natgillin/translations-raw huggingface dataset:
At the very end a summary of the key problems of governance and public administration in Croatia on the road to the EU is offered and some concrete recommendations for their solution are provided.
Na samom kraju daje se sažetak ključnih problema governancea i javne uprave u Hrvatskoj na putu prema EU te daju konkretne preporuke za njihovo rješavanje.
GOVERNANCE AND PUBLIC ADMINISTRATION
GOVERNANCE I JAVNA UPRAVA
It is quite difficult to reply to the simple question: what exactly is governance?
Prilično je teško odgovoriti na jednostavno pitanje: što je zapravo governance?
There is no consensus about a definition, although all start out from the idea that it is about something that has a complex historical, political and social/cultural background, and hence requires an interdisciplinary approach.
Konsenzus oko definicije ne postoji iako svi polaze od toga da je riječ o nečemu što ima složenu povijesnu, političku i sociokulturološku podlogu, te da samim time zahtijeva interdisciplinarni pristup.
The narrowest definition is: the science about government and its performance (Dethier 1999:5).
Najuža definicija glasi: governance je znanost o ponašanju vlade/države i uspješnosti njezina djelovanja (Dethier, 1999: 5).
The World Bank, which was the first to give prominence to the role of governance,i describes it as the manner in which authority is exercised in the management of country's economic and social resources for development (World Bank, 1992:1).
Svjetska banka, koja je prva dala veliku ulogu governance^ opisuje ga kao način na koji se vlast koristi u upravljanju ekonomskim i društvenim resursima za razvoj neke zemlje (World Bank, 1992:1).
It might be characterised as the capacity of the formal and informal institutional environment (in which individuals, social groups, civil associations and government officials and employees interact) to apply and carry through a given government policy and to improve coordination in the private sector (Ahrens, 2002:128).
Moguće ga je okarakterizirati i kao sposobnost formalnoga i neformalnoga institucionalnog okruženja (u kojemu međusobno djeluju pojedinci, društvene skupine, građanske udruge i državni dužnosnici/službenici) da primijeni i provede određenu državnu politiku i poboljša koordinaciju u privatnom sektoru (Ahrens, 2002:128).
Thus the key words are institutions and government, and the questions that dominate are how, and how well.ii From these sentences one can see that there is no totally adequate translation for this concept in Croatian publications, although there have been some attempts.
Dakle, ključne su riječi institucije i država, a glavna su pitanja kako i koliko dobro.ii Iz tih rečenica može se vidjeti da prijevod tog pojma riječju upravljanje, koja se sve češće rabi u domaćim publikacijama, nije potpuno adekvatan.
All these definitions rely on a single empirical fact: identical reform measures that governments undertake have different results in different countries.
Sve se navedene definicije temelje na istoj empirijskoj činjenici: slične reformske mjere koje poduzima država u različitim zemljama imaju poprilično drugačije rezultate.
It seems extremely likely that the different quality of the governance involved is very largely responsible for this.
Vjerojatno tome pridonosi različita kvaliteta governancea.
In other words, countries with better governance should be able to achieve their development aims more easily and effectively.
Drugim riječima, zemlje s boljim governanceom trebale bi lakše i djelotvornije ostvariti razvojne ciljeve.
Research has pointed out that such countries do indeed have a higher per capita income and better other indicators of development.
Istraživanja su pokazala kako takve zemlje uistinu imaju viši dohodak po stanovniku, kao i bolje ostale pokazatelje razvijenosti."
The economic refers to the process of making decisions that affect the economic activities of the country and its relations with other countries.
Ekonomski se odnosi na proces donošenja odluka koje utječu na ekonomske aktivnosti zemlje i njezin odnos s drugim zemljama.
The political pillar is the process of forming policy according to decisions that have been made, and the administrative relates to the implementation of this policy.
Politički stup je proces oblikovanja politike na temelju donesenih odluka, a administrativni se odnosi na primjenu te politike.
This administrative pillar is embodied in the public administration.
Taj administrativni stup je javna uprava.
Governance describes how authority is exercised, and the public administration possesses part of this authority.
Governance opisuje kako se koristi vlast, a javna uprava posjeduje dio vlasti.
Accordingly, an evaluation of governance, as good or bad, depends to an extent on the successfulness of the work of the public administration.
Prema tome, ocjena governancea (je li dobar ili loš) ovisi i o uspješnosti rada javne uprave.
And what anyway are the criteria in general for defining something as good and how can it be measured?
