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A Europe of Regions and Cities : Strategies and Prospects for EU Enlargement

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A Europe of Regions and Cities : Strategies and Prospects for EU Enlargement EUROPEAN UNION Committee of the Regions A Europe of Regions and Cities Strategies and Prospects for EU Enlargement (Part II on Bulgaria, Latvia, Lithuania, Malta, Romania, Slovakia and Turkey) A EUROPE OF REGIONS AND CITIES STRATEGIES AND PROSPECTS FOR EU ENLARGEMENT (PART II ON BULGARIA, LATVIA, LITHUANIA, MALTA, ROMANIA, SLOVAKIA AND TÜRKEY) CoR Studies E-1/2003 Brussels, October 2003 This study was produced by external experts under the direction of the Österreichisches Ost• und Südosteuropa Institut, Austria. It does not represent the official views of the Committee of the Regions. A great deal of additional information on the European Union is available on the Internet. It can be accessed through the Europa server (http://europa.eu.int). Cataloguing data can be found at the end of this publication. Luxembourg: Office for Official Publications of the European Communities, 2002 ISBN 92-895-0162-6 © European Communities, 2002 Reproduction is authorised provided the source is acknowledged. Printed in Belgium PRINTED ON WHITE CHLORINE-FREE PAPER EUROPEAN UNION Committee of the Regions Foreword Since the opening of accession negotiations in February 2000 with six new candidate countries (Bulgaria, Latvia, Lithuania, Malta, Romania and Slovakia), as decided by the Helsinki European Council, the Committee of the Regions entered in a pre-accession dialogue with the regions and cities of these countries as well as making initial contacts with those of Turkey. The CoR has had a key contribution to make to the success of the forthcoming EU enlargement due to its closeness to citizens and to its natural links with the local and regional elected representatives of the applicant countries. Indeed, the CoR first made contact with elected representatives of the candidate countries in 1997. These relations have been formalized through the establishment of a number of joint committees for the Association Council with representatives of local and regional authorities of candidate countries, and the CoR now plans to welcome these colleagues as observers. The local and regional authorities of the applicant countries have a major role to play in developing modem democracy in their countries and implementing pre-enlargement institutional reforms. In addition, the success of accession to the European Union relies on a better preparation and information of the citizens of these countries, and here again local and regional authorities have high responsibilities. And we know their role will grow further, especially with the process of devolution currently underway in these countries. Two years after the accession negotiations began in the above-mentioned countries, the aim and focus of this report is to present an in-depth analysis of the development of the decentralisation process in each state. Consequently, it contains a thorough description of the territorial-administrative system and proceeds to an evaluation and comparison of the political powers at national and sub-national level. The driving forces behind as well as the obstacles to decentralisation and régionalisation are clearly put forward for the seven different candidate countries. This study complements the first CoR study "A Europe of Regions and Cities - Strategies and Prospects for EU Enlargement" on the Czech Republic, Estonia, Hungary, Poland, Slovenia and Cyprus published in 2000. It highlights significant differences with the countries dealt with in the first study in particular a strong history of centralism. However, there are positive driving forces to decentralisation and'régionalisation to be seen, such as a convergence of regional identities and regional administrative structures. A A. Bore President of the Committee of the Regions Contents CHAPTER I: INTRODUCTION 1 CHAPTER II: ANALYSIS OF THE CURRENT TERRITORIAL- ADMINISTRATIVE SYSTEM IN BULGARIA, LATVIA, LITHUANIA, MALTA, ROMANIA, SLOVAKIA AND TURKEY 11 A Bulgaria 13 1 Preface 13 2 Analysis of the current territorial-administrative system 14 2.1 Legal foundations 14 2.2 Institutional structure 19 2.3 Exclusive and concurrent legislative competences 22 2.4 Executive powers 22 2.5 Finances 24 2.6 Implementation of powers 28 2.7 Patterns of interaction between authorities at national and sub-national level 29 2.8 Patterns of interaction between authorities at sub-national level 30 2.9 Trans-border cooperation at sub-national level 34 3 Driving forces behind and obstacles to decentralisation and the reorganisation of territorial structures 36 3.1 Regional identities 36 3.2 Administrative traditions 37 3.3 Ethnic groups and minorities 37 3.4 The party system related to régionalisation and decentralisation