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Moderna Uprava MODERNA UPRAVA MODERNA UPRAVA ČASOPIS ZA UPRAVNO-PRAVNU TEORIJU I PRAKSU Republika Srpska / Agencija za dr`avnu upravu 1 MODERNA UPRAVA Izdavač Agencija za državnu upravu Republike Srpske Vladike Platona bb 78000 Banja Luka web sajt: www.adu.vladars.net elektronska pošta: [email protected] Za izdavača Aleksandar Radeta Glavni i odgovorni urednik Dragomir Kutlija Redakcioni odbor Aleksandar Radeta, Rada Božić, Slobodan Gavranović, dr Tihomir Gligorić, Sead Maslo, mr Vladimir Karajica, Strahinja Ćurković, doc. dr Ostoja Kremenović, prof. dr Petar Kunić, Dragomir Kutlija, Zoran Lipovac, Semiha Borovac, Neven Akšamija, Dalibor Ćopić, Stojanka Ćulibrk Lektor Svetozar Ličina Prevod na engleski jezik Štampa ISSN 1840-2283 Tiraž 1000 komada Štampanje završeno novembar, 2010. godine 2 Republika Srpska / Agencija za dr`avnu upravu MODERNA UPRAVA S A D R Ž A J ČLANCI 1. Dr Snežana Savić, dr Igor Milinković USTAVNOPRAVNI OKVIR LOKALNE SAMOUPRAVE U REPUBLICI SRPSKOJ..........................................................................................7 2. Prof. dr Slobodan Dujić JAVNE SLUŽBE I NEZAVISNA REGULATORNA TIJELA ..............................15 3. Prof. dr Sead Dedić OSVRT NA NORMATIVNU REGULACIJU SLUŽBENIČKOG STATUSA U BOSNI I HERCEGOVINI – DRUGI DIO ........................................41 4. Prof. dr Đorđije Blažić OSNOVI SISTEMA JAVNE (NEDRŽAVNE) UPRAVE U CRNOJ GORI ..........57 5. Prof. dr Mile Dmičić UREDBODAVNA OVLAŠĆENJA I NJIHOVO OSTVARIVANJE U PRAVNOM SISTEMU REPUBLIKE SRPSKE......................................................87 6. Prof. dr Marko Rajčević USTAVNOST I ZAKONITOST PORESKIH PROPISA......................................111 7. Dr Zorica Drljača OSNOVNA OBILJEŽJA PORESKOPRAVNOG ODNOSA SA OSVRTOM NA PRAVA PORESKIH OBVEZNIKA...........................................121 8. Prof. dr Valerija Šaula PRIMJENA EVROPSKIH STANDARDA U RADU ORGANA DRŽAVNE UPRAVE – NOVA EVROPSKA KONVENCIJA O USVOJENJU DJECE.........137 9. Prof. dr Predrag Dimitrijević EVROPSKI UPRAVNI PROSTOR I REGIONALIZACIJA „ STRAH OD DECENTRALIZACIJE“................................................................145 10. Duško Z. Glodić, M.A. ZNAČAJ IZGRADNJE EVROPSKOG ADMINISTRATIVNOG PROSTORA I SPROVOĐENJA REFORME JAVNE UPRAVE ZA PRIMJENU PRAVA EVROPSKE UNIJE ......................................................161 Republika Srpska / Agencija za dr`avnu upravu 3 MODERNA UPRAVA 11. Dr Ivanka Marković KRIVIČNA DJELA PROTIV PRAVA IZ RADNIH ODNOSA I SOCIJALNOG OSIGURANJA...........................................................................171 12. Nikolina Grbić- Pavlović DISCIPLINSKA I MATERIJALNA ODGOVORNOST DRŽAVNIH SLUŽBENIKA...............................................................................179 13. Dr Slobodan Đorđić KARAKTERISTIKE SAVREMENOG PRIVREDNOG RAZVOJA, NOVA GLOBALNA EKONOMIJA I POJAVA NOVE SVJETSKE EKONOMSKE KRIZE........................................................187 14. Mr Borislav Radić O KOLEKTIVNIM UGOVORIMA KAO IZVORIMA PRAVA U REPUBLICI SRPSKOJ....................................................................................201 15. Mr Vladimir Karajica PERCEPCIJA DISTRIBUCIJE UTICAJA SLOBODNOG