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Mapiranje Kancelarija Za Lokalni Ekonomski Razvoj

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Mapiranje Kancelarija Za Lokalni Ekonomski Razvoj Centar za ravnomerni regionalni razvoj Mapiranje kancelarija za lokalni ekonomski razvoj Nalazi i trendovi promena 2012-2015 Decembar, 2015. godine Centar za ravnomerni regionalni razvoj S A D R Ž A J UVOD ..........................................................................................................................................333 1. METODOLOGIJA MAPIRANJA ........................................................................................44 2. REGIONALNA RASPROSTRANJENOST KANCELARIJA ZA LER ..........................95 3. ORGANIZACIONE FORME I BROJ ZAPOSLENIH U KLER ......................................69 4. DVA PARAMETRA USPEHA – INVESTICIJE I RAZVOJNI PROJEKTI ..................61 2 KLJUČNI NALAZI DRUGOG MAPIRANJA KANCELARIJA ZA LER .............................61 6 Centar za ravnomerni regionalni razvoj-CenTriR, Dalmatinska 11/11, Beograd–Stari grad, tel: +381 11 3240 143, e-mail: [email protected], web: www.centrir.org 2 Centar za ravnomerni regionalni razvoj Uvod Centar za ravnomerni regionalni razvoj CenTriR je 2012. godine sproveo prvo mapiranje kancelarija za lokalni ekonomski razvoj (KLER) u Srbiji, čiji je ishod bilo formiranje prvog jedinstvenog registra ovih kancelarija.1 Zahvaljujući Fondaciji za otvoreno društvo Srbija, koja je finansirala projekat, ovaj registar je kreiran sa namerom da omogući identifikaciju, umrežavanje i pokretanje saradnje i zajedničkih razvojnih projekata između lokalnih samouprava, s jedne strane, odnosno da omogući praćenje rada i razvoja ovih kancelarija kao izuzetno bitnog lokalnog mehanizma za upravljanje procesom ekonomskog razvoja, sa druge strane. Rezultat prvog mapiranja je bila identifikacija 91 kancelarije za LER i objavljivanje Kataloga kancelarija za LER u Srbiji2 sa osnovnim informacijama o ovim kancelarijama. Tri godine nakon prvog mapiranja, CenTriR je u periodu april - jul 2015. godine sproveo novo istraživanje sa ciljem ažuriranja postojećeg registra i prikupljanja podataka o novoformiranim kancelarijama za LER. Ovom prilikom su ažurirani podaci za 77 već mapiranih KLER i sakupljeni podaci za 20 novih kancelarija. S obzirom da su u prethodnom periodu 3 lokalne samouprave ugasile kancelarije za LER, trenutno se u jedinstvenom registru nalaze podaci za 108 opština/gradova, koje imaju uspostavljenu neku organizacionu formu za obavljanje poslova u oblasti LER-a. U ovom izveštaju biće predstavljeni nalazi istraživanja, sa posebnim fokusom na trendove promena koje su se desile u funkcionisanju KLER u 77 jedinica lokalne samouprave, koje su bile obuhvaćene i prvim (2012) i drugim (2015) mapiranjem. 1 http://www.centrir.org/serbia_map/ 2 http://www.centrir.org/downloads/documents/decembar2012/1112/KatalogLERInkub.pdf Centar za ravnomerni regionalni razvoj-CenTriR, Dalmatinska 11/11, Beograd–Stari grad, tel: +381 11 3240 143, e-mail: [email protected], web: www.centrir.org 3 Centar za ravnomerni regionalni razvoj 1. Metodologija mapiranja Istraživanje je sprovedeno u periodu april – jul 2015. godine na uzorku svih 145 jedinica lokalne samouprave (JLS) u Srbiji.3 Sakupljanje podataka je teklo u dve faze. U prvoj fazi su upitnici sa osnovnim podacima o radu KLER dostavljeni kontakt osobama ranije mapiranih kancelarija za LER (91), sa molbom da provere profile njihovih kancelarija u registru koji se nalazi na sajtu CenTriR-a i da, ukoliko postoje bilo kakve izmene, dostave nove podatke. Na ovaj naš upit je odgovorilo 77 opština i gradova, dok njih 14 nije dostavilo ažurirane podatke ni nakon direktnih kontakata koje su istraživači imali sa odgovornim licima. U drugoj fazi mapiranja upitnik je elektronskim putem poslat na adrese 53 načelnika opštinskih/gradskih uprava, koje ranije nisu imale formirane kancelarije za LER ili se podaci o njima nisu nalazili u već postojećem registru. Ukupno 20 opština/gradova iz ove kategorije je dostavilo podatke o svojim kancelarijama, tako da su u postojećem registru kreirani profili njihovih kancelarija. Lokalne samouprave koje nisu dostavile tražene podatke su više puta kontaktirane, kako elektronskim tako i telefonskim putem, ali i pored toga nije bilo moguće utvrditi da li one imaju ili nemaju formirana ova tela. Istraživači su dodatno proveravali postojeće javne baze podataka drugih organizacija/institucija, poput NALED-a, SKGO-a i Nacionalne agencije za regionalni razvoj, i zvanične prezentacije JLS kako bi utvrdili verodostojnost sakupljenih podataka. Konačni rezultat mapiranja predstavlja 108 kancelarija za LER, čiji se podaci nalaze u registru, od čega su podaci za 94 lokalne samouprave ažurirani poslednji put 2015. godine, dok je za njih 14 to učinjeno poslednji put 2012. godine.4 Sprovedeno mapiranje se odnosilo na identifikaciju