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Strategic Management 11 01 Reader for Leaders Successful hromada: delivering citizen-oriented services and facilitating sustainable development Introduction 3 ↪ 01 Strategic Management 11 01 02 Managing Human Resources 53 02 03 Municipal Finance 93 03 04 Communication and Engaging with Citizens and Decision-Makers 137 04 05 Administrative Services 157 05 06 Education 195 06 07 Healthcare 237 07 08 Citizens’ Security and Safety 267 08 09 Economic Development 303 09 10 Spatial Planning and Infrastructure Development 335 10 11 Social Cohesion 379 11 12 Rural Development 411 12 + Annexes 441 + UDC 352.07/.08(07)=111 П90 © 2019 – U-LEAD with Europe. All rights reserved. Licensed to U-LEAD with Europe, the European Union and its member states Denmark, Estonia, Germany, Poland and Sweden under conditions. ISBN 978-617-7778-37-9 3 ↪ 01 02 Introduction 03 04 Why Reader for Leaders ? Since the Revolution of Dignity in 2014, Ukraine has embarked on a far-reaching 05 package of reforms to strengthen local self-government at the basic level through administrative-territorial reform and decentralisation, giving a voice to people in their communities and promoting bottom-up development locally. 06 As a result of transferring responsibilities and resources from the state to amalga- mated hromadas (AHs) and hence bringing decision making closer to the people, lo- 07 cal self-government bodies are making a difference to the lives of citizens every day. They decide on the allocation of financial resources for employing staff, investing in infrastructure and providing services to their citizens. Municipalities are responsible 08 for regulating land use in their territories to meet local needs in line with national and regional strategies. They decide about the reconstruction of cultural facilities, estab- lishing hub schools, renovating roads. They think about how to best ensure delivery 09 of services directed to the needs of citizens, while attracting investment and sup- porting sustainable growth for new perspectives for their hromada. U-LEAD with Europe, in supporting the Government of Ukraine with implementation 10 of the decentralisation reform and reforms in education and health, concentrates on capacity development for elected officials and public servants in AHs, enabling them to fulfil their new roles and responsibilities better and tap the full potential of 11 the new opportunities that come with local self-government. To this end, U-LEAD with Europe has developed the concept of “Successful Hromada: 12 Step by Step”, a systematic and quality-led approach to build expertise in key di- mensions, priorities and challenges that local authorities in AHs face. This support + 4 ↪ contains 12 themes in three clusters that (i) strengthen AH authorities1 in becoming effective and capable, (ii) contribute to designing and delivering high quality ser vices and (iii) facilitate sustainable local development. Becoming an effective Designing and delivering Facilitating sustainable and capable AH authority high quality services local development 01. Strategic management 05. Administrative services 09. Economic development 02. Managing human 06. Education 10. Spatial planning resources and infrastructure 07. Healthcare development 03. Municipal finance 08. Citizens’ security 11. Social cohesion 04. Communicating and and safety engaging with citizens 12. Rural development and decision-makers For capacity development in AHs, U-LEAD with Europe closely cooperates with other international partners, including the USAID funded Decentralisation Offering Better Results and Efficiency (DOBRE) programme, the Gender-Responsive Budgeting pro- ject, supported by Sweden, as well as with the Council of Europe. Key to the success of these measures is that AH authorities receive tailor-made sup- port for every step in their development: • “First steps for newly amalgamated hromadas” presents a support package to recently formed AHs in the run-up to their first elections and the immediate outcome, to help with legal obligations and operational needs, including prepa- ring budgets, setting up executive bodies and organising first council meetings. 1 In Reader for Leaders, “AH authority” represents the local self-government bodies at the basic level, including the Head of AH, its council, starostas, executive bodies and all the structural units that manage local self-government in the AH territory. Where appropriate to the context, Reader for Leaders instead refers to the Head of an AH and individual bodies, e.g. AH council, executive body, finance department, etc. Introduction 5 Apart from a guide and practical templates, AHs receive tailored and personal day-to-day support. • “Steps for Leaders” workshops are designed exclusively for Heads of AHs who 01 have installed structures and work procedures and are planning their strategic direction, prioritising use of resources, handling challenges of sector reforms, looking into investment opportunities and initiating activities to boost local 02 economic development, while operations can then be delegated to deputies and specialists. Steps for Leaders are one-day workshops designed to show the bigger picture of key subjects and issues that determine the success of 03 a hromada. The workshops are informative, inspirational and interactive and an exclusive platform for change-driven heads of AHs to learn from each other. 