Uostalom, koji su uopće kriteriji za definiranje nečega dobrim i kako se to onda može izmjeriti?
Naturally, the government does not work in a vacuum: the success of its action depends on the interaction with the private sector and civil society.
Naravno, država ne djeluje u vakuumu; uspješnost njezina djelovanja ovisi o interakciji s privatnim sektorom i civilnim društvom.
v Encouraging the partnership process among them improves the quality of provision of services, increases social accountability and ensures vigorous civil participation in the decision-making (UNDP, 2003).
v Poticanje njihova međusobnog partnerstva poboljšava kvalitetu pružanja usluga, pojačava društvenu odgovornost i osigurava intenzivno sudjelovanje građana u donošenju odluka (UNDP, 2003).
How successful the government is in achieving economic development depends on historical variables that are not under its direct control, such as for example the ethnic heterogeneity of the population, the origin of the legal system of the country and the confessional composition of the population (La Porta et all.,
Koliko će država biti uspješna u ostvarivanju ekonomskog razvoja, ovisi i o povijesnim varijablama koje nisu pod njezinom izravnom kontrolom kao što su etnička heterogenost stanovništva, podrijetlo pravnog sustava zemlje i sastav stanovništva s obzirom na vjeru (La Porta i sur.,
Governance can be measured reliably with great difficulty.
Governance se teško može pouzdano mjeriti.
In spite of this, the number of databases is ever greater.
Usprkos tome, broj baza podataka sve je veći.
These are mainly indicators that are based on subjective perceptions of commercial agencies for risk rating (BERI, PRS), non-governmental associations (Freedom House, Heritage Foundation, World Economic Forum, Transparency International) and multilateral organisations such as the WB, the EBRD, and the UNDP.
Uglavnom je riječ o pokazateljima koji se temelje na subjektivnim percepcijama komercijalnih agencija za ocjenu rizika (BERI, PRS), nevladinih udruga (Freedom House, Heritage Foundation, World Economic Forum, Transparency International) te multilateralnih organizacija (WB, EBRD, UNDP).
These indicators are only estimates and for this reason they need to be used circumspectly.
Ti su pokazatelji samo procjene i stoga ih je potrebno uzimati s oprezom.
They show the relative position of some country quite well, but do not describe very precisely the trends for a given country.
Prilično dobro pokazuju relativni položaj neke zemlje, ali ne oslikavaju precizno trendove u pojedinoj zemlji.
The problems are that the individual indicators overlap, that Croatia does not figure in many of the sources, and that there is no methodological harmonisation in the different sources.
Problem je to što se pojedini pokazatelji preklapaju, što Hrvatska nije uključena u mnoge izvore te što nema metodološke usklađenosti među različitim izvorima.
Regular or annual research hardly exists at all, and the transitional countries have only been included in it since the mid-1990s.
Redovita (godišnja) istraživanja jedva postoje, a tranzicijske su zemlje u njih uglavnom uključene tek sredinom 1990-ih.
In this work governance indicators are used so that an outline impression might be gathered of the position of Croatia relative to the EU and to the candidate countries.
U ovom se radu governance pokazatelji koriste kako bi se dobila okvirna predodžba o relativnom položaju Hrvatske u odnosu prema EU i zemljama kandidatkinjama.
So as to enhance the credibility, an endeavour is made to back up all the findings with the European Commission Report on Croatia.
Kako bi se dobilo na vjerodostojnosti, svi se nalazi pokušavaju potkrijepiti Izvješćem Europske komisije za Hrvatsku.
CONDITIONS FOR THE ACCESSION TO THE EUROPEAN UNION
UVJETI ZA PRIDRUŽIVANJE EUROPSKOJ UNIJI
The Copenhagen criteria for full membership in the EU stipulate: (1) stability of the institutions that provide for democracy, rule of law and order, respect for human and minority rights; and (2) ability to take on the obligations that are entailed by membership.
Kriteriji iz Kopenhagena za punopravno članstvo u EU zahtijevaju (1) stabilnost institucija koje osiguravaju demokraciju, pravnu državu, poštovanje ljudskih prava i manjina te (2) sposobnost preuzimanja obveza koje proizlaze iz članstva.
From the point of view of this paper these two criteria are the fundamental conditions for the accession of new members.
Ta su dva kriterija sa stajališta ovog rada temeljni uvjeti za pridruživanje novih članica.