svih postojećih organizacionih formi na lokalnom nivou, koje su deo lokalne samouprave i koje u svom delovanju obavljaju poslove iz delokruga lokalnog ekonomskog razvoja. Mnoge od njih imaju veoma različita imena (kancelarije, službe, odeljenja, koordinator, agencija, odsek itd.), kao i mesto u organizaciji opštinske/gradske uprave, ali pošto sve one obavljaju identične poslove, kao i zarad terminološke preciznosti, svi ovi različiti organizacioni oblici će u uvom izveštaju biti podvedeni od naziv-kancelarija za LER. 3 Istraživanjem nisu bile obuhvaćene jedinice lokalne samouprave na AP Kosovo i Metohija 4 Bečej, Golubac, Lapovo, Lučani, Novi Sad, Osečina, Paraćin, Požega, Prijepolje, Raška, Šabac, Svilajnac, Topola i Žitište. Centar za ravnomerni regionalni razvoj-CenTriR, Dalmatinska 11/11, Beograd–Stari grad, tel: +381 11 3240 143, e-mail: [email protected], web: www.centrir.org 4 Centar za ravnomerni regionalni razvoj 2. Regionalna rasprostranjenost kancelarija za LER Od 108 mapiranih kancelarija za LER najveći broj njih se nalazi na teritoriji AP Vojvodine – 41, zatim na teritoriji statističkog regiona Šumadija i Zapadna Srbija–37, dok se u statističkom regionu Južna i Istočna Srbija nalazi 30 kancelarija za LER. Takođe, najintezivniji porast broja ovih kancelarija u periodu od 2012-2015 godine se desio u Vojvodini, pošto su ovi lokalni mehanizmi uspostavljeni u 10 novih opština.5 GRAFIKON 1: Prikaz kancelarija za LER prema godini osnivanja Više od polovine svih kancelarija za LER je formirano u periodu 2007-2009 godina, čemu su posebno doprinela dva faktora. Prvi su predstavljale izmene normativnog okvira, odnosno činjenica da je usvajanjem tada novog Zakona o lokalnoj samoupravi (2007) lokalni ekonomski razvoj postao deo izvornih nadležnosti jedinica lokalne samouprave. Bilo je ovo, zapravo, zakasnelo normativno priznanje dobro poznate prakse prisutne u gotovo svim razvijenim zemljama da razvojne potrebe, prioritete i potencijale jedne lokalne zajednice ne može bolje da razume centralni nivo vlasti, niti on može efikasnije i efektivnije da upravlja razvojnim procesima u odnosu na lokalnu samoupravu. Takođe, nije bilo realno očekivati nove investicije i 5 U Bečeju, Plandištu, Malom Iđošu i Titelu (tokom 2012 god.), u Bačkoj Palanci, Čoki, Srbobranu, Staroj Pazovi i Bačkom Petrovcu (2013) i Sremskim Karlovcima (2014) Centar za ravnomerni regionalni razvoj-CenTriR, Dalmatinska 11/11, Beograd–Stari grad, tel: +381 11 3240 143, e-mail: [email protected], web: www.centrir.org 5 Centar za ravnomerni regionalni razvoj otvaranje novih radnih mesta u svetu globalizovane ekonomije, ukoliko se lokalne uprave aktivno ne založe na planu stvaranja povoljnog poslovnog ambijenta, kako bi privukle svež kapital i smanjile nezaposlenost u svojim sredinama. Drugi značajan faktor koji je doprineo osnivanju kancelarija za LER u ovom periodu je bila značajna donatorska podrška USAID-a, kroz čiji program Podsticanje ekonomskog razvoja opština (MEGA program) su osnovane 32 kancelarije u gotovo svim razvijenim gradovima i opštinama u Srbiji. Mapa 1: Kancelarije za LER u statističom regionu Južna i Istočna Srbija i godine osnivanja Centar za ravnomerni regionalni razvoj-CenTriR, Dalmatinska 11/11, Beograd–Stari grad, tel: +381 11 3240 143, e-mail: [email protected], web: www.centrir.org 6 Centar za ravnomerni regionalni razvoj Mapa 2: Kancelarije za LER u statističom regionu Vojvodine i godine osnivanja Mapa 3: Kancelarije za LER u statističom regionu Šumadija i Zapadna Srbija i godine osnivanja Centar za ravnomerni regionalni razvoj-CenTriR, Dalmatinska 11/11, Beograd–Stari grad, tel: +381 11 3240 143, e-mail: [email protected], web: www.centrir.org 7 Centar za ravnomerni regionalni razvoj Primećuje se da postoji jasna korelacija između stepena razvijenosti jedinica lokalne samouprave i njihovih kapaciteta za upravljanje lokalnim ekonomskim razvojem. Naime, retke su opštine i gradovi koje prema Vladinoj uredbi6 spadaju u prvu i drugu grupu razvijenosti u odnosu na republički prosek, a koje nemaju osnovane kancelarije za LER. Tako od 20 lokalnih samouprava iz prve grupe, čija je razvijenost iznad republičkog proseka, samo njih dve (Bor i Lajkovac) nemaju posebne organizacione jedinice koje obavljaju poslove u oblasti LER-a, odnosno svega 5 od 34 JLS7, čiji je stepen razvijenosti između 80% i 100% republičkog proseka i koje spadaju u drugu grupu prema razvijenosti, nema formiranu kancelariju za LER. Međutim, potpuno je drugačija situacija sa izrazito nedovoljno razvijenim lokalnim samoupravama, koje se nalaze u četvrtoj grupi prema stepunu razvijenosti8, jer čak 36% ovih JLS (16 od 44) nema ustanovljenju posebnu organizacijonu jedinicu opštinske/gradske uprave za obavljanje poslova u oblasti LER-a. Od ovog broja čak 13 JLS se nalaze u statističkom regionu Južne i Istočne Srbije. Tabela 1: JLS prema stepenu
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