VREMENA DRŽAVNIH SLUŽBENIKA NA MOTIVACIJU I RADNI UČINAK ..............225 16. Nikola Kovačević TRANSFORMACIJA VLASNIČKIH ODNOSA U REPUBLICI SRPSKOJ....235 17. Miroslav Radinković i Milan Latinović STRATEŠKI OKVIR RAZVOJA eVLADE i eSERVISA U SVIJETU ...........243 18. Miroslav Radinković i Saša Vojnović INFORMACIONE TEHNOLOGIJE U JAVNOJ UPRAVI REPUBLIKE SRPSKE I INSTITUCIONALNI OKVIR ....................................253 OSVRTI 19. Miroslavka Vojvodić VAKATIO LEGIS U PRAVNOM SISTEMU REPUBLIKE SRPSKE..............265 4 Republika Srpska / Agencija za dr`avnu upravu MODERNA UPRAVA PREDGOVOR Novo izdanje časopisa „Moderna uprava“, u formi dvobroja 3/4, donosi i predstavlja priloge 22 autora, koji na interdisciplinaran pristup i način tretiraju probleme javne uprave kao dinamičnog i složenog fenomena, sa posebnim osvrtom na aktuelna dešavanja i reformu javne uprave u Republici Srpskoj, BiH i šire. Sa zadovoljstvom ističemo činjenicu da su objavljeni radovi autora iz drugih zemalja iz okruženja (Republika Slovenija i Republika Crna Gora), što ovom broju časopisa daje naglašen kvalitet i širi značaj. Nije neskromno istaći, da je Redakcioni odbor uspio znalački i kreativno da ukomponuje radove već afirmisanih i uglednih autora, sa radovima mlađih autora, koji pokazuju već sada pokazuju sklonost ka pisanju i imaju izražene ambicije da se bave naučno-istraživačkim radom. Iz šireg miljea prezentovanih radova prepoznajemo potrebu za promjenama, inovacijama, praksu i iskustvo u fleksibilnoj transformaciji rada administracije, informacionih tehnologija, te pitanja motivacije i radnog učinka zaposlenih u javnoj upravi. Naime, naša kultura je pod velikim uticajem koncepta promjene i neumornog traženja boljih modela, ideja i rješenja, koja doprinose jasnijem fokusiranju problema i njihovom razumijevanju iz vizure kako se javna uprava mijenja. Iz tih razloga, provedena metodologija i logički tretman tematskih priloga de- terminisali su da sadržaj časopisa bude konceptualno zasnovan na jasnosti, preglednosti, analitičnosti, originalnosti, komparativnosti i konzistentnosti priloženih radova. Sadržaj i koncept dvobroja časopisa čine teme: Ustavnopravni okvir lokalne samouprave u Republici Srpskoj, Javne službe i nezavisna regulatorna tijela, Osvrt na normativnu regulaciju službeničkog statusa u Bosni i Hercegovini – drugi dio, Osnovi sistema javne (nedržavne) uprave u Crnoj Gori, Uredbodavna ovlašćenja i njihovo ostvarivanje u pravnom sistemu Republike Srpske, Ustavnost i zakonitost poreskih propisa, Osnovna obilježja poreskopravnog odnosa sa osvrtom na prava poreskih obveznika, Primjena evropskih standarda u radu organa državne uprave – nova Evropska konvencija o usvojenju djece, Evropski upravni prostor i regionalizacija „strah od decentralizacije“, Značaj izgradnje evropskog administrativnog prostora i spro- vođenja reforme javne uprave za primjenu prava Evropske unije, Krivična djela protiv prava iz radnih odnosa i socijalnog osiguranja, Disciplinska i materijalna odgovornost državnih službenika, Karakteristike savremenog privrednog razvoja, nova globalna ekonomija i pojava nove svjetske ekonomske krize, O kolektivnim ugovorima kao izvorima prava u Republici Srpskoj, Percepcija distribucije