POLAND* In the period before the accession of Poland to the EU, it was mainly thanks to cooperation with the AER that we were able to gain new experiences while cooperating with regions of countries that were already members of the EU (Hesja, Noord Brabant, Flandria, Vasternorrland, Vasterbotten). For us, it was a unique experience to get to know the advantages of the membership in the EU. Marek Wozniak Marshal of the Wielkopolska Region 1. Overview The regional level of government in Poland is the voivodship. Local selfgovernments in Poland have been functioning since 1990 in 2479 gminas (according to the Central Statistical Office). The reform of 1999 introduced two new levels of self-government: poviats (counties) and voivodships (regions). Regions have - like poviats and gminas - independent legal identities with independent budgets. The Sejmiks (Regional Councils) are responsible f o r t h e d e v e l o p m e n t a n d i m p l e m e n t a t i o n o f r e g i o n a l economic policies. The aim of the reform was to create larger units (regions), which could better act and compete with other EU regions after the Polish accession to the European Union. The previous voivodships were too small to effectively utilise national and European funds. The law that regulates the regional self-government is the Law on Regional Self-Government dated 5 th June 1998. Poland is thus divided in two levels: (i) governmental with central government and its Head, i.e. Prime Minister and Voivods (Governors) in a region and (ii) self-government with: gminas with a Gmina s Council as legislative authority and a Wojt /Mayor as executive authority; poviats with a Poviat s Council as legislative authority and a Poviat s Board and a Starost at its head as executive authority; voivodships with a Sejmik as legislative authority and Regional Board headed by a Marshal as executive authority. Both administrative types have own and delegated tasks. 2. The region: definition and context There are 16 regions in Poland (at NUTS 2 level). In the Constitution of Poland dated 7th April 1997 there is no clear definition of a voivodship.
3. Institutional Organization Sejmiks (regional parliaments) are the regional decision-making bodies and are elected by direct election. The Sejmiks elect governing Regional Boards to exercise the executive authority. Boards are headed by the Marshal (President), who is elected by the Sejmik. The region implements the policies and laws formulated at the national level (Sejm, Senate, central government) and its compliance with these laws is controlled by a representative of the central government in the region, the Voivode, and by other competent organs and bodies such as the NIK (Chief Board of Supervision) or RIO (Regional Audit Chamber). On the other hand, the regional self-government performs public tasks defined by laws on in its own behalf. 4. Competences The regions define a strategy of regional development, formulate their own regional development policy and implement it through regional programs. They also make regional agreements with the central government. The regional self-government performs different tasks of regional scope in the area of public education, promotion and health protection, culture and heritage, social welfare, profamilial policy, modernization of rural areas, spatial management, environmental protection, water management, collective transport and public roads, sport and tourism, consumers rights protection, defenses, public security, counteracting unemployment and activation of local labor market. The Constitution defines these competences in Chapter VII (art. 163). The reform of 1999 brought about a significant decentralization of both public authority and public finance. The principle of subsidiarity constitutes the basis of the restructured Polish state. Soon, Polish
Parliament will approve a special Law on Competences, which will enlarge the responsibilities of Polish regions. 5. Financing The revenues of regions consist of own revenues, general subventions and specific, state budget grants. Apart from these public sources of revenues, local entities are empowered to obtain revenues from private law sources (from the assets that they own). Article 167 of the Constitution is concerned with regional funds. The regions do not have sufficient own resources and for this reason there are general subventions, specific grants and a system of financial equalization. 6. The State and the regions Regions have their own political representation in both Chambers of the Parliament. Regions can sign agreements with one another (for example when elaborating a regional development strategy or preparing a new plan of spatial management, supra regional investments, etc). 7. The regions and local authorities The local authorities are very often consulted by the regions. In many cases such consultations are obligatory, e.g. in case of realization of Integrated Operational Programme of Regional Development or in case of supra-local investments and other similar activities. 8. The regions and international relations According to Article 172 of the Constitution and the Law on Regional Self-Government dated 5 th June 1998, regions are able to enter into international cooperation agreements. The state does not consult the regions on international treaties. 9. Conclusions More competencies need to be transferred from central government to self-governmental entities, together with proper financial resources. There needs to be a greater participation of selfgovernment in state revenues.
