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Zbornik HIZ 2020.Indd JOSIP MIHALJEVIĆ TRIDESET GODINA SUVREMENOGA HRVATSKOG PARLAMENTARIZMA Hrvatski sabor, predstavničko tijelo građana i nositelj zakonodavne vlasti na području Republike Hrvatske, imao je uzbudljivu i burnu prošlost i jedna je od ključnih institucija koje predstavljaju samosvojnost i državnost hrvatskoga naroda. Godine 2020. Sabor slavi svojih prvih 30 godina djelovanja u višestranačkoj demokraciji. U članku je dan osvrt na uvođenje demokratskoga parlamentarizma u RH i povijest prvih triju desetljeća rada višestranačkoga Sabora. Prikazan je turbulentni početak višestranačja koji se događao u atmosferi raspada SFRJ i rata za neovisnost, Domovinskoga rata. Unatoč nepovoljnim ratnim i tranzicijskim prilikama, hrvatska demokracija i parlamentarizam razvijali su se i na ustavnoj, zakonodavnoj, političkoj, ali i društvenoj razini težeći prema demokratskim standardima zapadnoga svijeta, procjenjuje autor priloga povjesničar s Hrvatskoga instituta za povijest dr. sc. Josip Mihaljević. Prikazane su i organizacijske promjene koje je Sabor doživljavao. Poseban naglasak stavljen je na prikaz razvoja građanskih i demokratskih praksi, europskih integracija te sudjelovanje hrvatskog iseljeništva u hrvatskome parlamentarizmu. rema politološko-pravnoj defi niciji, parlamentarizam, odnosno parlamentarna demokracija „podrazumijeva sustav vlasti u kojem je, temeljeći se na načelu narodnog suvereniteta, predstavničke vladavine i diobe vlasti, parlament nositelj zakonodavne vlasti u državi i predstavničko tijelo građana koje je izabrano općim i jednakim biračkim P 1 pravom na neposrednim slobodnim višestranačkim izborima“. Godine 2020. Hrvatski sabor slavi svojih prvih 30 godina djelovanja u višestranačkoj parlamentarnoj demokraciji. Čitava jedna generacija stasala je u tome razdoblju i lijepa je to prigoda za osvrt na prva tri desetljeća modernoga parlamentarizma u Hrvatskoj. Sabor, predstavničko tijelo građana i nositelj zakonodavne vlasti na području Hrvatske imao je zanimljivu i burnu prošlost i jedna je od ključnih institucija koje predstavljaju samosvojnost i državnost hrvatskoga naroda. Svoju tradiciju baštini iz srednjega vijeka, počevši od prvih narodnih zborova. Prvi Sabor sa sačuvanim zapisnikom i zaključcima održan je 1273. godine. Prerastavši u skupštinsku instituciju hrvatskih staleža i redova, odnosno plemstva i svećenstva, na njemu se odlučivalo o važnim državnopravnim pitanjima Kraljevine Hrvatske, Dalmacije i Slavonije. Ukidanjem feudalizma 1848. godine, Sabor će iz staleške postati građanska institucija. U 20. stoljeću više puta je mijenjao ime, strukturu pa čak i funkciju. Promjene imena u prvoj polovici 20. stoljeća bile su posljedica promjena državnih režima, a u poslijeratnoj socijalističkoj Jugoslaviji posljedica ustavnih promjena. Nastankom jugoslavenske države 1918. Sabor je 1 Smiljko Sokol, „Prijepori oko hrvatskog parlamentarizma“, Politička misao 30, br. 4 (1993.): 25. 