04 • “Steps for Specialists” provide in-depth knowledge for management and staff in new and established AHs on demand and by specific subject. Each subject can have multiple modules, which include the most suitable mix of 05 support measures to develop individual skills and organisational capacity. These include, for example, detailed handbooks, on-the-job coaching, training events, workshops, study visits and communities of practice. 06 Key to the development of an AH is its leadership. The Head of an AH and its top management set the direction and make strategic decisions. It is less the small 07 details that matter and more the broader view. What needs to be done, what can be done, and what is the best way to do it. This is the raison d’être for Reader for Leaders. 08 To accompany U-LEAD with Europe’s Steps for Leaders workshops for Heads of AHs, Reader for Leaders is a compendium of twelve chapters of the key issues AH author- ities face. Reader for Leaders is designed to inform and inspire. It is not a law book 09 but includes links to legal texts. It summarises the main messages for each subject and uses practical examples to illustrate key points. 10 While Reader for Leaders is directed towards the top management in AH authorities, staff and specialists at all levels can enjoy it, as can anyone with an interest in local self-govern ment in Ukraine. It is not intended to be read cover to cover, but rather to 11 be consulted as a guidebook to support AH leaders on the path to success. 12 + 6 ↪ How to use Reader for Leaders Reader for Leaders is designed to help Heads of AHs, the captains of their ships, navi gate their way through at times choppy waters of managing an AH authority. To help management steer their way around potential obstacles and towards their cho- sen destinations. All chapters have the same structure, style and parts, making them easy to follow, irrespective of the subject: • The first part is always aboutwhy the subject is important. In most cases, the reform agenda has placed responsibilities on AH authorities and opened possibilities too. The policy framework, including laws, institutions, strategies, is the starting point, but the motivation comes from improving local quality of life sustainably, by cooperating with citizens, businesses and other stakeholders. • The second part deals with what you need to know. It sets the scene for AH leadership to make key decisions by describing and explaining key concepts, parameters and processes. This section draws on both domestic and international practice, so that they can be interpreted in the context of Ukrainian realities. • The third part outlines opportunities and challenges for AH authorities. This is the centrepiece of each chapter, as it explains the main legal and practical considerations for leaders. AH authorities face certain obligations (mandatory requirements), but also freedoms and flexibilities to implement decentralisation in the best interests of their communities and learn from others’ experiences. The onus on heads of AHs is to work out what can and should be done — ​as well as what must — ​and when, where and how. This means choosing priorities and plotting a way forward. • The final part briefly sets out someconcluding thoughts, highlighting the overarching messages of the chapter. No chapter stands fully on its own. Every theme has links to several others, shown in the navigation in the margins, so you can jump to the relevant chapter if you want to read more. QR codes link to information on Ukrainian laws and other important sources. Alternatively, you can findReader for Leaders online at https://u-learn.org.ua and click on the hyperlinks to take you to the right web pages. Introduction 7 Acknowledgements Reader for Leaders was prepared by U-LEAD with Europe as a team effort, involving 01 many experts from inside and outside the programme in preparing and contributing to the chapters: 02 Timo Biank, Janina Brennan, Susanna Dellans, Jasmina Djikić, Mykhailo Dovgopol, Vasylyna Dybaylo, Alexandra Fehlinger, Anja Fischer, Rahel Freist-Held, Iryna Goro- detska, Andrej Horvat, Mojca Hrabar, Jurij Kobal, Astrid Kohl, Iryna Kohut, Dzmitry 03
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