prowadz,cym do wzmocnienia g)8&i$ przysz)65$ '8<#3="#$ &'(528*-#A$ %&'(<2=-J istotnych kwestii z jakimi przyjdzie na kolejnych 25 lat. Interview with Marek WOZNIAK Marshal of the Wielkopolska Region 1) AER: What are your competences as a president of the region? What changes have been made in the transfer of powers from central government to the regions in the last years? What changes are still to be done in order to improve the regional efficiency in the decision process? Marek Wozniak: I am the president of the region together with the other members of the regional board from the executive power of the region. My major competences are official representation of the region on the national and international level and the direction of the region and the organization of the functioning of the region, the regional board and the office of the president of the region. The board of the region is working on the projects and strategies of development, budget management and regional operation programs. It is responsible for international cooperation on the regional level with the partner regions in other countries and on the international institutional level and with international regional organizations. They are also managing an important budget project and the execution of the decisions of Sejmik. In the last years the competences of the presidents of the regions has grown larger since some responsibilities were transferred from the national level to the presidents of the regions. Among those are: environment, waste and water. However, the transfer of competences from the central power to regions has caused a growing number of competences for regions which should normally! belong to the lower levels of the government. The regions should mainly focus! on providing more effective development policy which would ensure economic growth and the competitiveness of regions. 2) AER: What do you think should be the role of the regions in the process of constructing the European union? Are there any ways regions can contribute to the development of common European identity? Marek Wozniak: The creation of the European Union would not be possible without the active participation of regions. That is why we cannot let the policy of unification, whose future is hotly debated and which allows regions to be an integral part of regional development, be relegated to the margins. Regions are the key actors to truly and effectively realize a policy of unification, mainly thanks to the structural funds. Regions also have an important role in bringing citizens closer to the EU and explaining to them its functioning. It is important to take into consideration the fact that one of the biggest problems facing the EU is a lack of knowledge about its functioning among its citizens which leads to low participation of the EU citizens on the functioning of EU. As has been underlined in the White Book of the Committee of the Regions, regions are responsible for 70% of the law making process in the EU. That means that their contribution to the creation of EU is more than significant. 3) AER: What is the added-value of being a member of AER according to your experience? Marek Wozniak: In the period before the accession of Poland to the EU, it was mainly thanks to cooperation with the AER that we were able to gain new experiences while cooperating with regions of countries that were already members of the EU (Hesja, Noord Brabant, Flandria, Vasternorrland, Vasterbotten). For us, it was a unique experience to get to know the advantages of the membership in the EU. In general, for the Wielkopolska region, the AER serves as a platform for the exchange of experiences and valuable ideas in the fields of regional development, environmental protection, climate change, transport, healthcare and regional tourism. 4) AER: What is your wish to AER for its 25th anniversary? How do you see the role of the! Picture of the contributor: Form to be returned to th Within 2 weeks st.stia2 Martina Viktorinova, Standing Committee
regions in the next 25 years? Marek Wozniak: The local and regional governments have an important role to play in the future. Being the closest to the citizens, they can be an integral part in the development of local democracy and help to gradually abolish the barrier between official institutions and the citizens a process called decentralization of communication policy. Thus I think that it is time for the AER, having the necessary potential and means, to play a major role as a platform for the exchange of ideas and for it to boost the Regions voice in debates at the EU level, in particular with regards to common actions taken in the field of climate change a questions that regions will have to deal with in the next 25 years. Original Language: POLISH 1) AER: Jakie są Pańskie kompetencje jako szefa regionu? Jakie zmiany nastąpiły w wyniku przekazania kompetencji z poziomu władz centralnych do regionów w ostatnich latach? Jakie zmiany są nadal konieczne w celu poprawienia skuteczności regionów w procesie decyzyjnym? Marek Wozniak: Jako marszałek województwa wraz z pozostałymi członkami zarządu tworzymy organ wykonawczy samorządu województwa. Do moich kompetencji należy m.in. reprezentowanie regionu, zarówno na forum krajowym jak i międzynarodowym, kierowanie bieżącymi sprawami województwa oraz organizowanie pracy zarządu województwa i urzędu marszałkowskiego. W ramach swoich prac zarząd przygotowuje projekty strategii rozwoju, planu zagospodarowania przestrzennego oraz regionalnych programów operacyjnych. Ponadto, odpowiada za organizowanie współpracy ze strukturami samorządu regionalnego w innych krajach i z międzynarodowymi zrzeszeniami regionalnymi. Ważną rolą zarządu jest także przygotowanie projektu oraz wykonanie budżetu województwa oraz wykonywanie uchwał sejmiku. W ostatnich latach kompetencje szefów polskich regionów zostały rozszerzone o niektóre obszary leżące wcześniej w gestii władz centralnych. Wśród nich znalazły się m.in. zadania z zakresu ochrony środowiska, gospodarki odpadami i gospodarki wodnej. Jednak przeniesienie kompetencji co jest prawidłowym kierunkiem działań procesu decentralizacyjnego powoduje niekiedy zwiększenie liczby zadań, za które muszą odpowiadać samorządy regionalne, a które powinny leżeć raczej w kompetencji władz niższego szczebla. Rola samorządów regionalnych powinna skupić się przede wszystkim na prowadzeniu bardziej efektywnej polityki rozwoju, co zapewniłoby wzrost gospodarczy i konkurencyjność województw. 