12 2020 J. MIHALJEVIĆ ukinut. Naime, Sabor je 29. listopada 1918. donio odluku o raskidanju državnopravnih veza Trojedne kraljevine s kraljevinom Ugarskom i carevinom Austrijom i pristupanju Hrvatske novoj Državi Slovenaca, Hrvata i Srba. Ujedno je priznao vrhovnu vlast skupštinskog tijela te nove države (Narodno vijeće) i time formalno-pravno prestao postojati.2 Ponovno će formalno biti sazvan od strane ustaškoga režima u Nezavisnoj Državi Hrvatskoj (NDH) u siječnju 1942. godine. Taj Sabor trebao je biti samo instrument za proglašavanje politike NDH i za stvaranje privida legitimiteta vlasti i pozitivnog učinka u hrvatskome narodu. Nije imao nikakvu stvarnu snagu niti vlast jer ju je u cijelosti obnašao Ante Pavelić i ustaški režim.3 Sabor je oživio u djelovanju Zemaljskog antifašističkog vijeća narodnog oslobođenja Hrvatske (ZAVNOH) koji je 1945. promijenio ime u Narodni sabor Hrvatske (1945. – 1946.). Proglašenjem Narodne Republike Hrvatske (NRH) ujedno je promijenjen i naziv Sabora koji se službeno zvao Sabor NRH.4 Pod tim je nazivom raspušten u kolovozu 1946., a na osnovi parlamentarnih izbora u studenome 1946. konstituiran je Ustavotvorni sabor NRH (1946. – 1947.) koji je u siječnju 1947. donio Ustav NRH i dalje nastavio rad opet kao Sabor NRH.5 Taj naziv Sabor će nositi sve do 1963. godine kada, prema novome Ustavu, promjenom imena republike iz NRH u Socijalistička Republika Hrvatska (SRH), dobiva ime Sabor SRH (1963. – 1990.). Ne treba zaboraviti da čitavo to vrijeme NRH/SRH nije samostalna država, nego je samo jedna od federalnih republika Federativne Narodne Republike Jugoslavije (FNRJ), odnosno Socijalističke Federativne Republike Jugoslavije (SFRJ), kako se država nazivala od 1963. godine. Iako je u razdoblju socijalizma Sabor nominalno u svim ustavnim tekstovima označavan kao najviše tijelo državne vlasti, stvarna vlast tada nije bila u rukama nikakvog parlamenta. Sve ključne odluke donosile su se u vrhu vladajuće totalitarne organizacije – Komunističke partije Jugoslavije (KPJ), odnosno Savezu komunista Jugoslavije (SKJ), kako se Partija zvala od 1952., a Sabor je u najvećoj mjeri samo formalno potvrđivao i provodio odluke donesene u partijskim tijelima.6 Ipak, kraj osamdesetih donijet će promjene i raspad komunističkoga sustava u Europi. U zemljama tzv. sovjetskoga lagera, komunistička vlast će pasti pred zahtjevima za uvođenje parlamentarizma i demokracije. Istodobno, odustajanje SSSR-a od uloge čuvara komunizma u Europi značajno će utjecati i na situaciju u Jugoslaviji, koja je u to vrijeme bila suočena s gospodarskom, ali i političkom krizom koja je proizlazila iz odnosa u samoj Partiji, odnosno suprotstavljenih interesa pojedinih republičkih rukovodstava. Socijalistička Republika Srbija 2 Nikša Stančić, „Hrvatski građanski sabor 1848. – 1918.“, u: Hrvatski sabor, ur. Željko Sabol. Zagreb: Sabor Republike Hrvatske; Nakladni zavod Globus; Školska knjiga, 1994., 96. 3 Nada Kisić Kolanović, „Hrvatski državni sabor Nezavisne Države Hrvatske 1942.“, Časopis za suvremenu povijest 32, br. 3 (2000.): 545-564; Željko Sabol, „Hrvatski državni sabor 1942.“, u: Hrvatski sabor, ur. Željko Sabol. Zagreb: Sabor Republike Hrvatske; Nakladni zavod Globus; Školska knjiga, 1994., 99.; Ivo Perić, Hrvatski državni sabor 1848. – 2000., sv. 3, 1918. – 2000. Zagreb: Hrvatski institut za povijest; Hrvatski državni sabor; Dom i svijet, 2001., 61-92. 4 Perić, Hrvatski državni sabor, 177. 5 Isto, 198. 