In the sequel it is explained how governance and public administration fit in, and then the assistance provided by the EU to Croatia in meeting the membership criteria is described.
U nastavku se objašnjava kako se u njih uklapaju governance i javna uprava, a zatim se opisuje pomoć koju EU pruža Hrvatskoj u ispunjavanju uvjeta za pridruženje.
There is no single document that states what the governance of future member states should be like.
Ne postoji dokument u kojemu se na jednome mjestu navodi kakav mora biti governance budućih zemalja članica.
However, the EU constantly lays stress upon the importance of democracy and the rule of law (the first Copenhagen criteria) and these are also elements for the evaluation of the quality of governance.
Međutim, EU konstantno naglašava važnost demokracije i vladavine prava (prvi kriterij iz Kopenhagena), a to su ujedno i elementi za ocjenu kvalitete governancea.
To strengthen these, the EU proposes the following principles:
Za njihovo učvršćivanje EU predlaže ova načela:
• openness in communications with the public, and transparency;
• otvorenost u komunikaciji s javnošću i transparentnost
• more vigorous involvement of the public in the running of policies;
• intenzivniju uključenost građana u vođenje politike
• increased accountability of those in charge of policies;
• povećanje odgovornosti nositelja politike
• effectiveness in the execution of policies;
• djelotvornost u izvršenju politike
• harmonisation of all measures of policies and levels of government so as to achieve consistency"
• usklađenost svih mjera politike i razina vlasti kako bi se postigla konzistentnost.vi
The first four are also the most frequently mentioned principles of good governance.
Prva četiri ujedno su i najčešće spominjana načela dobroga governancea.
It is important to mention that the EU can act as initiator of improvement of the quality of governance, but it too is not immune to weakness in governance.
Važno je napomenuti da EU može djelovati kao pokretač poboljšanja kvalitete governancea, ali ni on sam nije imun na njegove slabosti.
In the EU countries too, and not just in the transition countries, there is an increasing lack of public trust in institutions and unwillingness to be involved in politics (Commission of the European Communities, 2001:3).
Tako i u EU, a ne samo u zemljama u tranziciji, sve više raste nepovjerenje građana prema institucijama, kao i odbojnost spram uključivanja u politiku (Commision of the European Communities, 2001:3).
For this reason the objective of the EU is to make policy making as open as possible in both present and future member states.
Zato je cilj EU-a učiniti vođenje politike što otvorenijim u sadašnjim i budućim zemljama članicama.
There is a wish to give ever greater roles to the organisations of civil society so that the services provided should be to the maximum adapted to the needs of citizens.
Sve se veća uloga želi dati organizacijama civilnog društva kako bi pružene usluge bile što prilagođenije potrebama građana.
The picture of civil society should not be too rosy, because it too can contribute to poor governance quality, but this, because of the extensiveness of the topic, is not the subject of this paper.
Pogled na civilno društvo ne bi trebao biti potpuno idiličan jer i ono samo može pridonijeti lošoj kvaliteti governancea, ali zbog opsežnosti teme to nije predmet ovog rada.
Public administration
Javna uprava
Entry into the EU puts great pressure on the public administration.
Ulazak u EU stvara velik pritisak na javnu upravu.
How well some country can function within the EU will depend on the quality of its civil service.
O njezinoj će kvaliteti ovisiti koliko će neka zemlja uspješno funkcionirati unutar EU-a.
There are no details about the demands made on future members in terms of this question.
U zahtjevima prema budućim članicama glede toga ne daju se nikakve pojedinosti.
This fact is not surprising, because at EU level there are no clear rules and regulations that are uniformly applied in the public administrations of the individual countries.
Ta činjenica ne čudi jer na razini EU-a ne postoje jasna pravila i propisi koji se uniformno primjenjuju u javnim upravama pojedinačnih zemalja.
What is stressed in negotiations with the future member states is the need to raise administrative capacities (the supplemented second Copenhagen criterion),™ for which the EU provides assistance.
Ono što se naglašava u pregovorima s budućim zemljama članicama jest potreba poboljšanja administrativnih sposobnosti (dograđeni drugi kriterij iz Kopenhagena),™ za što EU nudi i pomoć.
An improvement is required in the capacities of public sector organisations to perform their tasks effectively in the development process, keeping to the principles of good governance.
Zahtijeva se poboljšanje sposobnosti organizacija javnog sektora da u procesu razvoja djelotvorno obavljaju svoje zadatke držeći se načela dobroga governancea.