uticaja slobodnog vremena državnih službenika na motivaciju i radni učinak, Transformacija vlasničkih odnosa u Republici Srpskoj, Strateški okvir razvoja eVlade i eServisa u svijetu, Informacione Republika Srpska / Agencija za dr`avnu upravu 5 MODERNA UPRAVA tehnologije u javnoj upravi Republike Srpske i institucionalni okvir, vakatio legis u pravnom sistemu Republike Srpske. Vjerujemo, da će državni službenici, naučno-stručna populacija i mnogi drugi zainteresovani za pitanja višeslojnih i fundamentalnih atribucija reforme javne uprave, biti u mogućnosti da se upoznaju i informišu sa savremenim pristupima i inter- pretacijama skrivenih nijansi i otvorenih pitanja funkcionisanja javne uprave. Redakcija 6 Republika Srpska / Agencija za dr`avnu upravu MODERNA UPRAVA Dr Snežana Savić, redovni profesor Pravni fakultet Univerziteta u Banjaluci Dopisni član ANURS Dr Igor Milinković, viši asistent Pravni fakultet Univerziteta u Banjaluci USTAVNOPRAVNI OKVIR LOKALNE SAMOUPRAVE U REPUBLICI SRPSKOJ REZIME Organizovanje lokalne samouprave predstavlja jedno od najosjetljivijih pitanja koje se u svakoj državi mora riješiti na adekvatan način. Dostignuti nivo demo- kratizacije vlasti uopšte, između ostalog, ili, pak, na prvom mjestu, ogleda se i kroz lokalnu samoupravu. Kada je riječ o lokalnoj samoupravi u Republici Srpskoj, nužno je istaći da je Opšti okvirni sporazum za mir u Bosni i Hercegovini (Dejtonski mirovni sporazum), odnosno Ustav Bosne i Hercegovine (Aneks IV sporazuma), u organizaciji vlasti u ovom segmentu, naravno, u okviru načela ustavnosti, entitetima ostavio potpunu slobodu, odnosno ovu problematiku odredio, saglasno članu III 3a Ustava Bosne i Hercegovine, kao nadležnost entiteta. U radu je riječ o postojećem ustavnopravnom okviru lokalne samouprave u Republici Srpskoj kao i o ustavnim amandmanima iz domena lokalne samouprave, koji su usvojeni od strane Narodne skupštine Republike Srpske, a o kojima Vijeće naroda Republike Srpske još uvijek nije odlučivalo. Značaj lokalne samouprave za izgradnju demokratskog društva danas se, po pravilu, ne dovodi u pitanje. Djelujući kao svojevrsna «škola demokratije» (po mišljenju pojedinih autora i «univerzitet»)1, lokalna samouprava doprinosi stvaranju aktivnog, politički svjesnog građanstva, kao bitnog preduslova i garancije demokratskog uređenja.2 Istovremeno, snažne i autonomne lokalne vlasti mogu se posmatrati i kao relevantan element tzv. sistema kontrole i ravnoteže (checks and balances). Obez- bjeđujući pluralitet centara odlučivanja, lokalna samouprava afirmiše se kao svojevrsna protivteža središnjoj vlasti odnosno kao brana mogućoj samovolji centralnih organa. Navedena, progresivna svojstva lokalne samouprave, učinila su jačanje ove ustanove svojevrsnim imperativom za zemlje u tranziciji. Stoga ne iznenađuje da se razvoju lokalne samouprave značajna pažnja poklanja i u entitetima Bosne i Hercegovine: Republici Srpskoj i Federaciji Bosne i Hercegovine, u čijoj nadležnosti se, prema 1 J. Đorđević, Osnovni tipovi lokalne samouprave, Beograd, 1957, str. 8. 2 Kako ističu brojni autori, lokalna demokratija, prevashodno kroz razvoj tzv. aktivnog građanstva, «obezbjeđuje temelje za snažne
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