6 Nenad Bukvić, Privid demokracije: Sabor u prvim godinama komunističke Hrvatske (1945. – 1953.). Zagreb: Hrvatski državni arhiv, 2018. HRVATSKI ISELJENIČKI ZBORNIK 2020 13 je, pod vodstvom Slobodana Miloševića, težila uspostavi svoje dominacije u SFRJ dok se u isto vrijeme u Sloveniji događao proces u kojem su sve glasniji bili zahtjevi za demokratizacijom i političkim pluralizmom. U Sloveniji je višestranačje dopušteno već u siječnju 1989. Kao svojevrsna reakcija, Savez komunista Hrvatske (SKH) početkom 1989. opredijelio se za „nešto što je trebalo biti svojevrsni ‘nestranački’ i ograničeni ‘pluralizam’“.7 Naime, Republička konferencija Socijalističkoga saveza radnog naroda Hrvatske (SSRNH), kao formalno najšira društveno-politička organizacija, početkom ožujka 1989. odlučila je u svojim redovima omogućiti osnivanje novih saveza i udruženja i uključiti ih u rad SSRNH. Pritom se isticalo da neće biti prihvaćene inicijative koje su svojim programom usmjerene protiv temelja SFRJ, „koje dovode u pitanje koncept i rezultate SKJ, odnosno one koje bi htjele demokratsko društvo, ali na ‘sasvim drugim temeljima’”. Taj svojevrsni novi „pluralizam” nije predviđao ni osnivanje novih političkih stranaka jer je to bilo suprotno ustavnim i zakonskim rješenjima. Međutim, već tijekom 1989. u Hrvatskoj su osnovane prve nekomunističke političke stranke.8 Kao prva nekomunistička stranka u veljači 1989. u Zagrebu je osnovano Udruženje za jugoslavensku demokratsku inicijativu (UJDI) s programom demokratizacije Jugoslavije s ciljem očuvanja Jugoslavije.9 Iako se nije zalagala za suverenost Hrvatske, ta inicijativa je „probila led“ i omogućila da stranke koje su željele samostalnu Hrvatsku lakše dođu do javnosti. Hrvatski socijalno-liberalni savez10 (HSLS), osnovan u svibnju i Hrvatska demokratska zajednica (HDZ), osnovana u lipnju 1989., bile su prve demokratske stranke s hrvatskim programom. Godine 1989. jugoslavenska politička kriza došla je do stadija u kojoj se politička situacija mijenjala iz dana u dan. U atmosferi tzv. antibirokratske revolucije i hrvatski komunisti morali su se braniti od mnogobrojnih optužaba iz Beograda. U toj atmosferi Sabor SRH je 28. i 29. rujna razmatrao stanje u zemlji i smisao tih optužbi pa je upozorio da je „daljnji razvoj SFRJ moguć samo na avnojevskom konceptu Jugoslavije kao federativne zajednice dobrovoljno udruženih i ravnopravnih naroda i narodnosti”. Sabor je odbacio tvrdnje o „tzv. genocidnom biću” hrvatskoga naroda i o „ugrožavanju prava Srba u Hrvatskoj i njihovoj tobožnjoj asimilaciji”, kao i zahtjev za autonomnom pokrajinom Srba u Hrvatskoj te njihovo svojatanje JNA. Ujedno je istaknuo da će se zalagati za Jugoslaviju kao pravnu i demokratsku državu u kojoj će se „otvarati prostor za pluralizam, uključivši politički”.11 Konačna odluka rukovodstva SKH da se u Hrvatskoj uvede višestranačje donesena je neposredno prije održavanja 11. kongresa SKH, na sjednici Predsjedništva Centralnoga komiteta SKH.12 Na 11. kongresu SKH, koji se održavao od 11. do 13. prosinca 1989., ta je odluka prihvaćena, a za predsjednika Predsjedništva Centralnoga komiteta 7 Nikica Barić, Split 1980-ih: društveni sukobi u sutonu samoupravnoga socijalizma. Zagreb: Hrvatski
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