Reinforcement of the public administration (the enhancement of its effectiveness) is necessary so that the pertinent ministries and other bodies should be ready to put into effect the various legislative reforms the country has committed to.
Jačanje javne uprave (povećanje njezine djelotvornosti) nužno je kako bi odgovarajuća ministarstva i druga tijela bila spremna provesti brojne zakonodavne reforme na koje se zemlja obvezala.
Similarly, it is essential for a member country to have quality representatives in Brussels, who in the endeavour to derive benefits for their own country have to cope with the competition of representatives of other administrations.
Isto je tako za zemlju članicu bitno imati kvalitetne predstavnike u Bruxellesu, koji su u ostvarivanju koristi za vlastitu zemlju suočeni s konkurencijom predstavnika ostalih javnih uprava.
The improvement of the public administration (its reform) is in the long-term interest of a future member; it should not be understood primarily as pressure from the EU.
Poboljšanje javne uprave (njezina reforma) u dugoročnom je interesu buduće članice; ne smije se shvaćati kao pritisak EU-a.
Why is the public administration in general so important?
Zašto je općenito javna uprava toliko važna?
This is because it is the civil service or some other organisations that have to put into effect the decisions that are made by the policy makers.
Zato što javne uprave ili druge organizacije moraju primjenjivati odluke koje donesu kreatori politike.
If among those who implement the policy there are persons or groups that have their own agenda, or that consider the implementation of the policy will injure them, then the whole procedure of political change or implementation will be impeded.
Ako među provoditeljima politike postoje osobe ili skupine koje imaju vlastite ciljeve ili smatraju da će im provođenje te politike naštetiti, cijeli postupak političke promjene ili reforme postaje znatno teži.
In the process of the application of the policy, the meaning of it can be changed to such an extent that the final result will be different from what was expected.
U procesu primjene politika može promijeniti smisao tako da konačni rezultati budu drugačiji od očekivanih.
The same thing will happen if corruption is widespread in the public administration or if the personnel are incompetent.
Isto se događa ako je u javnoj upravi rasprostranjena korupcija ili ako je njezino osoblje nesposobno.
In such cases senior and junior members of the civil service privatise the use of the instruments of policy for their own benefit (Tanzi, 1997:6).
U tim slučajevima državni službenici i namještenici privatiziraju primjenu instrumenata politike u svoju korist (Tanzi, 1997:6).
Put simply, the public administration can place constraints on the effectiveness of governmental intervention; it can greatly cooperate in the work of development, but can also be an enormous hindrance.
Jednostavno rečeno, javna uprava može ograničavati djelotvornost vladine intervencije; ona može biti najbolja suradnica, ali i velika prepreka razvoju.
European Union assistance to Croatia
Pomoć Europske unije Hrvatskoj
The EU assists Croatia via the CARDS programme to meet its obligations according to the SAA.
Putem CARDS programa EU pomaže Hrvatskoj u ispunjavanju obveza prema SSP-u.
The priorities of the programme are:
Prioriteti programa jesu:
• democratic stabilisation;
• demokratska stabilizacija
• economic and social development;
• ekonomski i društveni razvoj
• justice and home affairs;
• pravosuđe i unutarnji poslovi
• reform of the public administration;
• reforma javne uprave
• conservation of the environment and natural resources (MEI, 2003a).
• očuvanje okoliša i prirodnih resursa (MEI, 2003a).
From the point of view of this paper, the first, third and fourth elements of the programme are particularly interesting, looked at not only from the viewpoint of harmonisation with EU standards but also, partly at least, with the objective of seeing the possibility for achieving the second priority stated: sustainable economic and social development.
Sa stajališta ovog rada posebno su zanimljivi prvi, treći i četvrti element programa, promatrani ne samo s ciljem prilagođavanja standardima EU-a već i, djelomično, s ciljem prepoznavanja mogućnosti za postizanje drugoga navedenog prioriteta: održivoga ekonomskog i društvenog razvoja.
In CARDS documents democratic stabilisation is concentrated on civil society and on promoting democracy and political rights.
U CARDS dokumentima demokratska je stabilizacija koncentrirana na civilno društvo te na promicanje demokracije i političkih prava.
In the domain of the judiciary, the objective of CARDS is the modernisation of the courts, that is, support to the more effective work and functioning of the Croatian judiciary.
U domeni pravosuđa cilj CARDS-a je modernizacija sudstva odnosno potpora učinkovitijem radu i funkcioniranju hrvatskih sudova.