issues 39 3.5 Other political players related to decentralisation issues 40 3.6 Plans for territorial reorganisation 41 4 Concluding remarks 41 4.1 Main shortcomings of the current system 42 4.2 Driving forces behind and obstacles to decentralisation and régionalisation 43 Sources 45 Β Latvia 47 1 Preface 47 2 Analysis of the current territorial-administrative system 47 2.1 Legal foundations 47 2.2 Institutional structure 48 2.3 Exclusive and concurrent legislative competences 51 2.4 Executive powers 52 2.5 Finances 55 2.6 Implementation of powers 63 2.7 Patterns of interaction between authorities at national and sub-national level 64 2.8 Patterns of interaction between authorities at sub-national level 67 2.9 Trans-border cooperation at sub-national level 69 3 Driving forces behind and obstacles to decentralisation and the reorganisation of territorial structures 75 3.1 Regional identities 75 3.2 Administrative traditions 81 3.3 Ethnic groups and minorities 82 3.4 The party system related to régionalisation and decentralisation issues 83 3.5 Other political players related to decentralisation issues 85 3.6 Plans for territorial reorganisation 86 4 Concluding remarks 88 4.1 Main shortcomings of the current system 88 4.2 Driving forces behind and obstacles to decentralisation and régionalisation 89 Sources 91 C Lithuania 95 1 Preface 95 2 Analysis of the current territorial-administrative system 96 2.1 Legal foundations 96 2.2 Institutional structure 98 2.3 Exclusive and concurrent legislative competences 101 2.4 Executive powers 102 2.5 Finances 105 2.6 Implementation of powers 110 2.7 Patterns of interaction between authorities at national and sub-national level 110 2.8 Patterns of interaction between authorities at sub-national level 112 2.9 Trans-border cooperation at sub-national level 114 3 Driving forces behind and obstacles to decentralisation and the reorganisation of territorial structures 116 3.1 Regional identities 118 3.2 Administrative traditions 120 3.3 Ethnic groups and minorities 120 3.4 The party system related to régionalisation and decentralisation issues 123 3.5 Other political players related to decentralisation issues 124 3.6 Plans for territorial reorganisation 124 4 Concluding remarks 125 4.1 Main shortcomings of the current system 125 4.2 Driving forces behind and obstacles to decentralisation and régionalisation 126 Sources 128 D Maita 131 1 Preface 131 2 Analysis of the current territorial-administrative system 132 2.1 Legal foundations 132 2.2 Institutional structure 134 2.3 Exclusive and concurrent legislative competences 139 2.4 Executive powers 140 2.5 Finances 143 2.6 Implementation of powers 150 2.7 Patterns of interaction between authorities at national and sub-national level 152 2.8 Patterns of interaction between authorities at sub-national level 154 2.9 Trans-border cooperation at sub-national level 155 3 Driving forces behind and obstacles to decentralisation and the reorganisation of territorial structures 156 3.1 Regional identities 156 3.2 Administrative traditions 159 3.3 Ethnic groups and minorities 160 3.4 The party system related to régionalisation and decentralisation issues 161 3.5 Other political players related to decentralisation issues 163 3.6 Plans for territorial reorganisation 164 4 Concluding remarks 165 4.1 Main shortcomings of the current system 166 4.2 Driving forces behind and obstacles to decentralisation and régionalisation 167 Sources 169 E Romania 171 1 Preface 171 2 Analysis of the current territorial-administrative system 174 2.1 Legal foundations 174 2.2 Institutional structure 178 2.3 Exclusive and concurrent legislative competences 181 2.4 Executive powers 181 2.5 Finances 183 2.6 Implementation of powers 192 2.7 Patterns of interaction between authorities at national and sub-national level 193 2.8 Patterns of interaction between authorities at sub-national level 196 2.9 Trans-border cooperation at sub-national level 209 3 Driving forces behind and obstacles to decentralisation and the reorganisation of territorial structures 212 3.1 Regional identities 212 3.2 Administrative traditions 216 3.3 Ethnic groups and minorities 217 3.4 The party system related to régionalisation and decentralisation issues 221 3.5 Other political players related to decentralisation issues 222 3.6 Plans for territorial reorganisation 223 4 Concluding remarks 224 4.1 Main shortcomings of the current system 225 4.2 Driving forces behind and obstacles to decentralisation and régionalisation 226 Sources 229 F Slovakia 233 1 Preface 233 2 Analysis of the current territorial-administrative system 240 2.1 Legal foundations 240 2.2 Institutional structure 242 2.3 Exclusive and concurrent legislative competences 244 2.4 Executive powers 244 2.5 Finances 247 2.6 Implementation of powers 255 2.7 Patterns of interaction between authorities at national and sub-national level 256 2.8
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