2) AER: Jaką rolę Pańskim zdaniem powinny odgrywać regiony w procesie tworzenia Unii Europejskiej? Czy w jakikolwiek sposób regiony mogą przyczyniać się do tworzenia wspólnej tożsamości europejskiej? Marek Wozniak: Proces tworzenia Unii Europejskiej nie byłby możliwy bez wkładu regionów. Dlatego też nie możemy pozwolić, aby polityka spójności, której przyszłość jest obecnie przedmiotem szeroko zakrojonej debaty, a która uwzględnia znaczenie regionów i umożliwia ich bezpośrednie zaangażowanie w rozwój regionalny, została odsunięta na margines. Regiony są kluczowymi podmiotami skutecznie i efektywnie realizującymi politykę spójności, przede wszystkim dzięki środkom pochodzącym z funduszy strukturalnych. Regiony odgrywają również doniosłą rolę ośrodków przybliżających i wyjaśniających obywatelom lokalnych społeczności sens unijnych działań. Należy zwrócić uwagę na fakt, iż jednym z największych obecnie problemów UE jest deficyt wiedzy na jej temat wśród obywateli Wspólnoty, co w konsekwencji uniemożliwia aktywne zaangażowanie mieszkańców w jej sprawy. Jak podkreślono w Białej Księdze w Sprawie Wielopoziomowego Sprawowania Rządów (Dokument Komitetu Regionów) regiony są odpowiedzialne za wdrażanie 70% prawodawstwa unijnego wynika z tego, że ich wkład w proces budowania UE, a tym samym jej tożsamości jest bardziej niż znaczący. 3) AER: Opierając się na Pańskich doświadczeniach - jaka jest wartość dodana bycia członkiem AER?
Marek Wozniak: W okresie przedakcesyjnym, dzięki współpracy z AER, jako przedstawiciele władz regionalnych mieliśmy okazję zdobyć nowe doświadczenia nawiązując współpracę z administracjami regionów państw należących już do Wspólnoty (m.in. Hesji, Północnej Brabancji, Flandrii, Västernorrland oraz Västerbotten). Była to dla nas nieoceniona szansa poznania korzyści jakie niesie ze sobą członkostwo w UE. Obecnie AER jest dla Wielkopolski platformą wymiany doświadczeń oraz najlepszych praktyk w zakresie rozwoju regionalnego, ochrony środowiska i przeciwdziałania zmianom klimatu, transportu, ochrony zdrowia, a także rozwijania i promowania turystyki regionalnej. 4) AER: Jakie jest Pańskie życzenie w odniesieniu do 25 rocznicy AER? Jaka będzie według Pana rola regionów w kolejnym 25-letnim okresie? Marek Wozniak: Władze lokalne i regionalne mają do odegrania doniosłą rolę. Będąc najbliżej obywateli mogą wnosić wkład w rozwój demokracji lokalnej i przyczyniać się do stopniowej likwidacji bariery między instytucjami wspólnotowymi a obywatelami, realizując tym samym koncepcję tzw. zdecentralizowanej polityki komunikacyjnej. Uważam, iż w tym zakresie AER, posiadające odpowiedni potencjał oraz narzędzia, może odegrać ważną rolę stając się forum wymiany poglądów prowadzącym do wzmocnienia głosu regionów w debacie na temat kształtu przyszłej polityki spójności, wspólnych działań na rzecz zmian klimatu oraz istotnych kwestii z jakimi przyjdzie nam regionom zmierzyć się w ciągu kolejnych 25 lat.
COUNTRY POLAND Overview The region: definition and context Institutional Organization Competences Financing There are two levels of government in Poland: governmental with central government and its Head, i.e. Prime Minister and Voivods (Governors) in a region and self-government with: a) gminas with a Gmina s Council as legislative authority and a Wojt /Mayor as executive authority; b) poviats with a Poviat s Council as legislative authority and a Poviat s Board and a Starost at its head as executive authority; c) voivodships with a Sejmik as legislative authority and Regional Board headed by a Marshal as executive authority. There are 16 regions (voivodships) in Poland. In the Constitution of Poland dated 7th April 1997 there is no clear definition of a voivodship. The legislative body of the region is the Sejmik, which is elected by direct election. The executive body on the regional level is the Regional Board which is elected form the members of the Sejmik. On the head of the Sejmik is the Marshal who is elected by the Sejmik as well. The regions define a strategy of regional development, contract regional agreements with the central government, take care of public education, promotion and health protection, culture and heritage, social welfare, pro-familial policy, modernization of rural areas, spatial management, environmental protection, water management, collective transport and public roads, sport and tourism, consumers rights protection, defenses, public security, counteracting unemployment and activation of local labour market. according to the principle of subsidiarity. The revenues of regions consist of own revenues, general subventions and specific, state budget grants, revenues from private law sources. The State and the regions Regions have their own political representation in both Chambers of the Parliament. The regions and local authorities Regions can sign treaties between each other. Local authorities are often consulted by regions. The region and international relations Regions in Poland are able to enter into international cooperation agreements.