As for the public administrations of the countries in the SAA, the European Commission has clearly identified the reform of them as one of the priority areas to which resources from the CARDS assistance programme will be directed.
Kad je riječ o javnim upravama zemalja sudionica SSP-a, Europska je komisija jasno prepoznala njihovu reformu kao jedno od prioritetnih područja u koje će se usmjeravati sredstva iz programa pomoći CARDS.
For the 2001-2004 period, 23 million euros have been earmarked for assistance to the reform of the public administration in Croatia, which includes assistance to reform of the civil service, enhancing administrative capacity in SAA priority regions, and enhancing competence at lower levels of government, as well as measures for the fight against corruption (MEI, 2003b).
Za razdoblje 2001.-2004. namijenjena su 23 milijuna eura za potporu reformi javne uprave u Hrvatskoj, koja obuhvaća potporu reformi državne službe, jačanju upravnog kapaciteta u prioritetnim područjima SSP-a i jačanju sposobnosti na nižim razinama vlasti, kao i mjerama za borbu protiv korupcije (MEI, 2003b).
The basic objects of the public administration reform project are:
Temeljni su ciljevi projekta reforme javne uprave:
• improving the legislative framework regulating the work of the public administration, the aim being to achieve as great transparency in hiring, promotion and the salaries system as possible;
• unapređenje zakonodavnog okvira kojim se regulira rad javne uprave s ciljem postizanja što veće transparentnosti u zapošljavanju, napredovanju i sustavu plaća;
• enhancing the institutional capacities of the Ministry of Justice, Administration and Local Self-Government and other institutions crucial for the management of the public administration; and
• jačanje institucionalnih sposobnosti Ministarstva pravosuđa, uprave i lokalne samouprave i ostalih institucija ključnih za rad javne uprave
• professional further training of civil servants.ix
• stručno usavršavanje državnih službenika.ix
GOVERNANCE AND PUBLIC ADMINISTRATION IN CROATIA
GOVERNANCE I JAVNA UPRAVA U HRVATSKOJ
In this part of the paper the quality of governance is analysed via indicators that evaluate the rule of law, the development of democracy, corruption, political stability and the effectiveness of the government.
U ovom dijelu rada analizira se kvaliteta governancea putem pokazatelja koji procjenjuju vladavinu prava, razvijenost demokracije, korupciju, političku stabilnost i djelotvornost države.
Why have precisely these indicators been selected?
Zašto su izabrani upravo ti pokazatelji?
The presence of rule of law and democracy derives from the Copenhagen criteria.
Vladavina prava i demokracija proizlaze iz kopenhaških kriterija.
Corruption indicates the level of transparency (an EU principle of good governance), and also is an essential element in the evaluation of the quality of the public administration.
Korupcija upozorava na razinu transparentnosti (načelo dobroga governancea EU-a), a ujedno je i bitan element ocjene kvalitete javne uprave.
Political stability is a precondition for effectiveness and consistency in the execution of policy (also a principle of the EU).
Politička stabilnost preduvjet je djelotvornosti i konzistentnosti u izvršenju politike (i načela EU-a).
The indicator of state effectiveness is included because it contains elements that are particular for the evaluation of the work of the public administration.
Bitan je i pokazatelj djelotvornosti države jer sadržava elemente specifične za ocjenu rada javne uprave.
In an analysis of the public administration the emphasis is placed on the vulnerable spots, because Croatia is faced with the reform of the public administration (which is urged by the European Commission).
Pri analizi javne uprave naglasak je na točkama ranjivosti zato što Hrvatsku očekuje reforma javne uprave (koju zagovara i Europska komisija).
For this reason, in the next chapter, the experience of selected countries in the reform of the public administration is briefly described.
Zato u idućem poglavlju ukratko opisujemo i iskustvo odabranih zemalja u reformi javne uprave.
Rule of Law
Vladavina prava
The SAA clearly emphasises the importance of the consolidation of the rule of law.
U SSP-u jasno se naglašava važnost konsolidacije vladavine prava.
It is necessary for the full functioning of the market economy (creating an environment that stimulates economic development) and for limiting the arbitrary and opportunistic actions of those in charge of the policy.
Ona je nužna za potpuno funkcioniranje tržišnoga gospodarstva (stvaranje okruženja poticajnog za ekonomski razvoj) te za ograničavanje arbitrarnoga i oportunističkog djelovanja nositelja politike.