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Concepts and Practices Centralization and Decentralization in Syria

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Concepts and Practices Centralization and Decentralization in Syria Concepts and Practices Centralization and Decentralization in Syria: Concepts and Practices Centralization and Decentralization in Syria: Concepts and Practices Fourth Annual Book Omran Center for Strategic Studies Omran Center for Strategic Studies An independent think tank and policy research center focusing on presenting an objective understanding of Syria and the region to become a reference for public policies impacting the region. Omran began in November 2013 in Istanbul, Turkey. It publishes studies and policy briefs regarding Syrian and regional affairs in the areas of politics, economic development, and local administration. Omran also conducts round-table discussions, seminars, and workshops that promote a more systematic and methodical culture of decision making among future leaders of Syria. Omran’s work support decision making mechanisms, provide practical solutions and policy recommendations to decision makers, identify challenges within the Syrian context, and foresee scenarios and alternative solutions Website: www.OmranStudies.org Email: [email protected] First Published in Arabic on September 28, 2018 Publish date in English: November 15, 2018 © All rights reserved to Omran for Strategic Studies Contributors Abdulhamid Alawak, Ph.D Sasha Al Alou Ammar Kahf, Ph.D Mohamed Saddik, Ph.D Mohamed Al Bdullah Maen Tallaa Bashar Narsh, Ph.D Bedir Mulla Rashid Ayman AlDassouky Table of Contents Introduction…………………………………………………………………….13 Executive Summary…………………………………………………………….17 Chapter 1: Defining and Conceptualizing Decentralization………………….24 First: Definitions and Concepts ......................................................................... 25 1. Centralization.......................................................................................................25 2. Decentralization...................................................................................................26 3. Reasons for Decentralization...............................................................................27 Second: Forms of Decentralization ................................................................... 29 1. Political Decentralization....................................................................................30 2. Administrative Decentralization.........................................................................31 3. Financial Decentralization...................................................................................33 4. Economic Decentralization or Market Decentralization....................................34 Third: Local Administration and Local Governance (Conceptual Confusion).. 36 Fourth: Central Control over Local Administration .......................................... 38 1. Administrative Oversight....................................................................................39 2. Legislative Oversight...........................................................................................40 3. Public Oversight .................................................................................................40 4. Judicial Oversight................................................................................................40 5. Financial Oversight..............................................................................................41 Conclusion ......................................................................................................... 41 Chapter 2: Political Functions of the State in a Decentralized System ......... 44 First: The Political Function of the State and its Borders ................................. 44 Second: Political Functions in Full Political Decentralization Systems ............ 47 Third: Political Functions in Partial Political Decentralization Systems (Local Governance) ...................................................................................................... 53 - - 7- Fourth: Political Functions in Full Administrative Decentralization Systems (Local Administration) ...................................................................................... 57 Chapter 3: Constitutional, Legislative and Judicial Functions According to Types of Decentralization ................................................................................... 64 First: Constitutional Functions of States with Political and Administrative Decentralization..................................................................................................66 Second: Legislative Functions According to the Form of Government...............73 1. Legislative Functions in Federal States (Political Decentralization)..................73 2. Legislative Functions in Unitary States (Administrative Decentralization)......76 Third: Judicial Functions in Centralized and Decentralized Systems .............. .77 1. Judicial Functions in Federal States (Political Decentralization).......................78 2. Judicial Functions in Unitary States (Administrative Decentralization): the Example of Syria....................................................................................................81 Chapter 4: Security Functions in Decentralized Systems ............................... 86 First: Security and Theories of International Relations ..................................... 87 Second: Security Powers in Stable Compund States: the U.S. and German Models................................................................................................................90 Third: Distribution of Security Powers in the Federal State of Iraq .................. 95 Fourth: The Distribution of Security Authority in Syria: Local and National Dimensions ...................................................................................................... 101 Chapter 5: Decentralization and Local Development in Syria: Theoretical- Applied Approach ............................................................................................. 108 First: The Concept of Local Development ...................................................... 109 Second: Rationales for Adopting a Decentralized Development Framework . 110 1. Economic Rationale..........................................................................................111 2. Social Rationale.................................................................................................112 3. Organizational and Administrative Rationales.................................................113 Third: Determinants for the Success of Decentralization in Achieving Local Development ................................................................................................... 116 1. Effective Development Planning......................................................................116 2. Effective Organization and Monitoring of the Development Process.............117 -8- 3. Sustainable Funding for Development..............................................................118 4. Degree of Local Community Participation in Development...........................119 5. Local Community Culture of Decentralization..................................................120 Fourth: Decentralization and Local Development in Post-Conflict Countries.120 Fifth: Challenges Facing Decentralization in Post-Conflict Countries ........... 121 1. Adequate Size and Form of Decentralization...................................................122 2. Local Community Ability to Shoulder Responsibility of Authority...............122 3. Abuse of Power..................................................................................................123 4. Inability to Bear Costs of Establishing Local Governance Units....................123 5. Lack of Trust between Central and Local Governing Entities........................123 6. Lack of Sustainability of Decentralization in Post-Conflict Countries...........123 7. Severe Shortages of Human Capital.................................................................124 Sixth: Local Development in Syria, Between Centralization and Decentralization ......................................................................................................................... 125 Conclusion: Which Decentralization Form Suits Syria’s Development Framework?......................................................................................................128 Chapter 6: Financial Decentralization and the Determinants of Success in Syria ................................................................................................................... 132 First: Financial Decentralization: Concepts and Definitions ........................... 132 Second: Features of Financial Decentralization .............................................. 135 Third: Legislative Regulation of Financial Revenues and Spending Authority.138 1. Taxes and Fees...................................................................................................139 2. Public Debt, Borrowing, and Natural Resources..............................................141 3. Authority to Spend Revenue in Decentralized Systems...................................144 4. Legislative Regulation to Balance and Transfer Financial Resources..............146 Fourth: Regulating Financial Decentralization in Post-Conflict Countries: Iraq’s State Administration Law of 2004…………………………………………….148 1. Financial Revenues and Spending Authority...................................................149 2. Imbalances, Financial Transfers, and Financial Independence........................151
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