authoritles (the economy and social relations on regional and level of voivodship) is evaluated as lmproper, local level (Jalowiecki, 1989). The subordination as well as division of the state Into voivodships. of the regional and local authorities to the cen­ The opinion is expressed that voivodships are tral govemment and big economic organiza­ too small and, as a result, competences of tions resulted from both formal and informal de­ authorities are too dispersed. That ls why it is pendencies. The role of the regional and local claimed that larger regions with stronger authorities was reduced to passive reception authorities, responsible for complex develop­ of decisions made at the central level and with­ ment of specific areas would be more efficient. in the branch system of economy. Local and ln some opinions new voivodships ought to be regional interests did not have their advocate responsible entirely for economic cooperation and executor, since the economic and institu­ with analogous regions in West European coun­ tional strength of the territorial system was too tries - German and Austrian Lands or French weak in comparison wlth the strength of and Spanish regions. representatives of national, macro-politlcal and Experiences from the last forty five years macro-economic interests. The reform in­ cause that Polish society is very suspicious troduced in the early 1980s modified these de­ about government initiatives concerning reor­ pendencies only to inslgnificant degree (Bart­ ganlzation of the territorial division of the state. kowski et al., 1990). For many people and social groups lnitlatives Durlng the whole period after 1945 the region­ llke this one ought to be proposed by citlzens al and local administration had been merely ex­ and local authoritles instead of the government. ecutors of central decisions. This tendency was They consider central government initiatives to enhanced especially in the early 1950s and af­ be in conflict with principles of democracy, and ter 1975. The best example of the central con­ the symbol of arogance and totalitarian tenden­ trol over regional and local level was provided cies of politlcal centre. lt sounds like an amaz­ by the planning system. ln real-socialism econ­ ing paradox, because local authorities present, omy the base of any activity was a pian. The if not identical, at least similar political options. most important and obligatory for every level One may assume, that this specific approach of authorities was the central pian. The region­ to the role of central government is the result al and local plans were only the results of the of the new strategy adopted by representatives spatial decomposition of the central pian. lt was of local and regional authorlties. According to in accordance with the principle of a homoge­ this strategy, after the period of battle with nous state's authority. According to this prin­ communist system, Poland is on the second ciple there was a strong vertical dependence stage of system changes. This stage is charac­ of the lower level of administration on the terized by unrestricted competition between higher level. different subjects of the political and econom- DEVELOPMENT OF ... • ANDRZEJ KOWALCZYK & MIROSLAW GRCHOWSKI 109 ic life. Particular interests force local and agency located ln their town or to be servedby regional authorities to stand in opposition to particular agency. The arguments raised are central government initiatives and to care, first very different. ln some cases they result from of all, about their own lnterests and problems. conflicts between towns rooted sometimes However, there ls a strong need to change even ln Medleval Ages. ln other cases the ques­ parallely institutional framework of the state tion of possible higher unemployment and low and its territorial organization. Because of the accessibility to the agency ls raised. perceptlon of the central government by region­ During discussions with the central govern­ al and local authorities it leads directly to con­ ment experts, representatives of some towns flicts between these authorities and lo­ and rural communes argued that their commu­ cal/regional communities and central
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